DR. HUMA SODHER, MEMBER.---The Appellant Department instituted the present appeal in 2019 and assailed the Order dated 09.09.2019 passed by the learned Commissioner Inland Revenue (Appeals), whereby the sales tax demand of Rs.33,855.642 (Million), along with a penalty equal to the principal amount and default surcharge, as raised vide Assessment Order No. 02/2019 dated 03.07.2019, was deleted.Per record, the case originates from an analysis of the Respondent's audited accounts and e-filed sales tax returns for the tax periods from July 2004 to June 2014, which revealed non-payment of sales tax amounting to Rs.33,855.642 (Million) on Price Differential Claim ("PDC") receipts aggregating Rs.199,158.768 (Million) received from the Government of Pakistan. Consequently, show-cause notices dated 09.05.2017 and 30.06.2017 were issued. Thereafter, Assessment Order No. 02/2019 dated 03.07.2019 was passed under Sections 11(2) and 34 of the Sales Tax Act, 1990, raising a demand of Rs.33,855.642 (...
PRESENT:
Sajjad Akbar Khan and Dr. Huma Sodher, Members
Petitioner(s) by: Gul Badshah, .
Respondent(s) by: Haris Tufail,.
Law: Sales Tax Act, 1990
Sections: 2(37), 11(5), 2(46), 11(2), 33(13), 34, 33, 2, 11
DR. HUMA SODHER, MEMBER.---The Appellant Department instituted the present appeal in 2019 and assailed the Order dated 09.09.2019 passed by the learned Commissioner Inland Revenue (Appeals), whereby the sales tax demand of Rs.33,855.642 (Million), along with a penalty equal to the principal amount and default surcharge, as raised vide Assessment Order No. 02/2019 dated 03.07.2019, was deleted.
not charging sales tax on Price Differential Claims (PDCs) on petroleum products.
(i) Whether the limitation prescribed under Section 11(5) of the Sales Tax Act, 1990 is inapplicable in view of the Department's claim of tax fraud
7. A review of the Impugned Order and available record reveals that the core legal issue, as framed in Ground No. 22 of this appeal, concerns whether the case is time-barred under Section 11(5) of the Sales Tax Act, 1990. The Appellant Department asserts that limitation does not apply in cases of tax fraud, relying on W.P. No. 163/2010. However, the original Assessment Order contains no evidence establishing fraudulent intent under Section 2(37) of the Sales Tax Act, 1990. The allegation rests solely on an unsubstantiated assertion3 by the DCIR, a fact acknowledged by the learned CIR (Appeals) in the Impugned Order, which states:
"The factual submissions by the AR of the appellant show that majority of the demand have been raised on the tax periods which is time barred in accordance with the Sales Tax Act, 1990. However, the DCIR has not considered the plea of the AR on the time limitation on the ground that he believes the appellant has committed tax fraud. In this concern, I have gone through the assessment order and the only observation I have found in the order by the assessment officer on this subject is on page No. 19 of the order which is as under:
"The second stance taken by the learned counsel regarding time limitation, it is pertinent to mention here that the instant case falls under the ambit of Section 2(37) of the Sales Tax Act, 1990. It has been proved beyond any doubt that the registered person has deprived the national exchequer from sales tax amounting to Rs. 35,696.013 (Million) fraudulently during the tax periods i.e. 2005 to 2014, since it involves an issue of tax fraud. Thus, the time limitation provisions are not applicable in this case, in the light of Honourable High Court, Lahore decision vide W.P. No. 163-2010 dated 21.04.2010. The relevant portion of the order is reproduced as under:
"With regard of limitation of time for investigative audit in a tax fraud case, which is a moot point here, the Act does not impose any time constraint or the past period for which the record of an accused may be scrutinized."
.Consequently, since allegation of tax fraud has not been proved by the DCIR on part of the appellant, the time limitation stipulated under the Sales Tax Act, 1990 stands and squarely applied in the instant case. Thus, the appeal in respect of time limitation contested by the appellant is also decided in favour of the appellant and tax periods before 30.06.2012 are hereby declared barred by time limitation."
The learned CIR (Appeals) found that W.P. No. 163/2010 was inapplicable, as it concerned investigative audit under a different factual matrix, whereas the present proceedings arise under Section 11(2) of the Sales Tax Act, 1990. He, therefore, concluded that the limitation plea was valid and that the tax demand for periods prior to 30.06.2012 was time-barred.
Court of Sindh in M/s Hascol Petroleum Ltd. v. Federation of Pakistan and others4 (Hascol). In that case, the Department miserably failed to persuade the Court that the non-levy of sales tax on Price Differential Claims (PDCs) received from the Government of Pakistan for supplies of oil products constituted tax fraud, or that such a claim could justify the bypassing of the limitation prescribed under Section 11(5) of the Sales Tax Act, 1990.
Pakistan5, and the respondent in the proceedings before the Honourable High Court of Sindh. In both forums, the Department advanced substantially identical arguments to those now before this Tribunal---namely, that the issuance of show cause notices beyond the statutory period prescribed under Section 11(5) of the Sales Tax Act, 1990, could be justified on the basis of alleged "tax fraud" under Section 2(37) of the Act. The Honourable High Court, in a detailed and reasoned judgment, categorically rejected this contention, holding as follows:
"On facts, it has not been disputed that the impugned Show-Cause Notices have been admittedly issued after the statutory period of five years provided under Section 11(5) of the Sales Tax Act, 1990. Though the tax period in all cases are different; however, it is an admitted position that the Show-Cause Notices issued are beyond the period of 5 years as above; hence, the proceedings of recovery are apparently time barred and cannot be allowed to be acted upon. Moreover, the argument that it is a case of tax fraud in terms of Section 2(37) ibid also appears to be misconceived on two grounds. First, even if we were to accept the allegation that there is an element of tax fraud involved, it would not ipso facto enhance the limitation as provided in Section 11(5) of the Act as contended. It would still remain the same. The Principle that no limitation runs against a void order (tax fraud here) is of no relevance; rather an attempt on the part of the respondent to cover their inefficiency by asking this Court to condone the limitation. It is not a question of exercising any discretion in the matter.
Secondly, with utmost respect the present case on perusal of the Show-Cause
Notice8 does not even otherwise seems to be a case of tax fraud per se. In Show-Cause Notice the only allegation is that Sales Tax has not been charged on Price Differential Claims received from the Government of Pakistan against supplies of oil products. We are unable to understand as to how could such a transaction be a case of tax fraud. Nonetheless, all short payment(s) of Sales Tax would not ipso facto fall under Section 2(37) of the Sales Tax Act, 1990. At least in the present case, we are unable to agree with this proposition as raised on behalf of the Department." (emphasis added)
The Department subsequently assailed this judgment before the Honourable Supreme Court of Pakistan vide Civil Petitions Nos. 88-K to 92-K of 2021. On the date of hearing, the said petitions were argued by the learned counsel for the department whereas none represented the respondent registered persons. The honourable apex Court, vide its Order dated 05.07.2021, declined to interfere with the Hascol (supra) judgment, and dismissed the petitions in the following unequivocal terms:
"No case is made out for our interfering with the impugned judgment. The petitions are dismissed."
Thus, the legal proposition advanced by the Department in the present case whether delayed show-cause notices for sales tax on Price Differential Claims could be salvaged from the bar of limitation on the basis of alleged tax fraud- has already been squarely addressed and definitively answered in negative in Hascol (supra) case by the Honourable High Court of Sindh. Furthermore, the dismissal of the civil petitions by the Honourable Supreme Court, without interference, has conferred finality upon the said pronouncement,
Super Asia Mohammad Din6.
(ii) Whether the Price Differential Claims (PDC) received by the Respondent from the Government of Pakistan constitute "value of supply" within the meaning of Section 2(46) of the Sales Tax Act, 1990, and are therefore liable to sales tax-particularly in view of the Department's position that such payments were made on behalf of end-consumers and fall within the scope of value of supply as interpreted in the Tribunal's decision in the MEPCO7 case.
STR/20008, which as once interpreted as bringing PDCs within the sales tax net. However, as rightly pointed out by the learned AR, reliance on this letter is legally ustenable, se it was explicitly withdrawn through FBR circular C.No.1(30)STR/99 (Vol-II), thereby extinguishing any interpretative value it may, if any, have once held. Notably, both the withdrawn letter and the subsequent circular pertain solely to PDCs paid to oil refineries. The Department's attempt to extend the rationale applicable to refineries to OMCs is devoid of doctrinal and statutory foundationparticularly given that the very classification of PDCs, as consideration under Section 2(46) of the Act, was expressly reconsidered and reversed by the later FBR circular C.No.1(30)STR/99 (Vol-II). The said later FBR Circular, issued by the Revenue Division, Central Board of Revenue (Sales Tax Wing), clearly delineates the scope of "value of supply" and expressly excludes governmental subsidies, in the form of PDCs, from that definition in the case of oil refineries. The relevant clarification reads:
"So far as the question of taxability of the value of supply is concerned, it has to be as per section 2(46) of the Sales Tax Act, 1990 on the consideration in money, including Federal and Provincial duties and taxes, which the supplier (oil refineries) receives from the recipient for that supply. As the word 'recipient' is the key word, it is to be seen who is the recipient of the petroleum products. Undisputedly, the recipient in the case in hand are the OMCs and not the Government. Thus, any price paid by OMCs to the oil refineries shall be the value of supply, which constitutes the basis of tax, and any subsidy received from the Government is not a value of supply."
This clarification aligns with the statutory definition of "value of supply" in Section 2(46) of the Act, which provides that the value of supply in respect of a taxable supply is the consideration in money including all Federal and Provincial duties and taxes, if any, which the supplier receives from the recipient for that supply.
Zone-II, RTO, Multan (2016 PTD 1829)9, which was set aside10 by the Honourable Lahore High Court, hence, the same is not in field. However, such reliance of the Department demonstrates that it equates the legal character of PDCs with that of TDS, which was elaborated in Peshawar Electric Supply Company (PESCO) v. CIR, RTO, Peshawar (2020 PTD 1068), in the following terms:
"8. It is evident that subsidy is universally considered to be a welfare measure taken by the State to keep down the prices and to ameliorate the hardship faced by the society ..Subsidy granted by the government and any tax relating thereto cannot be collected from the consumers and thus the contention of subsidy being taxable is not tenable in view of basic philosophy of V.A.T. It is submitted that NEPRA fixes the price of electricity under a law and PESCO is bound to bill the consumers in accordance with that price. The sales tax is not payable on the amount of tariff subsidy received from the government as Social Welfare measure to keep the price of electricity at a lower level and uniform all over the cuntry ."
"Explanation.---It is clarified that the value of supply does not include the amount of subsidy provided by the Federal Government or Provincial Governments to the electricity or natural gas, including re-gasified liquefied natural gas, consumers and has never been chargeable to tax under the Act."
This amendment reflects the legislative intent that government-provided subsidies--such as Tariff Differential Subsidies (TDS) paid to the DISCOs (Distribution Companies) in Power sector---are excluded from the value of supply. With the enactment of this Explanation, the issue of non-levy of sales tax on TDS payments stands conclusively settled, leaving no scope for contrary interpretation under the Sales Tax Act, 1990. By necessary implication, this also applies to analogous mechanisms such as PDCs.
"money granted by the State or a public body to keep down the prices of commodities."
This description aptly captures the nature of PDCs, which are compensatory payments by the Government to OMCs for selling fuel at State-regulated prices below the OGRA-determined ex-refinery or import parity rates, and not for any supply made to the Government.
"11. .Looking at subsidy issue from another angle, assuming without conceding, if the subsidy amount paid by the government is taxable, then the sales tax relating thereto should also be paid by the Government and the Federal Board of Revenue should sort out this issue with the relevant Ministry. It is evident that subsidy paid by the Government of Pakistan is not the consideration received from the recipient of the supply. As the subsidy provided by the Government is sort of compensation rather than revenue in nature, therefore, the same cannot be brought under the ambit of taxable supplies, under Section 2(46) of the Sales Tax Act, 1990. Hence, the question of levy of sale tax on amount of subsidy received from Government does not arise."
MEPCO19 case (already set aside20 by the Honourable Lahore High Court), is misplaced. Since the value of supply must involve a direct transactional relationship between the supplier and the recipient. Accordingly, PDCs, being unilateral payments without such a relationship, fall outside the purview of "value of supply". This legal position has been consistently upheld21. Even assuming arguendo without conceding that sales tax was hypothetically applicable, liability could only attach to the Government of Pakistan as payer, not to the Respondent OMC, since there is no supply made to the Government nor any consideration received from it as a recipient of supply.
(iii) Whether the imposition of default surcharge under Section 34 and penalty under Section 33(13) of the Sales Tax Act, 1990 is legally sustainable, in view of the Department's stance that the Respondent committed tax fraud by not charging sales tax on Price Differential Claims (PDCs) on petroleum products.
Conclusion
Disclaimer / Note: We have reproduced the judgment for facilitation of readers; however, the readers must study the original or certified copy of the above said judgment before referring it in any Court of Law. The judgment as reproduced above is a reported judgment available in law magazines and journals namely: 2025 PTD 1803