Holding

The Karnataka Sales Tax Act provisions challenged – Explanation 3(c) to Section 2(t) and Section 5‑B with the Sixth Schedule – are constitutionally valid, and the appeal is dismissed.

Summary

The Builders' Association of India, an association of contractors, challenged the Karnataka Sales Tax Act, 1957, specifically Explanation 3(c) to Section 2(t) and Section 5‑B with the Sixth Schedule, alleging that they converted inter‑state sales into intra‑state sales and imposed tax on the value of works contracts in a manner beyond the State's constitutional competence. The Supreme Court held that Explanation 3(c) must be read together with clauses (a) and (b), which expressly exclude inter‑state sales, and therefore does not overstep legislative power. It further held that tax is levied on the taxable turnover after permissible deductions for labour and other charges, that the percentage deductions prescribed in Rule 6 are not arbitrary, and that prescribing different tax rates for different categories of works contracts is constitutionally permissible. The Court also ruled that the appellant could not raise a fresh challenge to Section 19‑A, which had not been pleaded earlier. Consequently, the appeal was dismissed.

Issues considered

Whether clause (c) of Explanation 3 to Section 2(t) of the Karnataka Sales Tax Act converts an inter‑state sale or a sale outside the State into an intra‑state sale, thereby exceeding the State's power under Entry 54 of the State List and Article 366(29‑A)(b).
Whether Section 5‑B read with the Sixth Schedule levies tax on the value of a works contract rather than on the value of the goods involved, violating constitutional limits.
Whether the percentages prescribed for deduction of labour and other charges in Rule 6 are arbitrary and violative of Article 14.
Whether the prescription of different tax rates for different categories of works contracts under the Sixth Schedule infringes the equality principle under Article 14.
Whether the appellant may raise a fresh challenge to Section 19‑A (deduction of tax at source) which was not pleaded in the original writ petition.

Legislation cited

Central Sales Tax Act, 1956s. 14, s. 15, s. 3, s. 4, s. 5
Constitution of Indias. Article 136, s. Article 14, s. Article 366(29‑A)(b), s. Seventh Schedule List II Entry 54
Karnataka Sales Tax Act, 1957s. 19-A, s. 2(m), s. 2(n), s. 2(t), s. 2(u), s. 5-B, s. 6
Karnataka Sales Tax Rules, 1957s. Rule 6 (sub‑rules 1, 4)
Sale of Goods Act, 1930

Subjects

sales taxworks contractconstitutional validityinter‑state saletaxable turnoverlabour charge deductionArticle 14Article 366(29‑A)Karnataka Sales Tax ActSection 5‑BExplanation 3(c)Sixth Schedule

Judgment

A BUILDERS' ASSOCIATION.OF INDIA
v.
STATE OF KARNATAKA AND OTHERS

NOVEMBER 17, 1992

B [M.H. KANIA, CJ, J.S. VERMA, S.C: AGRAWAL, YOGESHWAR
DAYAL AND DR. A.S. ANAND, JJ.)

Kamataka Sales Tax Act, 1957/Kamataka Sales Tax Rules: Sections
2(m), (n) (t) (u), 5-B, 6 and Sixth Schedule/Rule 6(4}-Works Con-
C tract--Categorisation-Deduction of amount towards labour and other char-
ges-Prescribing different percentage of value of contract-whether penni-
ssi~Transfer of property in goods involve~ in execution of works con-
tract-Deemed sa/es-Fmng situs thereof-Vaijdity of.

D Constitution_ of India, 1950 : Articles 14, 136, 366(29-A)(b) and
Seventh Schedule List II Entry 54-Enactinent of Kamataka Sales Tax Act,
1957-Section SB r/w Sixth Schedule-Legislative competence of-Levy of
different rates of tax for particular type of works contract-Whether arbitrary
and discriminatory-Appeal-Special Leave jurisdiction--R.aising of new plea
for the first time--Whether could be pennitted.
E
The appellant is an association of contractors engaged in the work
of construction; filed a writ petition bef9re the High Court challenging the
validity of various provisiOns of the Karnataka Sales Tax Act, 1957 as
amended by the Amending Act of 1985 and the Karnataka Sales Tax
F Rules. However, during the course of arguments, the appellant confined
its challenge to the validity of Explanation 3(e) to S.2(t) and Section 5-B
of the Karnataka Sales Tax Act read with Sixth Schedule thereof.

G
The High Court dismissed the Writ Petition and the appellant
preferred the present appeal.

On behalf of the appellant, it was contended that clause(c) of
Explanation 3 to Section 2(t) of the Act which fixes the situs of sales has
the effect of converting a transfer which is an inter-state sale or sale
I
(

outside the State within the meaning of Sections 3 and 4 of Central Sale~
H Tax Act into an inside sale and thereby subjecting the same to levy of tax [
88
BUILDERS' ASSCN. v. STATEOFKARNATAKA 89

under the Act which is beyond the legislative competence of the State A
Legislature under Entry 54 of State List read with Art.366(29-A) (b); that
Section 5-B read with Sixth Schedule is invalid since tax is levied on the
basis of the value of the contract irrespective of the value of goods
involved in the execution of the contract, and also different rates of tax
have been prescribed for different types of contracts; that the percentage B
of the value of the contract fixed in Column 3 of the table under Sub-cl.(v)
of cl.(n) of Sub-rule 4 of Rule 6 was arbitrary and further it varied with
the nature of the contract; and that S.19- A of the Act providing for
deduction of tax at source, was invalid.

Dismissing the appeal, this Court, c
HELD: 1. A perusal of clause(t) of S.2 of the Karnataka Sales Tax
· Act, 1957 shows that in the main part the expression 'sale' has been defined
and in the inclusive part of the said definition, sub-cls.(i) to (iv) reproduce
sub-clauses (a) to (d) of Clause (29-A) of Article 366 of the Constitution D
of India. Explanation 3 contains three clauses, whereby the situs of the sale
is fixed. Clause (a) of Explanation 3 contains the words "other than the
sale in the course of inter-State trade or commerce or in the course of
import or export" which mean that a sale or purchase of goods in the
course of inter-State trade or commerce or in the course of import or E
export is excluded. Moreover Clause (a) of Explanation 3 merely
reproduces the provisions contained in the main part of sub-Section (2)
of Section 4 of the Central Sales Tax Act. Clause {b) of Explanation 3
contains the Explanation in sub-s.(2) of Section 4 of the Central Sales Tax
Act. Clause (c) of Explanation 3 relates to works contracts and fixes the
F
situs of the deemed sales resulting from transfer of property in goods
involved in execution of a works contract. It starts with a non-obstante
clause which refers to the Sale of Gof!ds Act, 1930. This means that clause
(c) has to be read with other provisions of the Act including clauses (a)
and (b) of Explanation 3, which expressly exclude a sale in the course of
inter-State trade or commerce and a sale in the course of import or export. G
Construing clause (c) in the light of clauses (a) and (b) of Explanation 3,
it cannot be said that in fixing the situs in respect of deemed sales resulting
from transfer of property in goods involved in execution of a works
contract the Legislature has included a sale in the course of inter-State
trade or commerce or a sales outside the state or a sale in the course of H
90 SUPREME COURT REPORTS [1992] SUPP. 3 S.C.R.

A import or export. (96-G, ff; 97-A-C]

2.1. Tax is not levied on the value of the works contract and that the
taxable turnover GD which tax is leviable is arrived at after deducting from
the value of the works contract the expenses which are incurred by the
contractor towards labour charges and other expenses, including amounts
B paid to sub-contractors. •The expression "labour charges" in sub-ct (ii) of
cl. (m) and the expression "labour charges and other like charges ". in
sub-ct(iv) of cl.(n) of Section 6(4) are, wide enough to include the charges
for labour and services. (100-D-F]

C 2.2. Charges for labour and services cannot be uniform for all types
of works contracts and they would very with.the nature of the contract and
services. It is, therefore, permissible for the rule-making authority to
categories works contracts into different categories and prescribe a dif-
ferent percentage of the value of the contract for the purpose o~ deduction
of amount towards labour charges and other charges. On the basis of
D material on record, it is not possible to say that the percentages for such
deduction that have been prescribed in the table appended below sub-cl.(v)
of cl.(n) of sub-rule(4) of R~le 6 of the Karnataka Sales Tax Rules are
arbitrary; [101-A-C]

E Mis. Gannon Dunkerley & Co. and Ors. v. The State ofRajasthan &
Ors., [1992] Suppl. SCR (Civil Appeals arising out of SLP Nos. 3365-68
of 1992 decided on 17.11.92), relied on. (101~8-CJ

· 3.1. While fixing the rate of tax, it is permissible for the Legislature
to fix a uniform rate of tax for various goods involved in the execution of
F a works contract which rat~. may be different from the rates of tax faxed in
respect of sales or purchase of these goods as separate article. [101-F]
. '
3~. It is not impermissible for the Legislature to fix the rate for
imposition of the tax on the basis of the nature of the works in which .the
G goods are incorporated, i.e., on the basis of the user of the goods and it
cannot be said that in prescribing different rates <!f tax for particular types
of W!)rks contraet in the Sixth Schedule, the State Legislature has con-
tra.vened the provisions of Artic•e 14 of the Constitution. (101-G, 102-CJ
. .
3.3. Since the view of the High Court tlia·t. the fixation of rate of tax
H in respect of Item 20 i_n Sixth Schedule was discriminafory was not chal-
BUILDERS' ASSCN. v. STATEOFKARNATAKA[AGRAWAL,J.] 91

lenged by the State it was not necessary to express any view on that part A
of the judgment. [102-D]

Twyford Tea Co. v. Kera/a State, [1970) 3 SCR 383; East India
Tobacco Co. v. State of Andhra Pradesh, [1963] 1 SCR 404; Ganga Sugar
. Co. Ltd. v. State of U.P. & Ors., [1980] 1 SCR 769 and Kera/a Hotel &
Restaurant Association and Ors. v. State of Kera/a & Ors., [1990] 1 SCR 516, B
relied on.

4. S.19-A of the Karnataka Sales Tax Act was not challenged by the
appellant in the writ petition before the High Court and was also not
challenged in the additional grounds which were submitted by the appel- C
lant in the High Court after the decision of this Court in Builders Associa-
tion case. It has also not been challenged by the appellant in the special
leave petition filed before this Court. In these circumstances, the appellant
cannot be permitted to raise this question. [102-E-F]

Builders Association of If!dia v. Union of India, [1989] 2 SCR 320, D
referred to.

CIVIL APPELLATE JURISDICTION: Civil Appeal No. 990 of
1991.

From the Judgment and Order dated 27.7.1990 of the Karnataka E
1
High Court in W.P. No. 8926 of 1986.

C.S. Vaidyanathan, S.R. Setia and K.V. Vijayan for the Appellant.

G. Ramaswamy, Attorney General, Dipankar Gupta, Solicitor
General, B.B. Ahuja, J. Ramamurty, R.N.N. Murthy, Ranbir Chandra, · F
Ashok Kumar Sharma, P. Parmeswaran, Ms. A. Subhashini, S.K. Kulkarni,
M. Veerappa, P. Mahale, R.P. Wadhwani and B. Mohan for the Respon-
dents.

The Judgment of the Court was delivered by
G
S.C. AGRAWAL, J. This appeal arises out of the judgment of the
High Court of Karnataka dated July 27, 1990 whereby the High Court has
dismissed the Writ Petition No. 8926 of 1986 filed by the appellant under
Article 226 of the Constitution of India. In the said writ petition, the
appellant had challenged the validity of various provisions of the Karnataka H
92 SUPREME COURT REPORTS (1992} SUPP. 3 S.C.R.

A Sales Tax Act, 1957 as amended by Amending Act No. 27 of i985 and the
Karnataka Sales Tax Rules made thereunder.

The appellant is an association of contractors engaged in the work
of construction. The provisions of the Karnataka Sales Tax Act wliich have
been impugned by the appellant in writ petition were introduced in the said
B enactment after the Constitution (Forty-Sixth Amendment) Act, 1983
whereby cl. (29-A) was introduced in Article 366 of the Constitution so as
to enable State Legisfatures to impose tax on transfer of property in goods
(whether as goods or in some other form) inv:olved in the execution of a
works contract. The validity of Forty-Sixth Amendment came up for con-
c sideration before this Court in Builders' Association of India v. Union of
India, [1989] 2 SCR 320 wherein the said amendment was upheld as valid
and it was declared that sales tax laws passed by the Legislature of States
leaving taxes on the transfer of property in goods (whether as goods or in
some other form) involved in the execution of a works contract are subject
D to the restrictions and conditions mentioned in each clause or sub-clause
of Article 286 of the Constitution. This Court further declared that
whatever might be the situational differences of individual cases, the con-
stitutional limits on the taxing power of the State as are applicable to 'works
contracts' represented by "Building-Contracts' in the context of the ex-
panded concept of 'tax on the sale or purchase of goods' as constitutionally
E defined under Article 366(29-A), would equally apply to other species of
'works contracts' with the requisite situational modifications. In the light of
the said decision, certain questions were raised before us which have been
• considered by us in our decision pronounced today in M/s. Gannon
Dunkerley & Co. & Ors. v. 17te State of Rajasthan & Ors. (Civil Appeals
F arising out of SLP Nos. 3365-68 of 1992) and wherein it has been held as
under -

"(1) In exercise of its legislative power to impose tax on
sale or purchase of goods under Entry 54 of the State List
read with Article 366(29-A)(b), the State legislature, while
G imposing a tax on the transfer of property in goods
(whether as goods or in some other form) involved in the
execution of a works contract is not, competent to impose
a tax on such a transfer (deemed sale) which constitutes
a sale in the course of inter- state trade or commerce or
H a sale outside the state or a sale in the course of import
BUILDERS' ASSCN. v. STATEOFKARNATAKA [AGRAWAL,J.] 93

or export. A
(2) The provisions of Sections 3, 4, 5 and sections 14 and
15 of the Central Sales Tax Act, 1956 are applicable to a
transfer of property in goods involved in the execution of
a works contract covered by Article 366(29-A){b),
B
(3) While defining the expression 'sale' in the sales tax
legislation it is open to. the State Legislature to fix the situs
of a deemed sale resulting from a transfer falling within
the ambit of Article 366{29-A){b) but it is not permissible
for the.State Legislature to d_efine.the expression sale in
t
a way as to bring within the ambit of the taxing power a
sale in the course of inter-State trade or com~erce, or a
sale outside the state or a sale in the course of import and
export.

(4) The tax on transfer of property in goods (whether as D
goods or in some other form) involved in the execution of
a works contract falling within the ambit of Article 366(29-
A)(b) is leviable on the goods involved in the execution
of a works contract and the value of the goods which are
involved in execution of the works contract would con-
E
stitute the measure for imposition of the tax.

(5) In order to determine the value of the goods which
are involved in the execution of a works contract for the
purpose of levying the tax referred to in Article 366(29-

-
-t
A){b), it is permissible to take the value of the works
contract as the basis and the value of the goods involved
in the execution of the works contract can be arrived at
F

by deducting expenses incurred by the contractor for
providing labour and other services from the value of the
I works contract.
G
(6) The charges for labour and services which are required
to be deducted from the value of the works contract would
cover (i) labour charges for execution of the works, (ii)
amount paid to a sub-contractor for labour and services;
(iii) charges for obtaining on hire or otherwise machinery H
94 SUPREME COURT REPORTS [1992] SUPP. 3 S.C.R.

A and tools used for e.xecuti.on of the works contract; (iv)
charges for planning, designing and architect's fees; (v)
. cost of consumables used in execution of the works con-
tract;. (vi) cost of establishment of the contractor to the
exte~t it is. relatable to supply of labour and services; (vii)
other similar expenses relatable to supply of labour and
B services; and (viii) profit earned by the contractor tq the
extent it is relatable to supply of Jabour and services.

(7) To deal with cases' where the co.utractor does not
maintain proper ac~ounts or' the account books produced
c by. him are not found worthy of credence by the assessing
authority the legislature may prescribe a formula for
deduction of cost of labour and services on the basis of a
percentage of the value of the works contract but while
doing so it has to be ensured that the amount deductible
under such formula does not differ appreciably from the
D expenses for labour and services that would be incurred
in normal circumstances in respect of that particular type
of works contract. It would be permissible for the legisla-
ture to prescribe varying scales for deduction on account
of cost of labour and services for various types of works
E contract.

(8) While fixing the rate of tax it is permissible to fix a
uniform rate of tax for the various goods involved in the
execution of a works contract which rate may be different
from the rates of tax fixed in respect of sales or purchase
F of those goods as a separate article."

The impugned provisions of the Karnataka Sales Tax Act have to be
considered in the light of the aforesaid principles.

Although in the writ petition the appellant had challenged the
G· validity of a number of provision but in his arguments before the High
Court the learned counsel for the appellant ·confined his submissions to
Explanation 3(c) to Section 2(t) and Section 5-B read with the Sixth
Schedule. ·

H Clause (t) of Section 2 of the Act defmes the expression 'sale' in the
BUILDERS' ASSCN. v. STATE OFKARNATAKA[AGRAWAL,J.] 95

following terms : .A
"(t) "Sale with all its grammatical variation and cognate
expressions means every transfer of the property in goods
(other than by way of mortgage, hypothecation, charge or
pledge) by one person to another in the course of trade
or business for cash or for deferred payment or other B
valuable consideration arid includes -

(i) a transfer otherwise than in pursuance of a contract of
property in any goods for cash, deferred payment or other
valuable consideration;
c
(ii) a transfer of property in goods (whether as goods or
in some other form) involved in the execution ofa works
contract;

(iii) a delivery of goods on hire purchase or any system of D
payment by installments;

(iv) a transfer of the right to use any goods for any purpose
(whether or not for a specified period) for cash, deferred
payment or other valuable consideration;
E
Explanation (1) - Omitted

Explanation (2) - Om;tted

Explanation (3) - (a) The sale or purchase of go,ods (other
than in the course of inter-State trade or commerce or in F
the course of import or export) shall be deemed, for the
purposes of this Act, to have taken place in the State
wherever the contract of sale or purchase might have been
made, if the goods are within the State -
G
(i) in the case of specific or ascertained goods at the time
the contract of sale or purchase is made; and

(ii) in the case of unascertained or future goods, at the
time of their appropriation to the contract of sale or
purchase by the seller or by the purchaser, whether the H
96 SUPREME COURT REPORTS [1992] SUPP. 3 S.C.R.

A assent of the other party is prior or subsequent to such
appropriation.

· (b) Where there is a single contract of sale or purchase
of goods situated at more places than one, the provisions
of clause (a) shall apply as if there were separate contracts
B · in respect of the goods at each of such places.

(c) Notwithstanding anything contained in the Sale of
Goods Act, 1930 (Central Act 3 of 1930), for the purpose
of this Act, the transfer of property in goods (whether as
c goods or in some other form) involved in the execution of
a works contract shall be deemed to have taken place in
the State, if the goods are within the State at the time of
such transfer, irrespective of the place where the agree-
ment for works contract is made, whether the assent of

D
the other party is prior or subsequent to such transfer. -·
(Rest omitted)"

It has been urged by learned counsel that clause (c) of Explanation
3, which fixes the situs of the sale, has the effect of converting a transfer
E \l. hich is an inter-State sale or.sale outside the State within the meaning of
1

Sections 3 and 4 of the Central Sales ~ax Act into an inside sale and
thereby subjecting the same. to levy of tax under the Act which is beyond
the legislative competence of the State Legislature under Entry 54 of the
State List read with Article 366(29-A)(b). The said contention of the
appellant has been rejected by the High Court. Having heard Shri Vijayan,
F the learned counsel for the appellant, we do.not find any substance in the
contention.

A perusal of clause (t) shows that in the main part the expression
'sale' has been defined and in the inclusive part of the said definition,
G sub-els. (i) to (iv) reproduce sub-clauses (a) to (d) of Clause (29-A) of
Article 366. Explanation 3 contains three clauses, whereby the situs of the
sale is fixed .. Clause (a) of Explanation 3 contains the words "other than
the sale in the course of inter-State trade or commerce or in the course of
import or. export" which means that a sale or purchase of goods in the
course of inter-State trade or commerce or in the course of import or
·H export is excluded. Moreover Clause (a) of Explanation 3 merely
BUILDERS' ASSCN. v. STATEOFKARNATAKA[AGRAWAL,J.) 97

reproduces the provisions contained in the main part of sub-Section (2) of A
Section 4 of ·the Central Sales Tax Act. Clause (b) of Explanation 3
contains the Explanation in sub-s.(2) of Section 4 of the Central Sales Tax
Act. Clause (c) of Explanation 3 relates to works contracts and fixes the
situs of the deemed sales resulting, from transfer of property in goods
involved in execution of a works contract. It starts with a non-obstante B
clause whic~ refers to the Sale of Goods Act, 1930. This means that clause
(c) has to b.e read with other provisions of the Act, including clauses (a)
and (b) of Explanation 3, which expressly exclude a sale in the course of
inter-State trade or commerce and a sale in the course of import or export.
Construing clause (c) in the light of clauses (a) and (b) of Explanation 3,
we are unable to hold that in fixing the situs in respect of deemed sales C
resulting from transfer of property in goods involved in execution of a
works contract the Legislature has included a sale in the course of inter-
state trade or commerce or a sales outside the state or a sale in the course
of import or export.

The other provision which has been challenged is Section 5-B which D
provides as under -

"(5-B) Levy of tax on transfer of property in goods
(whether as goods or in some other form) involved in the
execution of works contracts - Notwithstanding anything E
contained in sub-section (1) or sub-section (3) of section
5, but subject to sub-sections (5) and (6) of the said
section, every dealer shall pay for each year, a tax under
this Act on his taxable turnover of transfer of property in
goods (whether as goods or in some other form) involved F
in the execution of works contract mentioned in column
(2) of the Sixth Schedule At th~ rates specified in the
corresponding entries in column (3) of the said schedule.

It has been pointed out that in the Sixth Schedule different rates of
tax have been prescribed for different types of works contracts. The validity G
of Section 5-B read with Sixth Schedule has been assailed by the appellant
on two grounds - (1) the tax is levied on the basis of the value of the
contract irrespective of the value of the goods involved in the execution of
the contract and (2) different rates of tax have been prescribed for different
types of contracts. As regards the first ground of attack, it may be stated H
. 98 SUPREME COURT REPORTS [1992] SUPP. 3 S.C.R .

A that under Section 5-B, the tax is imposed on the taxable turnover of
transfer of property in goods (Whether as goods or in some other form)
involved in the execution of works contract. The expression 'taxable turn-
over' is defined in cl.(u-1) of Section 2 as follows -

"(u-1) 'taxable turnover' means the turnover on which a
B dealer shall be liable.lo pay tax as determined after making
such deductions from his total turnover and in such man-
ner as may be prescribed, but shall not include the turn-
over of purchase or sale in the course of inter-State trade
or commerce or in the course of export of the goods out
c of the territory of India or in the course of import of the
goods into the territory of India;

Rule 6 of the Karnataka Sales Tax Rules, 1957 provides for deter-
mination of total and taxable turnover of a dealer. The total turnover is to ·
D be determined in accordance with clauses (a) to (t) of sub-Rule (1). Clause
(c) relates to works contracts and it provides that the total turnover shall
be the aggregate of "the total amount paid or payable to the dealer as the
consideration for transfer of property in goods (whether as goods or in
some other form) involved in the execution of works; and including any
amount paid as advance to the dealer as part of the consideration. In
E sub-Rule ( 4) of Rule 6, it is provided that "in determining the taxable
turnover the amount specified in clauses (a) to (p) shall, subject to the
conditions specified therein, be deducted from the total turnover as deter-
mined under clauses (a) to (e) of sub-Rule· (1)". In respect of works
contracts such deductions are specified in cls.(m)and (n) of sub-rule (4).
F Clause (m) relates to works contracts specified in serial numbers 1, 2, 3, 4,
5, 7, 8, 9, 10, 11, 12, 17, 26 and 27 of the Sixth Schedule and provides (or
following deductions -

"(i) all amourits for which any goods specified in the said
seriaf numbers and falling under second schedule are
G purchased from registered dealers liab•e to pay tax under
the Act.

(ii) all amounts actually expended towards 'labour charges
for erection, installation, fixing, fitting out, or commission-
H ing of the goods specified in the said serial numbers.
BUILDERS' ASSCN. v. STATEOFKARNATAKA[AGRAWAL,J.] 99

(iii) all amounts paid to sub-contractors as the considera- A
tion for execution of works contract whether wholly or
partly:

Provided that, no· such deduction shall be allowed
unless the dealer claiming deduction produces proof that
the sub-contractor is a registered dealer liable to tax under B
the Act and that the turnover of such amounts is included
in the monthly statement or return of turnover as the case
may be, filled by such sub-contractor;

Clause (n) relates to works contracts specified in serial numbers 6,
13, 14, 15, 16, 18, 20, 23, 24 and 25 of the Sixth Schedule and makes
c
provision for the following deductions -

"(i) all amounts for which any goods specified in the
Second and Fourth Schedule are R_Urchased from
registered dealers liable to pay tax under the Act, D
(ii) all amounts for the purchase of any goods which are
specifically exempted from tax under any of the provisions
of the Act.

(iii) all amounts paid to sub-contractors as the considera- E
tion for execution of works contract whether wholly or
partly:

Provided that, no such deduction shall be allowed
unless the dealer claiming deduction produces proof that
the sub-contractor is a registered dealer liable to tax under F
the Act and that the turnover of such amounts is included
in the monthly statement or return of turnover, as the case
may be, filed by such sub-contractor,

(iv) such amounts towards 'labour charges and other like G
charges' not involving any transfer of property in goods
actually incurred in connection with the execution. of
works contract, or

(v) such amounts calculated at the rate prescribed in
column (3) of the Table below, if they are actually incurred H
100 SUPREME COURT REPORTS {1992] SUPP. 3 S.C.R.

A towards 'labour charges' and other like charges and are
not ascertainable from the books of accounts maintained
and produced by a. dealer before the assessing authority."

In the table which is appended below Clause (n), the percentage of
the value of the contract which would be deducted towards labour and
B other charges has been specified in respect of different types of works
contracts specified in the said table.

In sub-cl.(ii) of cl.(m) amounts actually expended towards ,labour
charges for erection installation; fixing, fitting out, or commissioning of the
c goods specified in the serial numbers wholly or partly, are deductible and
-under sub-cl.(iii) of cl.(m) all amounts paid to sub-contractors as the
consideration for execution of works contract whether; wholly or partly, are
deductible. Similarly, under sub-cl.(iii) of cl.(n), all amounts paid to sub-
contractors for execution of works contract whether wholly or partly are
D ·_deductible and under sub-cl.(iv) of cl.(n) amounts towards labour charges
and other like charges not involving aµy .transfer of property in goods
·actually incurred in connection with the execution of work contract are
deductible. From these provisions, it is evident that the tax is not levied on
the value of the works contract and that the taxable turnover on which tax
is leviable is arrived at after deducting from the value of the works contract
E the expenses which are incurred by the contractor towards labour charges
and other expenses, including amounts paid to sub-contractors. The ex- .
pression "labour charges" in sub-cl. (ii) of cl.(m) and the expression "labour
charges and other like charges" in sub-cl.(iv) of cl.(n) are, in our opinion
wide enough to include the charges for labour and services, as indicated
F by us in our judgment in Mis Gannon Dunkerley and ols. v. State of
Rajastltan (supra) to which reference has been made earlier. It cannot;
therefore, be said that section 5-B provides for levy of tax not on the value
of the goods involved in the execution of a works contract but also on
something which is not part of that value.

G The learned counsel for the appellant has challenged the fixation of
the percentage on account of labour and other charges in the table under
sub-cl.(v) of cl.(n) of sub-rule 4 of Rule 6. The said table is applicable in
cases where the amounts. actually incurred towards 'labour charges and
other like charges' are not ascertainable from the books of account main-
H tained and produced by a dealer before the assessing authority. The
-
BUILDERS' ASSCN. v. STATE OFKARNATAKA[AGRAWAL,J.) 101

submission is that the percentage of the value of the contract fixed in A
column 3 of the said table is arbitrary and further that it varies with the
nature of the contract. In Gannon Dunkerley case (supra), we have indi-
cated that charges for labour and services cannot be uniform fOF all types
of works contracts and they would vary with the nature of the contract and
services. It is, therefore, permissible for the rule-making authority to B
categorise works contracts into different categori~s and prescribe a dif-
ferent percentage of the value of the contract for the purpose of deduction
of amounts towards labour charges and other charges. On the basis of
material on record, it is not possible to say that the percentages for such
deduction that have been prescribed in the table appended below sub-cl.(v)
of (n) of sub-rule (4) of Rule 6 of the Rules are arbitrary. C

As regards the challenge to the rates of tax prescribed in the Sixth
Schedule on the ground that the same have been fixed with reference to
the nature of the contract and not with reference to the goods involved in
the execution of a works contract, we find that the High Court has upheld D
the same and has placed reliance on the decision of this Court in Twyford
Tea Co. v. Kera/a State, [1970] 3 SCR 383, wherein this Court has referred
to the decision in East India Tobacco Co. v. State of Andhra Pradesh, (1963]
1 SCR 404 and has laid down that the legislature has a "wide range of
selection and freedom in appraisal not only in the objects of taxation and
the manner of taxation but also in the determination of the rate or rates E
applicable" (p.393). In Gannon Dunkerley case (supra) after taking note of
the above-mentioned principle and the decisions of this Court we have held
that while fixing the rate of tax, it is permissible to fix a uniform rate of tax
for the various goods involved in the execution of a works contract which
rate may be different from the rates of tax fixed in respect of sales or F
purchase of these goods as a separate article. Here we find that while
imposing tax at a uniform rate for the various goods involved in the
execution of a works contract different rates of tax are prescribed for
different types of works contract specified in the Sixth Schedule. This only
means that rate for imposition of the tax is fixed on the basis of the nature G
of the works in which the goods are incorporated, i.e. on the basis of the
user of the goods. Such a course is not impermissible. In Ganga Sugar Co.
Ltd. v. State of U.P. & Ors., [1980] 1 SCR 769, purchase tax was levied at
the rate of Rs. 1 = 25 per quintal on sugarcane sold to sugar factories and
at the rate of 50 p. per quintal on sugarcane sold to Khandsari units. The
challenge to differential rate for lew of tax was negatived by this Court. H
102 SUPREME COURT REPORTS [1992] SUPP. 3 S.C.R.

A Similarly, in Kera/a Hotel & Restaurant Association And Ors. v. State of
Kera/a & Ors., [1990) 1 SCR 516, this Court upheld the. constitutional
validity of the provisions contained in Kerala General Sales Tax Act, 1963
and the Tamil Nadu General Sales Tax Act, 1959 whereby tax was imposed
on cooked food sotd in luxury hotels while there was exemption from tax
on cooked food sold in modest eating places. Classification based on the
B use of the. goods for the purpose of imposition of the tax was upheld ~
these cases.

. It cannot, therefore, be held that in prescribing different rates of tax f,_
'
for particular types of works contract in the Sixth Schedule, the State
C Legislature has contravened the provisions of Article 14 of the Constitu-
tion. We may, in this context, mention that the High Court while upholding
the validity of the rates fixed in the Sixth Schedule has held that while under
the Second Schedule tax on pipes, tubes and fittings of iron, cem:ent and
asbestos not falling in the Fourth Schedule is to be levied @ 8%, the tax
on the corresponding item under item No. 20 of the Sixth Schedule is levied
D at the .rate of 10%. The High Court has held the fixation of rate of tax in
respect of Item 20 in Sixth Schedule as being discriminatory and has struck
it ~own .. The said part of the judgment of the High Court has not been .
challenged by the State and we do not wish to say anything on the same.

E During the course of arguments before us, the learned counsel for
the appellant sought to challenge the validity of section 19-A of the
Karnataka Sales Tax Act which provides for deduction of tax at source.
We find that the said provision was not challenged by the appellant in the
writ petition before the High Court and was also not challenged in the
additional grounds which were submitted by the appellant in the High
F Court after the decision of this Court in Builders' Association case (supra).·
It has also not been challenged by the appellant in the special leave petition
filed before this Court. In these circumstances, we have not permitted the
appellant to raise this question.

G In the result, the appeal fails and it is accordingly dismissed with no
orders as to costs.

G.N. Appeal dismissed.