8. Vijay Krishnaswami vs. The Deputy Director of Income Tax (Investigation)
(2025) 177 taxmann.com 807(SC)
Prosecution – The complaint was filed by DDIT after sanction of PDIT before the Additional Chief Metropolitan Magistrate (E.O.II), Egmore, Chennai, on 11.08.2018 – Application under Section 245(C) was filed by the Appellant before the Settlement Commission later – On the date of lodging the prosecution, the finding of concealment of income or imposition of the penalty of more than ₹50,000/- was not recorded by the ITAT – Nothing was brought on record to show that any wilful attempt to evade the payment of tax was made by Assessee – No explanation had been put forth by Revenue to demonstrate as to why PDIT or DDIT did not comply the procedure while lodging prosecution in this case – The act of the authority in continuing prosecution was in blatant disregard to their own binding circular dated 24.04.2008 and in defiance to the guidelines of the Department – Further, in the settlement proceedings, Assessee had disclosed all material facts related to the computation of his additional income and fully satisfied the provisions of Section 245H – The Commission recorded a finding that overall additional income is not on account of suppression of any material facts and it did not disclose any variance from the manner in which the said income had been earned – As such the immunity from penalty under IT Act was granted in exercise of powers under Section 245H – Conduct of the authorities lacked fairness and reasonableness, and the High Court’s approach appeared to be entirely misdirected, having failed to appreciate the factual and legal position in right earnest
The Supreme Court held that the prosecution lodged with the help of proviso to Sub-section (1) to Section 245H was in defiance to the circular dated 24.04.2008, which was in vogue – the Revenue acted in blatant disregard to binding statutory instructions. Such wilful non-compliance of their own directives reflected a serious lapse, and undermined the principles of fairness, consistency, and accountability, which in any manner cannot be treated to be justified or lawful.
On 24.04.2016, search under Section 132 of the IT Act was conducted at the residence of the Appellant, and unaccounted cash of ₹4,93,84,300/- was seized. After taking statement of the Appellant under Section 132(4) of the IT Act, a show-cause notice was issued on 31.10.2017 as to why prosecution should not be initiated against him.
On assailing the same in the writ petition filed by the Appellant, it was dismissed on 17.11.2017 being premature, observing that issuance of show-cause notice is an administrative act and in absence of reply, it cannot be questioned in the writ petition.
The said order was put to challenge in Writ Appeal No. 1617 of 2017 which was dismissed as infructuous vide order dated 06.09.2020 taking into consideration the subsequent developments and the order of the Settlement Commission passed on 26.11.2019. The Division Bench observed that the complaint filed in furtherance to show-cause notice was not challenged before the learned Single Judge in a writ petition, therefore, the said issue cannot be looked into in this appeal, leaving it open to be decided in the appropriate proceedings.
During pendency, the Principal Director Income Tax (Investigation), Chennai, (in short “PDIT”) exercised power under Section 279(1) of the IT Act, and vide order dated 21.06.2018, accorded sanction to Deputy Director of Income Tax (Investigation), Chennai, (in short “DDIT”) to initiate prosecution against the Appellant. Thereafter, Respondent-DDIT filed complaint on 11.08.2018 against the Appellant for an offence under Section 276C(1) alleging wilful attempt to evade tax with respect to assessment year 2017-2018 and for not filing the correct return of income.
Being aggrieved, the Appellant filed quashing petition under Section 482 of Code of Criminal Procedure (in short “CrPC”) being Crl. O.P. No. 28763 of 2018 along with Crl. M.P. Nos. 16786 and 16787 of 2018, praying for quashing of the complaint and pending proceedings.
Pertinently, the Appellant also filed an application under Section 245C of the IT Act on 07.12.2018 before the Settlement Commissioner, Additional Bench, Chennai, (in short “Settlement Commission”) disclosing the entire additional income and sought immunity from levy of penalty as well as prosecution in the matter of alleged evasion of proposed tax.
The Settlement Commission in exercise of powers under Section 245D(4) of IT Act, partly allowed the said application vide order dated 26.11.2019 and granted immunity from levy of penalty, refraining itself to grant immunity from prosecution due to pendency of quashing petition before the High Court of Madras.
By the order impugned, the High Court dismissed the quashing petition and referring the averments of the complaint, observed that for the assessment year 2017-2018, the amount seized has not been shown in earnings, which may amount to evasion of proposed tax. The defence put forth by the Appellant was that the seized amount was an earning of the assessment year 2016-2017 and not of assessment year 2017-2018 for which settlement has been arrived at as per the order of the Settlement Commission. The said defence did not find favour on the pretext that it can be taken by the Appellant during trial. It was also observed that the complaint was filed prior and the application before the Settlement Commission was subsequent. Therefore, the stand of the Appellant indicating that the seized amount was income of the assessment year 2016-2017 may also be looked into during trial. The question of competence of DDIT to initiate the prosecution against the Appellant under Section 279(1) of the IT Act also did not turn in favour of the Appellant in the order impugned.
On the basis of the submissions as advanced by the parties, the Supreme Court was of the view that on the facts, the following questions fell for consideration:
i) Whether continuation of the prosecution initiated by the revenue Under Section 276C(1) against the Appellant after passing an order by the Settlement Commission, would amount to abuse of process of Court?
ii) Whether in the facts of the present case, the High Court was justified to dismiss the quashing petition filed by the Appellant, and if not, what relief can be granted?
The Supreme Court noted that Section 276C deals with two situations. Sub-section (1) pertains to a wilful attempt to evade tax, penalty, or interest that is ‘chargeable’, ‘imposable’, or related to ‘under-reporting of income’. In contrast, sub-section (2) addresses the wilful attempt to evade the ‘payment’ of any tax, penalty, or interest under the Act. Therefore, both sub-sections operate in separate spheres and different stages. The fundamental distinction between the applicability of sub-section (1) and sub-section (2) lies to the stage at which the offence allegedly occurs. Section 276C(1) is primarily intended to deter and penalize wilful and deliberate attempts by an Assessee for evasion of taxes, penalties and interest prior to their imposition or charging. The provision applies where there is a conscious and intentional effort to evade tax liability, distinguishing such conduct from bona-fide errors or differences in interpretation. The gist of the offence under Sub-section (1) of Section 276C lies in the wilful attempt to evade the very imposition of liability, and what is made punishable under this Sub-section is not the ‘actual evasion’ but the ‘wilful attempt’ to evade as described in the proviso to Section 276C.
The Supreme Court observed that for the allegations as alleged against Appellant, prosecution under section 279(1) was initiated by Respondent-DDIT in accordance with sanction given by PDIT. The Appellant also challenged the jurisdiction of the DDIT before the High Court, contending that she was not competent to initiate prosecution under section 279(1) of the IT Act.
On consideration of the provisions of section 279, the Supreme Court observed that, in addition to the other offences, looking to the allegations of the present case, the prosecution under section 276C may be lodged with permission of the PDIT. Sub-section (1)(a) creates a bar that the person shall not be proceeded under section 276C in relation to the assessment for the assessment year, of which penalty imposed or imposable on him, has been reduced or waived.
The Supreme Court further observed that the IT Act envisages a robust settlement mechanism under Chapter XIXA, which is titled ‘Settlement of Cases’. It was inserted by means of the Taxation Laws (Amendment) Act, 1975 (41 of 1975) w.e.f. 01.04.1976. The said amendment was brought pursuant to the recommendations of the ‘Direct Taxes Enquiry Committee’, popularly known as the ‘Wanchoo Committee’, report of December, 1971. ‘Chapter 2’ of the said report, titled ‘Black Money and Tax Evasion’.
In furtherance to recommendations of the Wanchoo Committee, an amendment was brought adding Section 245H, specifying the power of the Settlement Commission to grant immunity from prosecution and penalty.
According to the Supreme Court, on bare reading of the recommendations of the Wanchoo Committee, it was clear that the Assessee from whom the recovery of the unaccounted money has been allegedly reported, may apply before the Settlement Commission disclosing full and true income and the manner in which such income was derived. On such application, the Commission as it thinks fit, may grant immunity from penalty and prosecution of any offence under the IT Act or under the Indian Penal Code or under any other Central Act on such terms and conditions with respect to the subject matter covered under the settlement. The proviso to section 245H(1) is, however, an exception from granting immunity in case where the complaint has been lodged before the date of receipt of application for settlement. At the same time, the prosecution in either situation of section 276C(1) ought to be for wilful attempt to evade or pay tax. On literal construction of the first proviso, the prosecution initiated before the date of receipt of the application under section 245C is saved, and the second proviso restrict the Settlement Commission to grant immunity from the prosecution as specified therein.
According to the Supreme Court, the aforesaid provisions do not, in any manner, affect the basic principles of criminal law that the prosecution has to prove the case on its own. In the facts, for an offence under section 276C(1), for which a prosecution was lodged, wilful attempt to evade tax or penalty, which may be imposable or chargeable, mens rea of the Assessee is required to be proved. In absence, lodging such prosecution would result into futility.
Therefore, the ancillary question which arises is about the efficacy of the continuation of the complaint lodged, even though saved under the first proviso to Section 245H, hampering the power of the Settlement Commission to grant immunity from prosecution.
The Supreme Court, perusing the backdrop, from the recommendations of Wanchoo Committee till the date amendment was brought introducing Section 245H in the IT Act granting power of immunity to Settlement Commission, noted that the Revenue was facing the challenge of minimal prosecution and also for effectively proving the prosecution, what recourse ought to be taken was an issue before them. Simultaneously, the Assessee who in bona-fide manner had disclosed the excess earning specifying the source without any suppression, were facing unnecessary prosecution. Therefore, to streamline the said situation the revenue has issued guidelines time and again. In the guidelines, it was specified that when an Assessee is making an attempt to evade tax or its payment or penalty, if established, it is incumbent on the officers of the revenue to lodge the prosecution. In this regard, circular dated 24.04.2008 was published. Clause 3.3.1 (iii) of the said circular deals with the offences under section 276C(1) of IT Act. The relevant Clause of the said circular is reproduced as under:
“(iii) Offences Under Section 276C(1): Wilful attempt to evade taxes
All cases where penalty under Section 271(1)(C) exceeding ₹50,000/- is imposed and confirmed by the ITAT (if any second appeal has been filed) shall be processed for filing prosecution complaint.
The case for prosecution under this Section shall be processed by the A.O. preferably within 60 days of receipt of the ITAT’s order, if any.
The intent of the above scheme is indicative of the fact that the Department shall proceed to file prosecution/complaint only in those cases wherein penalty exceeding ₹50,000/- has been imposed by ITAT, within 60 days from the date of order of ITAT.”
The Supreme Court noted that the said guideline was based on a judgment of ‘M/s. K.C. Builders Ltd. vs. CIT (2004) 2 SCC 731, wherein the Supreme Court laid down that if penalty for concealment fails, the initiation of the prosecution on the basis of the same material also fails. Therefore, it was advised that after confirmation of concealment of penalty by ITAT, the prosecution may be lodged in terms as specified in the above circular dated 24.04.2008.
Similarly, on 09.09.2019, the Central Board of Direct Taxes (in short “CBDT”) in exercise of power under Section 119 of IT Act issued clarification qua the criteria to be followed for launching prosecution in respect of certain categories of offence under the IT Act, including Section 276C(1). The relevant portion is referred as under-
“iii. Offences Under Section 276C(1): Wilful attempt to evade tax, etc.
Cases where the amount sought to be evaded or tax on under-reported income is ₹25 Lakhs or below, shall not be processed for prosecution except with the previous administrative approval of the Collegium of two CCIT / DGIT rank officers as mentioned in Para 3.
Further, prosecution under this Section shall be launched only after the confirmation of the order imposing penalty by the Income Tax Appellate Tribunal.”
The Supreme Court noted that the departmental circular dated 24.04.2008, Prosecution Manual, 2009, and CBDT’s circular dated 09.09.2019, provide when the prosecution ought to be lodged by Revenue. The said Circulars have been issued to regulate the lodging of prosecution in genuine cases and to weed out the problems of the tax payers, and also to understand when can the prosecution for Section 276 ought to be lodged and continued. The said circular and clarification have been brought after the statutory scheme of Section 245H(1) and the appended proviso.
The Supreme Court noting the precedents, observed that the Supreme Court has unambiguously held that that the circulars issued by the Revenue are binding on the authorities, and can tone down the rigour of the statutory provision. Therefore, it could be concluded that the circulars as discussed above are binding on the authorities who are administering the provisions of the IT Act.
The Supreme Court, after perusal of the provisions of the IT Act, various circulars issued by the department and also the judgments referred hereinabove, held that if an Assessee has made suppression of income without disclosing the manner in which the excess amount was earned and concealed the account making wilful attempt to evade the tax which may be imposable and chargeable or payable, he/she is required to be prosecuted. Therefore, the recourse to lodge prosecution was made permissible subject to the department’s circular dated 24.04.2008 which provided for confirmation by ITAT in case the penalty imposed under Section 276C(1) is exceeding ₹50,000/-. The Supreme Court noted that the said circular was in vogue on the date of the grant of sanction by PDIT to DDIT for lodging the prosecution against the Appellant. The said circular has been reaffirmed by the Prosecution Manual, 2009 and the clarification issued by the CBDT in 2019. As such, the circulars discussed above, were binding on the authorities and required to be adhered to while lodging the prosecution by the Revenue.
Admittedly, in the present case, the complaint was filed by DDIT after sanction of PDIT before the Additional Chief Metropolitan Magistrate (E.O.II), Egmore, Chennai, on 11.08.2018. Application under section 245(C) was filed by the Appellant before the Settlement Commission later. On the date of lodging the prosecution, the finding of concealment of income or imposition of the penalty of more than ₹50,000/- has not been recorded by the ITAT. Nothing had been brought on record to show that any wilful attempt to evade the payment of tax by Assessee was made. No explanation had been put forth by Revenue to demonstrate as to why PDIT or DDIT did not comply the procedure while lodging prosecution in this case. Therefore, according to the Supreme Court, the act of the authority in continuing prosecution was in blatant disregard to their own binding circular dated 24.04.2008 and in defiance to the guidelines of the Department.
In contradistinction, the Settlement Commission passed an order under section 245D(4) on 26.11.2019. The said order is relevant, therefore, reproduced as thus:
“XX XX XX XX
PRAYER:
Immunity from penalty and prosecution
6.1 The applicant has prayed for grant of immunity from levy of penalty and prosecution. It could be seen that proceedings Under Section 276C(1) of the Income Tax Act, 1961 are pending before the Hon’ble High Court of Madras. In the circumstances, the applicant cannot be granted immunity waiver from prosecution, for the assessment years which are settled in this order.
6.2 However, the applicant has co-operated during the settlement proceedings. The applicant has disclosed all the facts, material to the computation of his additional income. Thus, the applicant has fully satisfied the provisions of Section 245H. The overall additional income is not on account of any suppression of any material facts in the application. The additional income offered does not disclose any variance from the manner in which the additional income had been earned. Hence, the applicant is entitled to immunity from penalties under the Income-tax Act for the assessment years which are settled in this order.
6.3 Immunity granted to the applicant by this order may be withdrawn, if he fails to pay including interest within the time and the manner as specified in this order or fails to comply with other conditions, if any, subject to which the immunity is granted and, thereupon, the provisions of the Income-tax Act shall apply as if such immunity had not been granted.
6.4 Immunity granted to the applicant, may at any time be withdrawn, if the Commission is satisfied that the applicant had, in the course of settlement proceedings, concealed any particulars, material to the settlement or had given false evidence and, thereupon, the applicant may be tried for the offence with respect to which the immunity was granted or for any other offence of which the applicant appear to have been guilty in connection with the settlement, and the applicant shall become liable to the imposition of any penalty and/or prosecution under the Act, to which the applicant would have been liable had not such immunity been granted.
7. The order shall be void Under Section 245D(6) if it is subsequently found that it has been obtained by fraud or misrepresentation of facts.
XX XX XX XX”
According to the Supreme Court, perusal of the said order made it clear that in the settlement proceedings, Assessee had disclosed all the facts material to the computation of his additional income and fully satisfied the provisions of Section 245H. The Commission recorded a finding that overall additional income is not on account of any suppression of any material facts and it does not disclose any variance from the manner in which the said income had been earned. As such the immunity from penalty under IT Act was granted in exercise of powers under Section 245H. From perusal of Section 245-I, it was clear that every order of settlement shall be conclusive as to the matters stated therein and no matter covered by such order shall, save as otherwise provided, be reopened in any proceeding under the Act or under any other law for the time being in force.
In view of the foregoing discussions, in conclusion, the Supreme Court held that the prosecution lodged with the help of proviso to Sub-section (1) to Section 245H was in defiance to the circular dated 24.04.2008, which was in vogue. It was the duty of the PDIT and DDIT to look into the facts that in absence of any findings of imposition of penalty due to concealment of fact, the said prosecution could not be proved against the Assessee. It seems, even after passing the order by the Settlement Commission on 26.11.2019 which was brought to the notice of the High Court, the authorities were persistent to pursue the prosecution without looking into the procedural lapses on their part. Such an act could not be construed in right perspective and the Revenue have acted in blatant disregard to binding statutory instructions. Such willful non-compliance of their own directives reflected a serious lapse, and undermined the principles of fairness, consistency, and accountability, which in any manner cannot be treated to be justified or lawful.
The Supreme Court reiterated that, in terms of Section 245-I, the findings of the Settlement Commission were conclusive with respect to the matters stated therein. Once such an order was passed, it was incumbent upon the authorities to inform the High Court that continuation of the prosecution would amount to an abuse of the process of law, in particular when the Settlement Commission did not record any finding of wilful evasion of tax by the Appellant. Even otherwise, it was the duty of the High Court to examine the facts of the case in their right context and assess whether, in light of the above circumstances, the continuation of the prosecution would serve any meaningful purpose in establishing the alleged guilt. Upon a holistic consideration of the matter, the Supreme Court was of the view that the conduct of the authorities lacked fairness and reasonableness, and the High Court’s approach appeared to be entirely misdirected, having failed to appreciate the factual and legal position in right earnest.
In view of the foregoing discussions, the Supreme Court was constrained to allow these appeals setting aside the order impugned passed by the High Court. It was directed that prosecution lodged by the Revenue against the Appellant shall stand quashed. In the facts and circumstances of the case as discussed hereinabove, the Supreme Court imposed costs against the Revenue which was quantified at ₹2,00,000/- payable to the Appellant.