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Sheik Abdul Sattar v. District Collector, Masulipatam
Structured Summary of the Legal Opinion (Seshachelapati, J.)
Factual and Procedural Background
This petition under Article 226 sought a writ of mandamus restraining respondents Nos. 1 and 2 from continuing certificate proceedings arising from an assessment order dated 31 July 1957. The petitioner is the widow of the late Sheik Abdul Sattar (who died on 16 November 1949). At his death he left the petitioner (his widow), three sons and two daughters. For the accounting year 1949–50 an assessment was initially made in 1950–51 on the deceased's income. The petitioner claimed that a partnership had been constituted by a deed dated 21 November 1949 and that the firm ought to have been registered under section 26A of the Income-Tax Act.
The Income-Tax Officer treated the receipts as arising from an association of persons and assessed the petitioner and others on that basis; the Appellate Assistant Commissioner agreed. The Income-Tax Appellate Tribunal, however, held that a partnership had been formed and directed that the period of liability be apportioned: (1) 1 April 1949 to 16 November 1949 — on Abdul Sattar as an individual; and (2) 16 November 1949 to 31 March 1950 — on the registered firm. Pursuant to that direction, the Income-Tax Officer passed an assessment order under section 23(3) read with section 33 on the deceased's legal representative (the petitioner) on 31 July 1957, fixing tax at Rs. 8,491.63 nP and issuing a demand notice under section 29.
The petitioner did not pay the amount; consequently a certificate under section 46(2) was issued on 7 November 1957 by the second respondent. The petitioner also appears to have arrears and penalty liabilities for 1951–52 with earlier certificates under section 46(2) dated 18 April 1954 and 30 March 1956. Under the certificates the first respondent attached the petitioner's properties. The petitioner challenged (by this petition) the certificate proceedings and the attachments.
Legal Issues Presented
- Whether the failure to serve notice on all legal representatives as required by section 246(2) of the Income-Tax Act vitiates the assessment and consequent recovery proceedings.
- Whether a legal representative, though treated as the "assessee" for assessment under section 246(2), can be subjected to recovery proceedings by issuance of a certificate under section 46(2) (i.e., whether the legal representative is an "assessee" for purposes of recovery/collection under the Act).
- Whether the properties attached and sought to be sold are the petitioner's separate properties and thus exempt from attachment to satisfy the deceased's tax liabilities.
Arguments of the Parties
Petitioner's Arguments
- The Income-Tax Officer failed to give notice to all legal representatives as required by section 246(2); this procedural defect vitiates the proceedings.
- Even if the assessment order dated 31 July 1957 is valid, a legal representative cannot be treated as an "assessee" for the purpose of issuing a certificate under section 46(2); reliance was placed on the Madras High Court decision in T.M.K. Abdul Kassim v. First Additional Income-Tax Officer (1958) 33 I.T.R. 466.
- The properties now attached are the petitioner’s separate and personal properties and therefore not liable to be attached and sold to discharge the deceased’s tax liability.
Respondents' / Revenue's Arguments
- The department acknowledged that notices were not issued to the other legal representatives but contended that they bona fide believed there were no other legal representatives besides the petitioner.
- Implicitly, the Revenue relied upon decisions of this court (e.g., Rajah Manyam Meenakshamma and Maddula Afipa Rao) which treat a legal representative as falling within the definition of "assessee" for purposes of liability and recovery, and argued that the amended statutory definition (post-1953 amendment) applies to the present assessment made in 1957.
- Regarding the property, the Revenue relied on prior administrative determination (noted in the opinion) that the Income-Tax Officer had previously rejected the claim that the house belonged to the petitioner.
Table of Precedents Cited
| Precedent | Rule or Principle Cited For | Application by the Court |
|---|---|---|
| T.M.K. Abdul Kassim v. First Additional Income-Tax Officer, Karaikudi [1958] 33 I.T.R. 466 (Madras High Court) | Held that the legal fiction in section 246(2) (treating a legal representative as an assessee) is limited to the purpose of assessment and does not extend to recovery; legal representative is not an "assessee" for purposes of sections 29 or 46(2). | The court noted this decision relied upon by petitioner but declined to follow it because earlier decisions of this Court take a contrary view and the present assessment was made after the 1953 amendment; thus the Madras view was not adopted for the present case. |
| Alfred v. Additional Income-Tax Officer [1956] 29 I.T.R. 708 | Referred to by the Madras High Court and extended by it as part of the reasoning that legal representatives are not "assessees" for recovery. | Referenced as part of the Madras High Court's line of authority; the present court did not adopt the extension and relied instead on contrary decisions of this court. |
| Rajah Manyam Meenakshamma v. Commissioner of Income-Tax (Bench: Subba Rao, C.J. and Viswanatha Sastri, J.) | Held that a legal representative who is liable to pay tax from the estate of the deceased would be an "assessee" as defined in the Act, from a combined reading of section 2(2), section 24B and section 33 (decision made prior to the 1953 amendment but interpreted as applicable). | The court relied on this decision to support the proposition that a legal representative can be treated as an assessee for purposes of liability and recovery; the present case falls within that approach and the court applied the same reasoning to reject the petitioner’s second contention. |
| Maddula Afipa Rao v. Income-Tax Officer, Eluru | Held that a penalty under section 28 is recoverable as an arrear of tax falling under section 24B, and that legal representatives of the deceased are liable to pay such arrears. | The court used this decision to illustrate that recovery principles applicable to penalties equally apply in principle to taxes; it supported the view that legal representatives may be subjected to recovery proceedings. |
| Dhanalakshmi Ammal v. Income-Tax Officer | Held that under section 46(2) the Collector can exercise powers akin to those of a civil court (under the Code of Civil Procedure) for recovery; an ostensible owner of attached property can file a claim petition and then a suit if aggrieved. | The court relied on this precedent to explain the appropriate remedy for the petitioner as to disputed title of attached property: file a claim petition before the Collector and, if necessary, a suit. The court declined to adjudicate title in the present petition, pointing to the remedies described in this case. |
Court's Reasoning and Analysis
The court proceeded issue by issue, adhering to statutory text and precedent as follows.
On the first contention (failure to serve notices to all legal representatives under section 246(2)):
- The court accepted that notices were not served on the other legal representatives (the deceased's sons and daughters) and recorded that these other legal representatives were minors living under the petitioner's protection.
- Two independent reasons were given for rejecting this contention:
- The petitioner had not raised this objection at any earlier stage — neither before the Income-Tax Officer, the Appellate Assistant Commissioner nor the Income-Tax Appellate Tribunal — and the court would not permit this belated challenge at the present stage.
- The notice had been served on the petitioner, who was guardian of the minors, and that constituted "substantial compliance" with the requirements of section 246(2) in the circumstances.
- The court therefore concluded the absence of notice to the other legal representatives did not vitiate the proceedings.
On the second contention (whether a legal representative can be subjected to recovery by certificate under section 46(2)):
- The petitioner relied on a Madras High Court decision (T.M.K. Abdul Kassim) holding the fiction in section 246(2) limited to assessment and not recovery. The court acknowledged that decision but noted contrary decisions of this court.
- The court discussed earlier decisions of this court (notably Rajah Manyam Meenakshamma and Maddula Afipa Rao) which treated a legal representative as falling within the definition of "assessee" for liability and recovery purposes, and which treated penalties/arrears as recoverable from legal representatives.
- The court expressly considered the effect of the Indian Income-Tax (Amendment) Act, 1953 (the amended statutory definition of "assessee") and held that it was applicable in the present case because the assessment was made on 31 July 1957, after the amendment.
- Given the post-amendment assessment and the cited decisions of this court, the court concluded that the petitioner could be treated as an assessee for purposes of issuing a certificate under section 46(2) and that the second contention lacked substance.
On the third contention (ownership of attached properties):
- The court recorded that the question of ownership of the house in issue had previously arisen during the deceased's lifetime and that the Income-Tax Officer had rejected the deceased's claim that the house belonged to the petitioner.
- The court declined to decide the title to the attached properties in the present petition. Instead, it identified the appropriate procedural remedies available to the petitioner: filing a claim petition before the Collector under the machinery of section 46(2), and, if necessary, pursuing a civil suit to establish title.
- The court relied on the principle from Dhanalakshmi Ammal that the Collector has powers analogous to a civil court under section 46(2), and that an ostensible owner can invoke the claim petition procedure and thereafter litigate title in a suit.
Holding and Implications
Holding: The petition was dismissed. The court explicitly concluded there was no substance in any of the petitioner's three primary contentions. The final operative disposition is summarized as:
DISMISSED WITH COSTS (advocate's fee ordered: Rs. 50).
Direct implications for the parties:
- The certificate proceedings initiated under section 46(2) and the attachments made under those certificates are sustained by the court's decision; the court did not quash the certificates or attachments in this petition.
- The petitioner retains procedural remedies to contest title or claim exemptions: she may file a claim petition before the Collector under the section 46(2) procedure and, if dissatisfied, may institute a civil suit to establish her title to the attached properties.
Broader implications: The court adopted and applied earlier decisions of this court that treat a legal representative as falling within the definition of "assessee" for purposes of liability and recovery (particularly where an assessment and notice post-date the 1953 amendment). The opinion did not announce a new legal principle but applied existing precedent and statutory interpretation to the facts before it.
Seshachelapati, J.:— This is a petition under article 226 of the Constitution for issuing a writ of mandamus, directing the respondents Nos. 1 and 2 to forbear from the certificate proceedings in pursuance of an assessment order made by the second respondent dated July 31, 1957.
2. The petitioner is the widow of one late Sheik Abdul Sattar, who died on November 16, 1949, leaving behind him, in addition to the petitioner (his widow), three sons and two daughters. For the accounting year 1949-50 an assessment was made in the year 1950-51 on the income of the deceased Abdul Sattar Saheb. The petitioner contended before the Income-Tax Officer that after the death of Sattar Saheb, by a deed of partnership dated November 21, 1949, a partnership firm was constituted and that the firm ought to have been registered under section 26A of the Indian Income-Tax Act.
3. The Income-Tax Officer rejected the claim for registration and made an assessment against the petitioner and others on the footing of association of persons. On appeal, the Appellate Assistant Commissioner also took the same view. But, when the matter went up in appeal before the Income-Tax Appellate Tribunal, it was held that the formation of the partnership was true and that the period of liability for assessment should be split up into periods (1) From April 1, 1949, to November 16, 1949, on Abdul Sattar as an individual and (2) on the registered firm from November 16, 1949, to March 31, 1950. Pursuant to the direction of the Income-Tax Appellate Tribunal, the Income-Tax Officer passed an order of assessment under section 23(3) read with section 33 of the Income-Tax Act on his (the deceased's) legal representative, the present petitioner, on July 31, 1957, determining a tax of Rs. 8,491'63 nP. and a notice of demand under section 29 was also issued. The petitioner did not pay the amount of tax and so a certificate under section 46(2) of the Income-Tax Act was issued by the second respondent on November 7, 1957. The assessee would appear to be in arrears of tax for the year 1951-52, and a penalty was also imposed on her and with respect thereto certificates under section 46(2) were issued on March 30, 1956, and April 18, 1954. Under the certificates issued by the second respondent, the first respondent has attached the properties of the petitioner.
4. The principal contentions advanced in support of this petition are three-fold: first, that the Income-Tax Officer failed to give notice to all the legal representatives of the late Sattar Saheb as required by the terms of section 246(2) of the Act, and that the failure to do so would vitiate the proceedings, secondly, that even assuming that the assessment order made on July 31, 1957, is valid, the Income-Tax authorities cannot treat a legal representative as an assessee for the purpose of issuing a certificate under section 46(2); thirdly, that the properties now under attachment and sought to be brought to sale are in fact the separate properties of the petitioner and, therefore, not liable to be impounded and sold for the discharge of the tax liability of her deceased husband.
5. As to the first contention, it is not in dispute that notices were not taken out to other legal representatives. Section 246(2) of the Act is in these terms:
“Where a person dies before the publication of the notice referred to in sub-section (1) of section 22, or before he is served with a notice under sub-section (2) of section 22 or section 34, as the case may be, his executor, administrator or other legal representative shall, on the serving of the notice under sub-section (2) of section 22 or under section 34, as the case may be, comply therewith, and the Income-Tax Officer may proceed to assess the total income of the deceased person as if such executor, administrator or other legal representative were the assessee.”
6. In this case, there is no question that the notice was duly served on the petitioner. The other legal representatives of Abdul Sattar Saheb, viz., his sons and daughters, are stated to be minors living under her protection. The contention of the Department is that they did bona fide believe that there were no other legal representatives of Abdul Sattar, except the petitioner. On the contrary, it is asserted in the affidavit of the petitioner that the Income-Tax authorities did know that the late Abdul Sattar Saheb had left other legal representatives, by reason of the filing of the partnership deed for the purpose of registration under section 26A of the Act for the year 1950-51. Whether the Income-Tax authorities knew that there were other legal representatives besides the petitioner or not, seems to me immaterial. The objection of the petitioner on the score of the absence of the notice to the other legal representatives must be rejected on two grounds. First, at no time in the prior proceedings either before the Income-Tax Officer, or the Appellate Assistant Commissioner or the Income-Tax Appellate Tribunal has the petitioner raised this objection. She cannot now be allowed to raise this objection at this belated stage. Secondly, the notice having been given to the petitioner who was guardian of the other legal representatives, there has been a substantial compliance with the requirements of the section.
7. I, therefore, hold that there is no substance in the first contention.
8. The second contention is that though under the terms of section 246(2) an assessment could be made on the total income of the deceased person against the legal representative of the deceased, still no certificate under section 46(2) can be granted against such legal representative. In support of this contention, the learned counsel for the petitioner placed strong reliance on the judgment of the Madras High Court in T.M.K Abdul Kassim v. First Additional Income-Tax Officer, Karaikudi [1958] 33 I.T.R 466., where the learned judges held that the legal fiction created under section 246(2) of the Indian Income-Tax Act of treating a legal representative as the assessee is only for the limited purpose of the assessment and does not extend to the recovery or collection of tax, and that neither section 29 nor section 46(2), either in express terms or by necessary intendment, imposes an additional burden on the legal representative than is imposed by section 246(2). It was held in that case that the issue of a notice under section 46(2) postulates an arrear of tax payable by an assessee and that the legal representative is not an assessee either within the meaning of section 45 or section 46(2) of the Act. In that judgment, the learned judges referred to and extended the scope of the principle enunciated by them in their earlier decision in Alfred v. Additional Income-Tax Officer [1956] 29 I.T.R 708.. I am relieved of the need for a detailed consideration of this question with reference to the view expressed by the Teamed judges of the Madras High Court, because in two decisions of this court a contrary view has been taken. In Rajahmany am Meenakshamma v. Commissioner of Income-Tax, a Bench of this court consisting of Chief Justice Subba Rao and Viswanatha Sastri, J., had to consider the scope of section 24B. One of the questions that fell to be decided by the learned judges was, whether a legal representative against whom an assessment had been made under section 24B had a right of appeal under section 33 of the Act. The assessment in that case was with respect to the assessment year 1947-48, before the definition of the word “assessee” was amended by the Indian Income-Tax (Amendment) Act, 1953. Even so, Subba Rao, C.J, held that a combined reading of the provisions, viz., section 2(2), section 24B and section 33, indicates that a legal representative, who is liable to pay tax from and out of the estate of the deceased person would be an assessee as defined in the Act. In Maddula Afipa Rao v. Income-Tax Officer, Eluru, my lord the Chief Justice and Ansari, J., held that a penalty levied under section 28 is recoverable as an arrear of tax. Such arrear of tax falls under section 24B and the legal representatives of the deceased assessee are therefore liable to pay the penalty imposed on the assessee, as indicated in section 24B. Though this relates to the collection of a penalty, in principle there is no distinction between the collection of a tax and a penalty levied under section 28. The assessment and the levy of penalty in the case the learned judges had to deal with was with respect to the years 1943-44, 1944-45 respectively and the assessment was actually made on 30th March, 1946.
9. Both these cases are with respect to the assessments that were made prior to the Indian Income-Tax (Amendment) Act, 1953, and, therefore, there is no substance in the contention of the learned counsel that the amended definition cannot be used for the purpose of determining whether a legal representative would fall within the definition of “assessee.” In this case, after the disposal of the appeal by the Income-Tax Appellate Tribunal, the assessment order was actually made on July 31, 1957, and the demand notice under section 29 was also duly issued. I am therefore of opinion that this is a case to which the amended definition could be invoked, as was done in the case of Rajah Manyam Meenakshamma v. Commissioner of’ Income-Tax. There is, therefore, no substance in this contention.
10. The last contention urged by Mr. Ranganadhachary is that the properties under attachment are the personal and separate properties of the petitioner. Even during the lifetime of Abdul Sattar, the question of the ownership of the house now under attachment came up and, after enquiry, the Income-Tax Officer rejected the claim put forward by Abdul Sattar himself that the house belonged to the petitioner. But, in any case, I do not propose to express any opinion on the merits of this contention. If the petitioner is aggrieved by the proceedings taken by the Collector under section 46(2) of the Act, she can take appropriate steps before the Collector to file a claim petition and, if necessary, to file a suit to establish her right. In Dhanalakshmi Ammal v. Income-Tax Officer, Rajamannar, C.J, and Panchapakesa Iyer, J., have held that under the additional powers given to the Collector under section 46(2) of the Act, the Collector can exercise the powers, which, under the Code of Civil Procedure, a civil court has for the purpose of recovery of an amount due under a decree. It is open to an ostensible owner of an attached property to file a claim petition and, thereafter, file a suit, if aggrieved. The title of the petitioner to the attached properties is not a matter which I can decide in this petition.
11. The petition fails and is dismissed with costs. Advocate's fee Rs. 50.
Petition dismissed.
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