THE COMMISSIONER OF COMMERCIAL TAXES AND OTHERS ETC. versus R. S. JHAVER AND OTHERS ETC.

148

THE COMMISSIONER OF COMMERCIAL TAXES AND A OTHERS ETC. v ... R. S. JHA VER AND OTHERS ETC. August 9, 1967

[K. N.

WANCHOO C. J., R. S. _BACHAWAT V. RAMASWAMJ, B

G. K. MITTER AND K. S. HEGDE, JI.] Madras General Sales TlllX' Act, l of 1969, •. 41-ocope of-sub sec. (2) granting power to inspect-Whether includes . power . of search-sub-section (4) giving power to officer confiscating to give dealer an option to pay too: plus an additional amount before stage of first sale when ~ ordinarily becomes due-Whether !'epugnant to scheme of Act and invalid-Sub-sec. (3) authorising seizure and C sub-6<?ction (4) authorising confiscation.-Whether unreasona~le . res trictions and violative of Art. 19 (1) (f) and (g) of the Constitution. On August 19, 1964. officers belon~g to the Department of th_e appellant raided and searched the premises of a company and fore1- blv removed certain accounts and goods. 'I'he respondents challenged the department's action by wrU petitions filed in the High Court under Art. 226 of the Constitution praying that the articles seized D should be returned. It was contended by the petitioners that on a proper construction of section 41 of the Madras General Sales Tax Act, No. 1 of 1959, the officers of the Department had no authority to search the premises and seize any account books or goods found there; that if section 41(4) authorised seizure and confiscation of goods, it was beyond the legislative competence of the State Legis lature, for it was not covered by item 54 of Li~t II of the Seventh Schedule to the Constitution relating to "taxes an the sale or pur- E chase of goods"; and that if various provisions in s. 41 were capable of being construed as authorising search and seizure, they were violative of Art. 19(1)(f) and (g) of the Constitution.

The High Court allowed the petitions holding, inter alia, that s, 41 (2) did not permit a search being made and only provided for inspectiion; the power of seizure or confisc.,tion in s. 41(4) was be yond the legisla!JWe competence of the State Legislature; and sub-sections (4) of s. 41 contained unreasonable res triction3 and were violative of Art. 19(1). (f) and (g). The High Court also found with respect to one of the petitions that the search war rant had been issued without the application of mind by the magis trate and was bad. On appeal to this Court;

(3) and

(2),

that I'

l

HELD : dismissing the appeal, (i) Anything recovered during the search must be returned the P:"titioners for the safeguards provided by s. 165 of the Code of Criminal. Procedure were not followed and in one case the finding of the High Cou:t that the search warrant issued by the magistrate was bad on vanous grounds was not challenged; furthermore any thing confiscated must also be returned as sub-section (4) of s 41 must fall. fl63 B-D].

·

to G

Clause (a) of the second proviso to sub-section (4) gives power B

to the officer ordering confiscation to give the person affected an option tv pay in lieu of confiscation, tin cases where the goods are taxable under the Act, the tax recoverable and an additional amount and thus provides for' recovery of tax even before tlie first sale in

COJDIISSIONER OF COMltERCIAL TAXES v. JHAVl<R (JVanc/100, 0. J,) 149

B

A the State which is the point of time in a large majority of cases for recovery of tax. As such it was repugnant to the entire scheme of the Act and sub-section (4) must therefore be struck down. As Clause (a) compels the officer to give the option and thus compels recovery of tax be.fore the first point of sale, which cannot have occurred in cases of goods seized from the dealer himself, it is clearly intended by the legislature to go together with the main part of the Sectio.n and is not therefore severable. [l59F-160Dl.

(ii) Although generally speaking the power to inspect does not give power to search, where, as in the case of s. 41 (2) the power has been given to inspect not merely accounts registers, records, goods, etc,, but also to inspect the office!l, shops etc., these two powers to gether ·amount to givt>ng the c-oncerned officer the power to enter and search the offices etc. and if he finds any accounts or goods the offices, shops, etc., to ,:.nspect them. The High Court was therefore C wrong in holding that there was no power of search whatsoevel'

in

under sub-section (2). f154H-155f:l.

The proviso to sub-section (2) in providing

that all searches under "this sub-section" shall be made in actordance with the pro visions of the Code of Criminal Procedure, bears out the construc tion tha' the main part of sub-section (2) contemplates searches. Siniilarly it is clear kom sub-section (3) which gives power to seize (2) must (3) is

include the power of search for a seizure tinder sub-section not possible unless there is a search. fl56D-E. 158B-Cl

D accounts etc., in certain circumstances. that sub-section

The contention that as the main piirt of sub-section (2) does not provide for search of a purely residential accommodation and there fore the proviso is otiose must be rejected. Although generally a proviso is an exception to the main part of the section, it ls recognis- J ed that in exceptional cases, as in the present case, the proviso may

be a substantive pro\<ision itseU. fl56D-Fl.

Blwndda U•ban District Council v. Taff Vale Railway Co .. L.R. (1909] A.C. 253: Commissioner of Income-tao: v. Nandlal Bhandari & Sons (1963) 47 I.T.R. 803, and State of Raiasthan v. Leela Jain. [1965] 1 S.C.R. 276, referred to.

r

(ii) Sub-9ections (2) and (3) of s. 41 are not violative of Art. 19 as they are j)l'Otected by cJ.auses (5) and (6) of Art. 19 of the Consti tution. fl62F -<n

The High Court had wrongly assumed that the pmvisions of the Criminal Procedure Code did not apply to a search under s. 41(2) .' fo view of the safeguards provided in s. 165 Cr. P.C. and in Chapter Vlt ot that Code. it cannot be !laid tlrnt the power to search provi· G · ded in sub-seotim (2) lis not a reasonable restriction keeping in vi:ew the object of the search, namely, prevention of evasion of tax fl61E- <Jl.

.

B

The mere fact that the Act gives power to <Jovernment to em power any officer to conduct the search is no reason to strike down the provision for· it cannot be assumed that Government \\'$11 not empower officers of proper status to make search.es. rt61J..H].

To exercise the power of seizure under sub-section (3) the off\. cer concerned has to rieco,rd his reasons in writing, has to give a r& ceipt for the .accounts seized, ~d can only retain. the items seized beyond a peruod of 30 days with the permission of the next higher ofll.cer, These are sufficient safeguards and the restriction, if any, on

100

SUPREME COURT REPORTS

(1968) l S.C.R.

the right to hold property and the right to carry on trade by sub- A section (3) must therefore be held to be a reasonable restriction. [162- D-Gl.

[While. the court held that the Legislature has power to provide for search and seizure in connection with taxation laws in order that evasion may be checked, it did not decide the general question whe ther a power to confiscate goods which are found on search and which are nQI entered in account books of the dealer is an ancillary B power necessary for the pwrp06e of stopping evasl.on of tax. [159C-D]. K. S. Papanna and another v. Deputy Commercial Tax Officer,

Gunkakal, (1967) XIX S.T.C. 506; referred to.

Qvn. APPELLATE JURISDICTION: Civil Appeals Nos. 150-154

of 1961.

Appeals from the judgment and order dated February 26, o

1965 of the Madras High Court in Writ Petitions Nos. 1321, 1456. 1495, 1496 and 1553 of 1964.

S. V. Gupte, Silicitor-General, V. Ramaswamy and A. V.

Rangam, for the appellant (in C:As. Nos. 150, 153 of 1967).

K. N. Mudaliyar, Advocate-General, Madras, V. Ramaswamy D

and A. V. Rangam, for the appellant (in C.A. No. 154 of 1967).

N. C. Chatterjee and R. Ganapathy Iyer, for the respondents

(in·C.As. Nos. 150, 151 and 154 of 1967). A. G. Pudissery, for the intervener.

The Judgment of the Court was delivered by

Wanchoo, C. J.-These five appeals on certificates granted by the Madras High Court raise commcm questions of law and will be dealt with together. We .shall give brief facts in one of the appeals (No. 150 of 1967) arising out of writ petition No. 1321 al 1964 in order to understand the questions that fall to be decided in the present appeals. On August 19, 1964, at about 5.00 p.m., l the officers of the Commercial Tax Department (hereinafter re ferred to as the Department) raided the premises of Zenith Lamps and Electricals Ltd., (hereinafter referred to as the Ccmpanyl. It is said that the premises were searched and a suit-case was seized and forcibly removed by the officers who made the raid, in spite of the fact that they were informed that the box did not contain 41 any palJers or documents belonging to the Company and its con tents consisted merely of personal effects of one of the Managing Directors, namely, Shri Ramkishan Srikishan Jhaver. The raid and search were made by tlie authorities concierned on infonna tion that Shri Geonka, one of the Directors of the Company, had removed a box containing secret accounts relating to it. The main contention of the petitioner in support of his prayer that the B articles. seized should be returned to him was under three heads. It was first contended that on a proper constr.uction of section 41 of the Madras General ·Sales Tax Act, No. 1. of 1959 (hereinafter

•

OOKMISSIONER OF COMMERCIAL TAXES •. JIU.VER (Wanchoo, O.J.)

151

A referred to as the Act), the officers of the Department had no authority to search the premises and seize either the account books or the goods found therein. Secondly, it was cont.ended that if sedion 41(4) authorised seizure and confiscation of goods, it was beyond the legislative competence of the State Legislature, for it could not be covered by item 54 of list II of the Seventh Sche· B dule to the Constitutioo relating to "taxes on the sale or purchase of goods." Lastly, it was contended that if various provisions in s.41 were capable of being construed as authorising search and seizure, the provisions contained therein were unconstitutional in view of Art. 19(1) (f) and (g) of the Constitution.

It is not necessary to refer to the facts in the other petitions G which have resulted in the other appeals before this Court because in those cases also there was search and seizure by the officers of the Department and their action is being attacked on the same the State grounds. All the petitions were opposed on behalf of Government and its case was-firstly, that s.41 authorised search and seizure; secondly, that the State Legislature was competent to D enact s.41(4) under item 54 c-f list II of the Seventh Schedule to the Constitution; and thirdly, that the· provisions in question did not offend Art. 19(1) (f) and (g) of the Constitution and were in any case protected by Art. 19(51 and (6).

1

inspection, and

made thereund'er, as it only provided for

The High Court held that s. 41(2) did not allow searcli being that i search was a different thing altogether from inspection. The High Court further held that if s.41 (2) pro\lided for search it would be within the legislatve competence of the State Legslature. The High Court took the view that the power of seizure and confisca tion of goods contained in sub-section (4) could not be said to he ancillary and incidental to the power to tax sale or purchase of goods and therefore this provision was beyond the legislative com petence of the State Legislature. Finally, the High Court held that sub-sections (2), (3) and (4) of section 41 were unconstitutional as rights they were unreasonable restrictions on guaranteed under Art. 19(1) (f) and (g) of the Constitution. Besides the above, the High Court also found with respect to one of the petitions that the search warrant issued for the search of the resi- G dential house by the magistrate disclosed that the magistrate had not applied his mind at all to the necessity of the search of he residential house, for columns in the pril)ted search warrant which should have been struck out were not so struck out. Further the gaps in the printed form which should have been filled in before the warrant was issµed had not been filled in. From these two cir· ~ cumstances the High Court cdii.cluded that the search warrant for : the residential house had been issued without the application of mind by the magistrate to the necessity of the search of the resi dential h,ouse. Ute l{igb Court further found that s.41(4) was no complied with Sirictlv ~fpre conliscation was ordered and no pro

the fundamental

lli2

SUPREllE COURT REPORTS

[1968] l s.c.B.

per opportunity was given to the dealer to show that the goods .&. seized and confiscated were not accounted for in his accounts. I11 ~e result therefore the High Court allqwed all' the petitions and the directed that the documents, things and goods covered by petitions should be returned to the petitioners along with photo graphs, negatives. translations and notes made by the Department from the accoonts etc. The State of Madras then applied for and B obtained certificates from the High Court to appeal to and that is how the matter has come before us.

this Court

The same three questions which were raised before the High· Court have been raised before us on behalf of the appellant. Be fore, however, we deal with them we would briefly refer to the ,provisions of the Act which are material for our purposes. Section 0 3 is the main charging section which provides that "every dealer whose total turnover for a year is not less than Rs. 10,000 ........ . shall pay a tax for each year at the rate of 2 per cent of his taxable turnover." The point at which tax has to be paid on single point taxable goods is indicated in the First Schedule to the Act and that will show that in a large majority of cases the tax has to be paid at the point of first sale in the State, though in some cases it has D· to be paid at the point of first purchase or of last purchase in the State. Section 4 is another charging section in respect of declared goods and the Second Schedule to the Act deals with the point at which tax has to be paid in respect of such goods. That Sche dule also shows that in a majority of cases the tax has to be paid at the point of first sale in the State, though in some cases it has B to be paid at the point of first purchase in the State or the last purchase in the State. Certain goods are exempt from the tax under the Act as provided in the Third Schedule and do not thus form part of the taxable turnover, though they will he a part of the turn over for purposes of calculating the total turnover per year. The Act provides for registration of firms and of dealers. for appoint- I' ment of officers, for collection of tax, for the levy of penalty, and for appeals and revisions. It also casts a duty on dealers to main tain a true and correct account. Then comes section 41 with which we are particularly concerned. It is in these terms:

"(!) Any· officer empowered by the Government in this behalf may, for the purpose of this Act, require any dealer to produce before him the accounts, registers, re- cords and other documents and to furnish any other in formation relating to his business.

(2) All accounts, .registers, records and other docu ments maintained by a dealer in the course of his busi ness, the goods in his possession and his offices, shops, godowns, vessels or vehicles shall be open to' inspection at all reasonable times by such officer :

(not Provided that no residential accommodation being a place of business-cum-residence) shall be entered

G

COJIM.lBSlONhll OF COllMERCIAL TAXES v. JHAVER ( ll'anchoo, v. J.) HIS.

A

B

c

D

E

F

G

into and searched by such officer except on the authority of a search warrant issued by a Magistrate having juris diction over the area, and all searches under this sub section shall, so far as may be, be made in accordance with the provisions of the Code of Criminal Procedure,. 1898 (Central Act V of 1898).

. (3) If any such offic~r has reason to suspect that any dealer is attempting to evade the payment of any tax, fee or other amount due from him under this Act he may. for reasons to be recorded in writing, seize such accounts. registers, records or other documents of the dealer ns he may consider necessary, and shall give the dealer a receipt for the same. The accounts, registers, records and ao:c:· ments, so seized shall be retained by such officer cn!y for so long as may be necessary for their examination and for any inquiry or proceeding under this Act.

Provided that such accounts,

registers and docu ments shall not be retained for more than thirty days at a time except with the permission of the next higher authority.

(4) Any such officer shall have power to seize and confiscate any goods which are found in any office. shop. godown, vessel, vehicle, or any other place of business or any building or place of the dealer, but not accounted for bv \he dealer in his accounts. re~isters. records and other documents maintaim:d in the -course cf hi> busi ness.

Provided that before ordering the confiscation of goods under this sub-section the officer shall give the person affected an opportunity of being heard and make an inquiry in the prescribed manner:

Provided further that the officer ordering the confis cation shall give the person affected option to pay in lieu of confiscation-

(a) in cases where the goods are taxable under this Act, in addition to the tax recoverable, a sum of money not exceeding one thousand rupees or double the amount of tax recoverable, whichever is greater; and

(b) in other cases, a sum of money not exceeding

L

one thousand rupees.

Explanation-It shall be open to the Government to empower different classes of officers for the purpose of ta king action under sub-sections (1), (?.1 and (3)'"

JM

SUPREME COUH'l' REPORTS

[1968) l S,C.R.

It will be seen from the above brief review of the provisions A

of the Act that it mainly deals with sales tax to be levied at the point of first sale in the State. though there is also provision for purchase tax in certain cases. It is in this background that we have to consider the construction of s.41 of the Act. So far as sub-s(I) is concerned, there is no difficulty. It empowers any officer, em powered by the Government in this behalf. to require any dealer B to produce before him the accounts registers. records and other documents and to furnish any other information relating to his business. It may be mentioned here that the Government has em powered all officers of the Department not lower in rank than the Assistant Commercial Tax Officer. all officers of the Revenue Department not lower in rank than an Inspector and all officers of c tlie Police Department not lower in rank than a Sub-Inspector. to act under s.41. sub-ss. (2) to (4). Presumably, so far as sub-s. (I) is concerned. only officers of the Department can act under the pro vision. However. there is no dispute with respect to that sub-sec tion as the power has to be exercised fcir the purpose of the Act i.e .. with reference to assessment proceedings at all stages includ ing recovery of tax and prosecution for offences. It is not disputed D that the power under sub·s. (!) can only be exercised to require a de1ler L> produce accounts etc. relaing to his busine>s and net that of any body else.

The main dispute centres round the interpretation of sub-s.(2) cf s.4 l. The contention on beh,lif of the respondents is that that provision did not authorise search of nremises but merely provid- E ed for inspection thereof at ali reasonnble times by the empower- eu officer. We shall first deal with the main part of sub-s. (2) to the proviso. Clearly see what it p~ovic>s withc1,1t reference to s11b-s(2) prov' c:es for three things. namely-(i) all accounts. regis ters. records and other documents maintained bv a dealer in the ccurse of his business shall be open to inspection at all reasonable F times, (ii) the goods in the possession of the dealer shall also be open to inspection, :•nd (iii\ the dealer's offices, shops, godowns, vessels er \·ehicks shall also be open tci inspection. There is no doubt that there are no specific words in sub-s. 12) giving power of search. But if we read the three powers conferred by sub-s.12> it should not be difficult to hold that search is included therelin. It will be seen that sub·s.(2) differs from sub-s.(]) in one respect. G In sub-s.(I) the dealer is required to produce his accounts etc. and to furnish other information relating to his business and it is left to the dealer to produce wh:it accounts he may say he has. The that a dealer may legislature was however cognizant of the fact not produce all accounts or furnish all information even though H required to do so under sub-s.(]). Therefore, sub-s.(2) provides that all accounts etc. of the dealer shall be open to inspection. It also provides that the dealer's offices. shops. godowns, vessels C1r vehic les shall be open to inspection. It is true that generally speaking a power to inspect does not necessarily give power ta search. But

·COi\t:.'uJ~SlO!\t:Jt OF COMl\ilERCTAL TAXI:.:S v • . JHAVER. t ll'ani:.:1100,

('. J.)

155

A where. as in this case, the power has oew given to

inspect not merely accounts, registers, re.cords and other documents maintain e:I by a dealer but also to inspect his offices, shops, godowns, ves sel> or '.<ehicles, it follows that the empowered officer would have the right to enter the Gf!ices etc. for purposes of inspection. Natu rnlly his inspection will be for purposes of the Act i.e., for the pur- B pose of seeing that there is no evasion of tax. If therefore during his inspection of offices etc. the empowered officer finds· any ac counts, registers, records or other documents in the shop, those ac inspection. Reading counts etc. will also be open to therefore the empowered these two provisions together, it is clear that officer has the right to- enter the offices etc. and to inspect them, the and if on such inspection he finds accounts etc. he has also -0 power to inspect them. and to see if they relate to tk business. These two powers taken together in our opinion me<1n that the em powered officer has the power to search the office etc. and inspect accounts etc. found therein. Though therefore the word "search" has not been used in sub-s.(2) these two powers of entering the offices etc. for inspection and of inspecting. every kind of account together 2 ,,d amount to giving the officer concerned the power to enter search the offices etc. and if he finds any account in the 1.>ffices, shops etc. to inspect them. Otherwise we can see no sense in the legislature giving power to the empowered officer the office> etc. for the purpose of inspection as the officer ClmCerned would only do so for the purpose of finding out all accounts etc. E maintained by the dealer and if necessary to in>pcct them for the purposes of the Act. We cannot therefore a.,rree with the High Court that there is no pow~r of search whatscever in sub-s(2) be cause the sub·section in terms does not provide for search.

n maintained by a dealer with

respect to his bu.siness

to enter

Similarly the officer has be•~n given the power to inspect the goods in the possession of the dealer. He has also the power to F enter the dealer's offices etc. for the purpose of such inspection, Combining these two powers together it follows on the same rea soning that the officer has the power to search for the gc-0ds also and to inspect them if found in the offices etc. of the dealer. We have therefore no hesitation in coming to the conclusic,n that th~ power of search is implicit in sub-s.(2) with reference both to the G accounts etc. maintained by the dealer and the goods in the pc'S· session of the dealer. It also seems to us that this power in sub-s. 12) is confined to offices, shops, godowns, vessels and vehicles of the dealer and does not go beyond them, It is urged on behalf of the appellant that as the officer is entitled to inspect all accounts etc. maintained by the dealer he can search for them even in the H dealer's residential premises. But we do not agree with this conten tion, for we have found the power of search by reading the p<.1Wer of inspection of offices etc. with the power of inspection ctf ac counts etc. and the power of inspection of goods. Sub-s. (2) docs not give any power of inspecting the residential accommodation

156

SUPREME COURT REPORTS

(1968) l S.C.R.

of the dealer and therefore it cannot be read as giving the power A of search of the residential house for purposes of the Act. But whether it is a case of business·cum-residence, the power of search will be there, for under suJ:>.s.(2) all offices, shops, godowns, ves sels or vehicles of the dealer are open to inspection.

Let us now see what light is thrown on the interpretation cf B

sub-s.(2) by the proviso and whether the interpretation we have put on the main part of sub-s.(2) is supported by the proviso. The proviso lays down that (i) no purely residential accommodation shall be entered into and searched by such officer except on the authority of a searci1 warrant issued by a Magistrate having juris diction over the area and (ii) that all searches under this suJ:>.sec tion shall, so far as m''Y be, be made in accordance with the pro- C visions cf the Code of Criminal Procedure. 1898. The latter part of the proviso clearly shows that the main part of sub-s.(2) con templates searches, for it refers to all searches made under this sub-section. If the reference in the second part of the proviso was confined only to searches made under the first part of the proviso, the words would have been "all searches under this proviso shall D be made in accordance with the provisions of the Code of Crimi- nal Procedure." The proviso therefore bears out the construction that we hsve put on the main part of sub-s.(2). But it is urged that a proviso carves out something which is already contained in the main provision and the main provision at any rate does not pro vide for search of a purely residential accommodation. Therefore the proviso is otiose. That is what the High Court also seems to E have held. Generally speaking, it is true that the proviso is rn ~;:­ ception to the main part of the section; but it is recognisecl that in exceptional cases a proviso may be a substantive provision itself. We may in this connection refer to Bilondda Urban District Coun- cil v. Taff Vale Railway Co.('), where s.51 of the Act there under consideration was framed as a proviso to preceding sections. The F Lord Chancellor however pointed out that "though s.51 was fram- ed as a proviso upon preceding sections, but it is true that the lat- ter half of it, though in .form a proviso, is in substance a fresh en actment, adding to and not merely qualifying that which goes before.".

.

Again in Commissioner of Income-Tax v. Nandlal Bhandari & Som(') it was observed that 'thogh ordinarily a proviso res tricts rather than enlarges the meaning of the provision to which it is appended, at times the legislature embodies a substantive pro vision in a proviso. The question, whether a proviso is by way of an exception or a condition to the substantive provision, or whe ther it is in itself a substantive provision, must be determined on H the substance of the provisq and not its form.".

G

(') J,, l\. [1909] A.C. 2.;~.

(') (l!l63)47 I. 1·. R. 803.

COllllISSIONER OF COMMERCIAi· TAXES v.

JHAVER (lfonchoo, 0. J.) Ui7

A

Finally in State of Rajasthan v. Leela Jain(') the question arose whether the proviso in the Act under consideration there was a limiting provision to the main provision or was a substan tive provision in itself. This Court observed that "so far as general principle of construction of a proviso is concerned, it has been broadly stated that the function of a proviso is to limit the main B part of the section and carve out something which but for the pro viso would have been within the operative part.'.' But it was fur ther observed that the proviso in that particular case was really not a proviso in the accepted sense but an independent legislative provision by which to a remedy which was prohibited by the main part of .the section, an alternative was provided.

c

These three cases show that in exceptional circumstances a proviso may not be really a proviso in the accepted sense but may be a substantive provision itself. It seems to us that the proviso under consideration now is of this exceptional nature. As we have already held, there is no provision in the main part of the sub-sec tion for searching purely residential premises. Therefore when the proviso provides for such search it is providing for something in- D dependent of the main part of the sub-section. Further the second part of the proviso which talks of searches made under this sub section shows that the power of inspection provided in the main part of the sub-section is tantamount to a power of search. We have already come to that conclusion independent of the proviso. All that we need say here is that the proviso also shows that that interpretation is correct. We may add that we are not precluded from looking at the proviso in interpreting the main part of the · sub-sectiop. We may in this connection refer to the following pas sage in Maxwell on lriterpretation of Statutes, Eleventh Edition, at p.155 where it is observed-

E

r

G

R

"There is no rule that the first or enacting part is to be construed without reference to the proviso. 'The proper course is to apply the broad general rule of construction. which is that a section or enactment must be construed as a whole, each portion throwing light, if need be, on the rest'. "The true principle undoubtedly is that the sound inter- pretation and meaning of the statute, on a view of the enacting clause, saving clause and proviso, taken and construed together is to prevail."

But as we have said already even without looking at the proviso, our conclusion is that the main part of sub-s.(2) provides for sear ches and the proviso merely enforces that conclusion. We there- fore cannot agree with the High Court that sub-section(2) does not provide for search of the business premises of a dealer, in the shape ol offices etc.

·

(') [1961l] 1 S.O. R. 276

158

SUPREME COUR1' REPORTS

[1968] l s.c.n.

Then we come to sub-section(3). That provides for the seizure A

of accounts etc .. if the empowered officer has reason to suspect that any dealer is attempting to evade the payment of any tax, fee or other amount due from him under the Act. If he has such rea son he may for reasons to be recorded in writing seize such ac counts etc. Now if sub-s.(2) gives power of search, sub-s.(3) merely provides further power to- seize the accounts etc. found on such B search. W0 have already held that sub-s.(21 gives the pcwer of sub-s.(3) is merely complementary to search ancl in that case sub-s.(2) and gives the empowered officer the power to seize the accounts found in cert·;in circumstances. !f anything, sub-s.!3) alsc• bears out that sub-s.12) must include the power of search for a seizure under sub-s.(3) is not possible unless there is a search. Reading therefore sub-s (2>. its proviso and rnb-s.(3) together we C l'rc of opinion that they provide fer search and seizure without '.>'arrant except that if the place searched is a purely resic'.ential accommoJation it cannot be -searched without a search warrant from a Magistrate. It naturally follows that if it cannot be search- ed without a search 'warrant it is not open to the empowered officer to seize anything from a residential acccmmodation for he D cannot enter and search it unless he has a warrant from a Ma2is- trate to do so.

-

if they E

The next question relates to the legislative competence of the State legislature to enact sub-s.(4). This sub-sectic·n provides for seizure and confiscation of any goods found in any office etc .• in cluding purely residential accommodation after search are not accounted for in the accounts maintained in the course. of the dealer's business. The sub-section thus completes the process which starts with sub-section (I) and gives authority to the em powered officer to sei?e and confiscate. gocds of the nature indi cated therein. The contention on behalf of the respondents is that the power of confiscation provided by sub-s. (4) was not within the F competence of the State Legislature under item 54, List Il, of the Seventh Schedule relating to tax on sales and purchase of goods. On the other hand, the appellant justifies the power to seize ·and confiscate goods on the ground that it is ancillary and inci dental to the power to tax, for it is necessary to have such power in order to check evasion of t::ix and make it unprofitable. The Hi2h Court held that the Act was not a law on goods and that a Q:. provision for confiscation of goods found on search was Jleither incidental nor ancillary to the power to tax contained in item 54. List II of the Seventh Schedule. Now it has not been and cannot be disputed that the entries in the various Lists of the Seventh Schedule must be given the widest possible interpretation. It is also not in doubt that while making a Jaw under any entry in the H Schedule it is competent to the legislature to make all such inci dental and ancillary provisions as may be necessary to effectuate the law; particularly it. cannot be disputed that in the case of a taxing statute it is open to the legislature to enact provisions which

C0l4MISSIO!IER OF COMMERCIAL.1'AXES v. JH.lVEI• (ll'anclwo, c. J.)

15!)

A would check evasion of tax. It is under this power to check eva sion that provision for search and seizure is made in many taxing statutes. It must therefore be held that the legislature has power to provide for 'search and seizure in connection with taxation laws in order that evasion may be checked. It is further urged on be that confiscation of goods which are not half of the appellant to chec~ evasion of H•x by making it unprofitab:e fer deal~rs to secrete goods in which they ar~ c\e·11ing. Reliance in this connec tion is placed on K. S. Papimna and another v. Deputy Com mercia! Tax Officer, Guillaka!.('l where the Andhra Pradesh High Court upheld an analogom provision in the Andhra Pradesh General Sales T<lx Act. C"fo. 6 of 19571, in s.2S (I"'

B entered in accounts is merely a provision of ancillary nJture

c

We do not propose in the present case to decide the general question whether a power to confiscate goods which are found on search and which are not entered in r.ccCiunt books of the dealer is an ancillary power necessuy for the purp~se of stopping eva si0n of tax. Assuming that is so. we have still to see whthet' sub-s.(4) of the AcLcan be upheld read along with the second pro- D viso thereof. It may be added that there is no such provision as the second proviso in s.28 of the Andhra Pradesh General Sales Tax Act. We do not therefore propose to express any opinion as to the correctness of the abow decision of the Andhra Pradesh High Court. Sub-s;(4l of s.41, before it wa' amended by the Madras General Sales Tax (Second Am~ndm~nt) Act, from April 1. 1961, E had only the first proviso with respect to giving an opportL!nity of being heard and making an enquiry in the matter before ordering confiscation. By the amendment of 196 l, the second proviso was added. That provides that the officer ordering the conf)scation shall give the person affected option to pay in lieu of confiscation. in cases where the goods are taxable under th~ Act. in addition to the tax recoverable, a sum of money not exceeding: one thou~ sand rupees or double the amount of tax recoverable., whiciiever is greater. '[bis provision clearly requires the officer ordering con fiscation to do two things-(i) to order the person concerned to pay the tax recoverable. and (ii) to pay a sum of money not exceeding one thousand rupees or double the amount l'f tax recoverable, whichever is greater. We haYe nlreach ir,dicated that in a lar::e ... the tax is payable at the majority of cases covered by point of first sale in the State. nut under cUal of the second nro viso the tax is ordered -to be recdvered even before the Sl\fo, - in addition to the peJla 119 not exceeding Rs. l,000 or dlmble the amount of tax ·recoverable whichever is greater. Therefore d .(al of the second. prn\'iso~is clearly repugnant to the general scheme U C'f the Act which in lbe majority of the •ases provides for recovery of tax at the point of first sale in the State. In view of thi:; rcrmg:· nancy one or other of these two pnwisce>11~ must fall C!earlv it

.- the Act

G

F

....

I

( 1) l!QG7) XIX 8.T.C. 50l'.

160

SUP.REM:B COU.RT REPORTS

[1968] l s;c.R.

is cl. (a) in the proviso which under the circumstances must fall, A .for we cannot hold that the entire Act must fall because of this inconsistency with respect to recovery of tax under cl.(a) of the second proviso even before the taxable event occurs in the large majority of cases which would be covered by the Act. We are ;therefore of opinion that cl.(a) of the second proviso being repug nant to the entire scheme of the Act, in so far as it provide9 for B .recovery of tax even before the first sale in the State which is the point of time in a large majority of cases for reccivery of tax, must fall, on the ground of repugnancy.

recovery of tax even in

It is next urged that in any case the seccmd proviso is sever able and therefore only this pro"<iso would fall and not the main part of sub-s.(4). We are however of opinion that cl. (a) of second proviso is not severable. We have already indicated that original- C ly the second proviso was not there in the Act. It was brought in by the amendment of 1961 and it compels the officer to give the those cases •option, and thus compels where the tax is recoverable only at the first point of sale in the State which naturally has not occurred in cases of goods seized from the dealer himself. Considering the fact that the legislature D added this compulsory proviso later, it is clear that the legislature intended that the main part of the section and the second proviso should go together. It is difficult to hold therefore that after the introduction of the second proviso in 1961, the legislature could have intended that the main part of sub-s.(4) 'should stand by itself. We are therefore of opinion that sub-s.(4) with the two pro- E visos must falJ on this narrow ground. We therefore agree with the High Court and strike down sub-s.(4) but for reasons different from those which commended themselves to the High Court.

Then we come to the question whether sub-ss.(2) and (3) of s.41 of the Act which have been struck down by the High Court on the ground that they are unreasonable restrictions on the right to hold property and to carry on trade have been correctly struck F down. The main reason which impelled the High Court to strike down sub-s.(2) was that there was no safeguard provided for search made thereunder. The High Court held that s. 165 of the Code of Criminal Procedure did not apply to searches made under sub-s(2). It also held that the State Government was given the power to empower any officer to make a search under sub-s.(2) G and this meant that even an officer of low status could be em powered. Consequently the High Court struck down sub-s.(2) on the ground that it gave arbitrary power of search which could be made even by an officer of low status. It is true that search under this sub-section can be made by any officer empowered by Gov ernment in this behalf; but we have no reason to think that Gov- B ermnent will not empower officers of proper status to make sear ches. In this very case, we find that the Government empowered an Assistant Commercial Tax Officer, a Revenue Inspector and Inspector of Police to make searches. Considering the a Sub

'COMMISSIONER OF COMMERCIAL TAXES v . . JHAVER (Wanchoo. c. J.)

161

JI.

:B Act may be legion throughout the State, and

large number of dealers who are coV1lred by the Act, it cannot be said that these officers are of such low status that they cannot be ·depended upcn to make a search with due care and caution. We cannot also forget that in a case ol this kind the Government can not find sufficient number of officers of what may be calle4 high status to make searches, for dealers who may be covered by the if such searches ~ould only be made by high officers there would not be enough officers available to do so. The fact that the Act gives power to Government tQ/ empower any officer is reason to strike it down for, as we have said, the Government will see that o(ficers of proper statas are empowered. Nor do we think that an Inspector of Revenue Assistant Commercial Tax Officer or an C Department or a Sub· Inspector of Police Department is not an officer of proper status to .make searches under this. provision.

therefore no

D

We are also of opinion that though sub-s.(2) itself provides· no safeguards and might have been open td objection on that ground, there is a provision in the proviso to sub-s.(2) which lays down that all searches under this sub-section shall, so far as may be, be made in accordance with the provisions of the Code of Criminal Procedure. Therefore, the provisions of the Code of Criminal Pro ~edure, so far as may. be, apply to .all searches made under sub-s. (2). It appears that in the High Court, the parties as well as the Court assumed that s.165 of the Code of Criminal Procedure E would not apply to searches under sub-s.(2). We cannot see any warrant for this assumption. The proviso clearly lays down that all searches made under this sub-section, so far as may be, shall be made in accordance with the provisidns of the Code of Crimi nal Procedure. Thus all provisions cootained in the Code of . Cri minal Procedure relating to searches would be applicable-to sear ches under sub-s.(2), so far as may be. Some of these provisions · F are contained in Chapter VII but one such provision is contained in s.165. it is true that that section specifically refers to an officer in-charge of a police-station or a police officer making an investi gation. But when the proviso applies the provisions of the Code of Criminal Procedure to all searches made under this sub-section, as far as may be possible, we see no reason why s.165 should not 9 apply, mutatis mutandis, to searches made under sub-s.(2). We are therefore of opinion that safeguards provided in s. 165 also apply to searches made under sub-s. (2). These safeguards are-(i) the em powered o.fficer must have reasonable grounds for believing that anything necessary for the purpose of recovery of tax may be found in any place within his jurisdiction, (ii) he must be of the opinion that such thing cannot. be otherwise gdt without undue B delay, (iii) he mus~ r.ecord in writing the grounds of his belief, and (iv) he must specify in such writing so far as possible the thing for which search is to be made. After he has done these things, he ca!l make the search. These safeguards. which in our .opinion

L/P(N)ISCI-12

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SUPB]IJ[E COURT RBPORTS

(1968] 1 t.c.a.

apply to searches under sub-s.(2) also clearly show that the power & to search under sub-s.(2) is not arbitrary. In view of these safe guards and other safeguards provided in. Chapter Vil of the Code of Airoinal Procedure, whicli. also apply so far as may be to sear ches made· under sub-s.(2), we can see no reason to· hold that the restriction. if any, on the right to hold property and to carry on trade, by the search pr<>V.ided in sub-s.(2) is not a reasonable res- B. triction keeping in view the object of the search, namely, preven tion of evasion of tax.

Next we come to sub-s.(3), which as we have already stated, is complementary to sub-s.(2). It provides in addition to the sa,fe guards which have to be complied with when a search is made under sub-.s.(2), that the. officer may seize accounts etc. if he has 0 reason to suspect that any dealer is attempting to evade the pay ment of any tax etc. due from him under the Act. It also provides th.at the officer has to record his reasons in writing and we are of opinion that these reasons have to be recorded before the accounts are seized. It further provides that the dealer shall be given a re ceipt, and this means that the receipt 111ust be given as and when n. the accounts etc. are seized. Finally it provides that these accounts etc. shall be retained by such officer so long as may be necessary for their examination and for any ·enquiry or proceeding under the Act. These in our opinion are sufficient safeguards and the restriction, il any, on the right to hold property and th.i right to carry Oll trade by sub-s.(3) must therofore be held to be a reason !lble restriction. We may add that the proviso to sub-s.(3) has E' fixed the ,period for which the officer seizing accounts can keep them, namely, ~O days at a time, and if he wants to keep them for more than thirty days he has to take the permission of the next higher officef. This is an additional safeguard entitling the dealer concerned.fo get back the accounts after every 30 days, unless a higher officer has permitted the retention of accounts for a period F' longcr1 than 30 days. We cannot therefore agree with the High Court that sub-ss. (2) and (3) of s. 41 of the Act are unreasonable res\(ictions on the right to hold property or carry on trade for rrasons indicated. We are of opinion that they are reasonable res ,trktio~ wh1ch are protected by cls.(5) and (6) of Art. 19 of the 'Coru;titution.

G

We now pioceed to consider what order should be passed in the appeals in the view we have taken about the interpretation and validity of sub·ss.(2) and (3) of s.41 of the Act. We have al ready indicated that the High Court held that the warrant issued by the Magistra\e for search of the residental accammodation was !;ad because it showed that the Magistrate had not applied his If mind to the question of issuing it, inasmuch as there were por tions whkli should .have been struck out from the printed form nnd gaps whid1 should have been filled in. But this was not done.

OOMIU88IONEB 01' COMMERCIAL •J'AXFi! V. JHAVER (Wanchoa, 0. J.)

163

B

A That condusion of the High Court has not been challenged be fore us. The High Court has further held that a proper and rea to sonable opportunity was not given to the persons concerned show that the goods seized were not properly accounted for in their account-books, though this finding is not material now for we have held that sub-s.(4) falls in its entirety. It follows therefore that anything recovered from the search of the residential accom modation on the basis of this defective warrant must be· returned. It also follows that anything confiscated· must also be returned, as we have held that sub-s.(4) must fall. As to the accounts etc. said to have been seized, it appears to us that the safeguards provided under s.165 of the Code of Criminal Procedure do not appear to have been fellowed when the search was made for the simple rea- C son that everybody thought that that provision was not applicable to a search under sub-s.(2). Therefore, as the safeguards provided in s. 165 of the Code of Crimina I Procedure were not followed, anything recovered on a defective search of this kind must be re turned. It follows therefore that the final order of the High Court allowing the writ petitions must stand, though we do not agree D with the interpretation of the High Court with respect to sub-s.(2) and the finding of the High Court that sub-ss.(2) and (3) are ull' constitutional on the ground of their ·being unreasonable restric tions on the right to hold property and to carry on trade. The appeals therefore fail and are hereby dismissed. In view of our deci sion on the main question of law, we order parties to bear their own costs in all the appeals.

•

R.K.P.S.

Appeal• dismissed.