UNION OF INDIA AND ORS.versusI.T.C. LIMITED

A                         UNION OF INDIA AND ORS.
                                           v.
                                   I.T.C. LIMITED

                                    JULY 16, 1993

B                (KULDIP SINGH AND DR. A.S. ANAND, JJ.]

        Central Excises and Salt Act, 194~Section 4 (a)-Application for
  refund of excess excise duty paid under mistake of law-Lache!f-ffeld
  Government under a legal obligation to return the excess excise duty
C received/reco-vered by it since the same was not payable by the part}-Assessee
  not guilty of any /aches to claim refund.

         Sections ll(B) and 12 (B) as amended by the Amending Act,
    1991-Scope of

D          Section ll(B) as amended by the Amending Act, 1991-f'lea relating
    to interpretation of the amended provisions, coming into force only during the
    pendency of the appeal, whether could be pennitted-Held plea relating to
    interpretation of a statutory provision is essentially a question of /aw-Could
    be pennitted to be raised during the hearing of the Appeal.
E          Constitution of India, 1950 : Alticle J3(r-Plea relating to interpretation
    of a statutory provision-Coming into existence during pendency of ap-
    peal-Whether a question of la..-Whether could be pennitted to be raised
    for the fir.it time.

F         The respondent Company was carrying on the business of manufac-
    turing and selling of cigarettes and smoking tobacco. It was selling its
    products to whole-sale buyers or dealers who were further selling the same
    to secondary whole-sellers from where the products reached the retailers
    and the consumers. The respondent Company had been paying the excise
    duty under a mistake of law taking the prices charged by the whole-sale
G   dealers to the secondary whole-sellers as the basis of assessment of excise
    duty. Later on, the respondent filed five applications before the ap-
    propriate authority under the Central Excises & Salt Act seeking refund
    of the excess excise duty paid by it under mistake of law. The applications
    pertained to different periods. The Assistant Collector of Central Excise
H   rejected all the five applications.
                                           272
                               ll.0.1. i·. l.T.C.                       273

         On appeal preferred by the respondent, the Appellate Collector        A
allowtcl the appeals arising out of the three refund applications relating
to the period 20.2.1972 to 28.5.1973 and ordered consequential relief in
favour of the respondent by directing the refund of the excess excise duty
paid. The appeals pertaining to the refund application for period 1.9.1970
to 28.5.1971 and 1.10.1971 to 19.2.19.72 were, however, rejected on the
ground that the same were barred by time.
                                                                               B

      The High Court allowed the writ petition filed by the respondent and
held that the respondent could not be non-suited on the ground of limita-
tion since the excess excise duties had been paid on account of ntistake of
law and directed the Department to refund to the respondent the amount         C
pertaining to the two claims or such other lesser sum as may be found on
verification to be due.

         Hence the appeal, by way of special leave, against the High Court's
order.
                                                                               D
     During the pendency or the appeal, Sectioin 11 (B) was amende~by
the Amending Act, 1991. Under the amended provisions of Section ll(B)
an application for refund made before the commencement of the Amending
Act, 1991 should be deemed to have been made under the amended
provisions and should be dealt with in accordance with the provisions of E
the amending sub-section (2). The thrust and effect or the amendment was
that the refund of duty paid by the manufacturer could be allowed, if due,
only in cases where the assessee had not passed on the incidence of such
duty to any other person.

     Allowing the appeal, thh Court                                            F

      HELD : 1.1. It is settled law that where excess excise duty was not
payable by the party under the provisions of a statute but had in fact been
paid under a mistake of law, the party has a right to recover it and there
is a corresponding legal obligation on the part of the Government to G
refund the excess excise duty so collected because the collection in such
cases would be without the authority of law. (278-E-F]

     1.2. In the instant case, the High Court was justified in holding that
the bar of limitation which had been put against the respondent by the
Collector; Central Excise (Appeals) to deny the respondent the refund for H
    274                  SUPREME COURT REPORTS (1993) SUPP. 1 S.C.R.

A the period 1.9.70 to 25.!'.71 and 1.6.71 to 19.2.1972 was not proper as,
    admittedly, the respondent had approached the Assistant Collector, Ex-
    cise, soon after coming to know of the judgment in Valtas Case and the
    assessee was not guilty of any laches to claim refund. (279-H; 280-A)

        A.K Roy v. Valtas Limited, [1973) 2 SCR 1089; Salonah Tea Compa11y
B Lid. etc. v. Superintendent of Taxes, Nowgong and Others etc., [1988) 33
  E.L.T. 249 (SC) and S/Jri Val/abh Glass Works Ltd. & Anr. v. U11ion of India
  alld Ors., [1984) 16 E.L.T. 171 (SC), refe;red to.

          2.1. A plea which relates to the interpretation of a statutory
C provisions which comes into existence during the pendency of an appeal
    under Article 136 of the Constitution can always be permitted to be raised
    during the hearing to do complete justice between the parties since such a
    plea is essentially a question· of law. [282-C)

D        2.2. In the present case, during the pendency of the appeal in this
  court, Section 11 (B) of the Central Excises and Salt Act, 1944 was amended
  w.e.f. 20.9.1991. The matter relating to refund was thus wide open before
  this court and bad not been finally settled when the Amending Act of 1991
  came into force. As per amended Section 11 (B), all pending claims for
  refund on or before 20.9.1991 are required to be dealt with and disposed
E of in accordance with the amended provisions of law. The direction to pay
  the amount to the respondent to the extent ordered by the High Court
  contained in the interim order of this Court was a conditional oae. The
  conditional order made on 8.10.1982 does not finally conclude the "refund
  claim" of the respondent and could not take the case of the appellant out
F of the purview of Section ll(B) (3) of the Act read with the first proviso
  to section ll(B) (1) as amended. [283-G; 284-B-C)

          Union of India ,md Ors. v. Jain Spinllers Ltd. & Allr., [1992) 2 SCC
    389, relied on.

G         3.1. Section 12 (B) of the Act creates a rebuttable presumption that
    every person who bas paid excise duty has passed on the burden of the
    same to the buyers of such goods. The presumption has to be rebutted by
    the manufacturer who has paid the duty. The burden of proof is on the
    person claiming the refund to establish that he bas paid the duty but not
H   passed on the duty to the buyer of such goods. [289-F)
                     U.O.l. v. I.T.C. (DR. ANAND, J.]                 275

      3.2. In the instant case, since the respondent Company bad failed to   A
produce the necessary evidence, shows that it failed to rebut the presump-
tion that it had not passed on the burden of the excise duty to any other
person as envisaged by Section 12 (B) of the Act. Hence it is not entitled
to the refund of the amount as claimed by it., [290-8]

      Tata E11gi11ee1ing & Locomotive Co. v. Municipal C01poratio11 of the   B
City of T/1a11e and Ors., (1991) 6 JT SC 322, distinguished.

 CIVIL APPEL-LATE JURISDICTION : Civil Appeal No.3178 of 1982.

     From the Judgment and Order dated 12.4.1982 of the Delhi High           C
Court in Civil Writ No. 971 of 1976.

     K.T.S. Tulsi, Addi. Solicitor General, Ms. A. Subhashini and A.
Subba Rao for the Appellants.

      Harish N. Salve, Ms. Amrita, Rajinder Narain (For JBJ:}.& Co.) and     D
 D.N. Mishra for the Respondent.

      The Judgment of the Court was delivered by

      DR. ANAND, J. This appeal, by special leave, is directed against the
judgment and order of the High Court of Delhi in Civil Writ No. 971 of       E
1978 dated 12.4.1982.

         The respondent, carries on the business of manufacturing and selling
  cigarettes and smoking tobacco at its five cigarette factories including one
  at Saharanpur in the State of U.P. The respondent sells its products to
  whole-sale buyers or dealers who make further sales to secondary whole p
  sellers from where the products reach the retailers and the consumers.
  During the period September 1, 1970, to February 28, 1973, the respon-
  dents followed the self removal procedure laid down in Chapter VII A of
  the Central Excise Rules on payment of excise duty, as the manufacture of
  cigarettes affects excise duty under the Central Excise & Salt Act, 1944
  (hereinafter the Act). The case of the respondent in the writ petition was G
  that under a mistake of law regarding the true interpretation of Section 4
  (a) of the Act, it cleared its products but paid excess excise duty under the
  impression that the prices charged by the whole sale dealers to the secon-
  dary whole sellers would form the correct. basis of assessment and not the
. price at which goods were sold to whole sale dealers. Consequent upon the H




                           .f;'f•
    276                   SUPREME COURT REPORTS [1993] SUPP. 1 S.C.R.

A judgment of this Court in the case of A.K. Roy v. Valtas Limited, (1973] 3
  SCC 503 = [1973] 2 SCR 1089, wherein it was held that under Section 4
   (a) of the Act, the value for the purpose of assessment is required to be
  determined on the basis of the price at which the manufacturer sells the
  products to the whole sale dealers and not the price at which the whole
B sale dealers further make a sale of the product lo secondary whole sellers,
  the respondents filed five applications before the appropriate authority
  under the Act seeking refund of the excess excise duty paid under mistake
  of law. Two applications pertained to the period 1.9.70 to 28.5.71and1.6.71
  to 19.2.72 involving refund of Rs. 23,68,686.85 and 26,21,356.16 respectively.
  The other three applications, related to the period 20.2.72 to 28.2.73. The
C Assistant Collector of Central Excise by his order dated 9.10.73 rejected
  all the five applications. The respondent preferred appeals before the
  Collector of Central Excise (Appeals). The Appellate Collector by an
  order dated 30.12.75, allowed the appeals arising out of the three refund
  applications relating to the period 20.2.72 to 28.2.73, and set aside the
D orders passed by the Assistant Collector and ordered consequential relief
  in favour of the respondent by directing the refund of the excess excise
  duty paid. The appeals pertaining to the refund applications for Rs.
  23,68,686.85 and Rs. 26,21,356.16 for the period 1.9.70 to 28.5.71and1.6.71
  to 19.2.72 respectively were however, rejected by the Collector (Appeals)
  on the ground that the same were barred by the time. The respondents did
E not take the matter further under the state but instead filed W.P. N<l. 971
  of 1976 seeking quashing of the order of the Collector of Central Excise
  (Appeals) dated 30.12.75 and also sought a direction by way of mandamus
  for refund of the sum of Rs. 49,90,043.01 with interest @ 12% per annum
  thereon. The Division Bench of the High Court came to the conclusion that
F on account of a mistake of law, excess excise duty had been paid by the
  respondent and received by the Department. The Bench held that there
  was a leagal obligation on the part of the Government to return the excess
  excise duty received/recovered by it since the same was not payable by the
  party. Relaying upon there. earlier judgment in Chemicals & Plastics and
  Anr. v. Union of India & Ors., CWP No. 147/79 decided on 10.7.79, the
G Division Bench allowed the writ petition filed by the respondents herein
  and held that the respondent could not be non-suited on the gound cf
  limitation. The Court set aside the order of the Collector Central Excise
  (Appeals) and directed the Department to refund the sum of Rs.
  49,90,043.01 to the respondent. The Bench observed:
H
                         U.0.1. v. l.T.C.[DR.ANAND,J.]                      277

            "The duty of excise can be which is levied in accordance with the       A
            act and any money which is realised in excess of what is permissible.
            in law would be a realisation made outside the provisions of the
            Act. The payment of the excess excise duty which has been made
            by the petitioners (or the period September 1, 1970 to February
            19, 1972 cannot be legally termed as payment of excise dnty             B
            authorised by law as the authorities under the Act themselves did
            not treat the excess duty in identical circumstances paid for the
            subsequent period from February 20,1972 to February 28, 1973, as
            authorised by law. The excess excise duty was not payable by the
            petitioners under the Act and there is a corresponding legal right
            in the petitioners to recover it. This right cannot be defeated by a    C
            mere limitation in the Act or the Rules when the collection is
            without the authority of law."

          The Department was directed to refund to the respondent the sum
    of Rs. 23,68,686.85 plus Rs. 26,21,356.16 "or such other lesser sum as may      D
    be found on verification to be due" within a period of six months from the
'   date of the judgment i.e. April 12,1982. Aggrieved, by the judgment of the
    High' Court, the Department filed special leave petition and on 8.10.82
    special leave was granted. In the stay application filed by the Union of
    India, the Bench directed the appellant to pay to the respondent the
    amount which it was required to refund under the impugned jndgment              E
    within a period of six weeks of the respondent furnishing bank guarantee
    to the Collector of Central Excise, Meerut for the said amount and that in
    case, the respondent fails in this appeals, it shall refund the amount with
    interest @ 12% per annum to the appellants.

           On 15.4.93, when the case came up for hearing before us, learned F
    counsel for the appellants raised the plea based on Section 11 B, as
    amended by the Amendment Act 40 of 1991, to deny refund to the
    respondent. After hearing learned counsel for the parties, we directed the
    respondent to furnish documentary or other evidence as the respondent
    may deem appropriate to establish that the amount of duty of excise in G
    relation to which the refund is claimed was collected from or paid by him
    and the incidence of such duty had not been passed on by him to any other
    person. The appeal was directed to be posted for hearing on 10.5.93. The
    respondents did not file any documentary or other evidence nor even an
    affidavit stating that the incidence of duty of excise in relation to which the H
      278                   SUPREME COURT REPORTS [1993) SUPP.1 S.C.R.

  A refund was being claimed had not been passed on to any other person. The
      arguments were heard fmally on 14.5.93 and the judgment was reserved,
      though liberty was granted to learned counsel for the parties to file written
      submissions if any in support of their arguments. The respondent filed
      written submissions on 31.5.93. Alongwith the written submissions an af-
  B   fidavit was also filed. No other material or documentary evidence, to
      establish that the burden of excess excise duty had been borne by it and
      not passed on to any other person, was filed. The Union of India filed there
      written submissions on 21.6.93.

           We have given our careful considerations to the arguments made at
  C   the Bar and those contained in the written submissions.

          The appellants do not dispute that for the purpose of determining
    assessable value, it is the price at which the manufacturers sell the products
    to the wholesale dealers and not the price at which the wholesale dealer
  D make further sale to the secondary whole sellers which is to be taken into .
!   account. The High Court found on the basis of the material on te record,
    that the appellants had received from the respondent the duty of excise in
    excess of what was admissibfo in law, because of a wrong inte:pretation
    placed by the respondent on the provisions of Section 4 of the Act. The
    respondent realised the mistake after this Court in Valtas case (supra)1aid
  E down the correct basis for assessment in such cases. It has been settled by
    this Court that where excess duty was not payable by the party under the
    provisions of a statute but had in fact been paid under a mistake of law,
    the party has a right to recover it and there is a corresponding legal
    obligation on the part of the Government to refund the excess duty to
  F collected because the collection in such cases would be without the
    authority of law. The payment and recovery of excess excise duty was thus
    on account of a mutual mistake. The Collector Central Excise (Appeals)
    accepted this position and allowed three refund applications but rejected
    the two applications as barred by limitation. The Department did not
    question the order of the Collector Central Excise (Appeals) granting three
  G refund applications and that order acquired finality. The High Court in the
    writ petition filed by the respondent against the rejection of two refund
    applications found that the respondent could not be non-suited on the plea
    of limitation since the excess ex6se duty had been paid on account of
    mistake of law and set aside the order of the Collector Central Excise
  H (Appeals) rejecting two refund applications and by a writ of mandamus
                     U.0.1. v. l.T.C. [DR. ANAND,J.]                      279

directed the refund as claimed subject, however, to verification.                A
      In Salonah Tea Company Ltd. Etc. v. Superintendent of Tizxes Now-
gong & Others. etc., (1988) 33 ELT 249 (SC) this Court said :

        "Normally speaking in a society governed by rule of law taxes
        should be paid by citizens as soon as they are due in accordance         B
        with Jaw. Equally as a corollary of the said statement of Jaw it
        follows that taxes collected without the authoriiy of law, as in this·
        case, from a citizen should be refunded because no State has the
        right to receive or to retain tai<es or levies realised from citizens
        without the authority of law."                                           C
      Dealing with the question of bar of limitation for making a claim for
refund of tax or duty paid or collected without the authority of law in such
cases, the Court opined :

            "Normally iu a case where tax or money has been realised             D
        without the authority of law, the same should be refunded a.nd in
        an application under Article 226 of the Constitution the Court has
        power to direct the refund unless there has been avoidable Iaches
        on the part of the petitioner. It is true that in some case the period
        of three years is normally taken as a period beyond which the Court      E
        should not grant relief but that is not an inflexible rule."

       In Shri Vallabh Glass Works Ltd., and Anr. v. Union of India & Ors.,
1984 (16) ELT 171 SC, this Court, while examining the question as to what
is the point of time from which the limitation should be deemed to
commence observed that relief in respect of payments made beyond the             F
period of three years may not be granted from the date of filing of the
petition, taking into consideration the date when the mistake came to be
known to the party concerned. Just as an assessec cannot be permitted to
evade payment of rightful tax, the authority which recovers tax without any
authority of law cannot be permitted to retain the amount, merely because        G
the tax payer was not aware at that time that the recovery being made was
without any authority of law. In such cases, there is an obligation on the
part of the authority to refund the excess tax recovered to the party, subject
of course to the statutory provisions dealing with the refund.

      We are, therefore, of the opinion that the High Court, while dispos- H
    280                  SUPREME COURT REPORTS (1993] SUPP. 1 S.C.R.

A ing of the writ petition under Article 226 of the Consitutition of India, was
    perfectly justified in holding that the bar of limitation which had been put
    against the respondent by the Collector Central Excise (Appeals) to deny
    them the refund for the period 1.9.1970 to 28.5.71and1.6.l971to19.2.1972
    was not proper as admittedly the repondent had approached the Assitant
B   Collector Excise soon after coming to know of the judgment in Voltas case
    (supra) and the assessee was not guilty of any !aches to claim refund.

         This now takes us to the basic question, viz. the right of the respon-
  dent to receive refund otherwise than in accordance with the provisions of
  Section llB of the Act as amended by Act 40 of 1991, which amendments
C are aimed. at preventing "unjust enrichment". Learned Counsel for the
  appellants urged that the excise d~, being an indirect tax, iq)assed on to
  the consumers and therefore the respondent was not in law justified to
  claim refund since, it was not even stated by the respondent in its affidavit
  that they were going to return the amount to various consumers or that any
D consumer had in f~ct sought such a refund. Reference in this connection
  was made by the Jearned counsel specially to the provisions of Section llB
  (3) of the Act as introduced by Act 40 of 1Q91 with effect from 20.9.1991
  and it was submitted that with effect from 20th of September 1991, no
  person is entitled to claim and obtain refund of the excess duty paid except
  in aecordance with the provions of Section llB (2) of the Act, as amended,
E and that since the respondent had failed to produce any documentary.·
  evidence to show that it had not passed on the burden-of excess excise duty
  to the consumers, it was not open to it to claim and oli!aix>-the refund.
  Learned counsel therefore urged that in accordance with the directions of
  this Court in its order dated 8.10.1982, the respondent be directed to pay
F back the amount which was received by them under orders of this Court
  with interest @ 12% p.a.

          Learned counsel for the respondent, on the other hand submitted,
    both at the Bar and in the written submissions, that since the appellants
    had not taken any objection based on the goctrine of "unjust enrichment"
G   either in the writ petition or in the special leave petition or by way of an
    additional ground before this Court, it could not be permitted to raise the
    plea of "unjust enrichment" for the first time during the hearing of the
    appeal. It is urged that since the objection based on "unjust enrichment" is
    not a pure question of law but a mixed question of fact and law, it should
H   not be permitted to be raised at the belated stage during hearing of the
                           U.0.J. v. l.T.C. [DR. ANAND, J.)                    281

     appeal. Learned counsel then submitted that Section UB(3) of the Act has         A
     no application to the present case since the prohibition contained in the
     said sub-section relates to refund to be made after the introduction of the
     said sub-section and the same cannot apply to a case where refund has
     "already been made" 'as in this case'. Learned counsel submitted that by
     the order dated 8.10.1982 of this Court, "refund" as directed by the High
     Court has already been made and, therefore, the present case does not
                                                                                      B
     attract the prohibition contained in Section 118(3) of the Act. Without
     prejudice to this submission, it was urged by learned counsel for the
     respondent that even if the respondent is directed to pay back the amount
     received by it under orders of this Court, the direction of payment of
     interest@ 12% p.a. as contained in the order of this Court dated 8.10.1982       C
     be not applied and no interest be directed to be paid by the respondent.
     Placing reliance on the judgment in Tata Engineering and Locomotive
     Company Ltd. v. Muncipa/ Corporation of the City of Thane and ors., (1991)
     6 JT SC 322, it was urged that the plea of unjust enrichment be negatived
     and the appeal dismissed.
                                                                                      D
            Let us first deal with the objection raised on behalf of the respondent
..   that the plea based on Section 11B cannot be permitted to be taken during
     the hearing of the appeal for the first time. Indeed the respondent is right
     in contending that the plea of 'unjust enrichment" had not been canvassed
     before the High Court in the writ petition. The writ petition was directed       E
     against the order of the appellate authority rejecting two refund claim
     petitions as time barred. The writ petition was decided in 1982. The
     amended provisions came into force with effd:t from 20.9.1991, while the
     appeal was pending in this Court. The appellant could, therefore, not have
     taken the ground contained in Section 11B (2) or (3) of the Act in their         F
     written statement in the High Court. Though as pointed out by learned
     counsel for the respondent, the appellant has not taken a specific plea
     based on the doctrine of 'unjust enrichment" in the Memo of appeal in thi'
     Court also but we fi\ld that in paragraph 7 of the Memo of appeal it has
     been said:
                                                                                      G

             "7. The High Court failed to note that it is not the case of the
             Respondent that they had received any claim for refund in this
             regard from even a single customer of theirs in respect of the
             various periods in question."                                            H
    282                   SUPREME COURT REPORTS [1993) SUPP. l S.C.R.

A         Again, in paragraph 3 of the stay appliation (CMP 24970 of 1982), it
    has been inter a/ia stated :

            "...... It may be further stated that the respondent will not be in any
            manner prejudiced since they have already realised from their
            customers the excise duty on the manufactured goods. The balance
B           of convenience would also lie in favour of a stay of the judgment
            of the Delhi High Court pending disposal of the appeal... .."

          The respondent did not controvert the above averments. Even other-
    wise, the appellants cannot be refused permission to raise a plea relating
C   to the interpretation of the amended provisions of Section llB of the Act,
    which came into force only during the pendency of the appeal. A plea
    which relates to the interpretation of a statutory provisions which comes
    into existence during the pendency of an appeal under Article 136 can
    always be permitted to be raised during the hearing to do complete justice
    between the parties. Such a plea relating to interpretation of a statutory
D   provision is essentially a question of law and can be allowed to be raised
    for the first time during the hearing of the appeal and that is why on the
    oral prayer of learned counsel for the appellants we permitted that plea to
    be raised. In so far as the factual aspect of the enquiry is concerned, both
    for purposes of Sections 11B(2) and 12B of the Act, this Court bas itself
E   granted an opportunity to the respondent to rebut the presumption which
    can be raised under Section 12B of the Act. The objection raised by the
    respondent, thus, bas no force or merit.

          Section llB of the Act regulating refund of Central Excise Duty has
    undergone a vast change after its amendment by the Central Excises
F   Customs Laws (Amendment) Act 1991 (No. 40 of 1991) with effect from
    20th of September 1991. Sub-section (1) of Section ilB, after its amend-
    ment, provides that any person claiming refund of any duty of excise may
    make an application for refund of such duty to the Assistant Collector of
    Central Excise before the expirty of six months from the relevant date in
G   a prescribed form supported by documentary and other evidence intended
    to establish that the amount of duty of excise in relation to which such
    refund is claimed was collected from or paid by him and the incidence of
    such duty bas not been passed on by him to any other person. The first
    proviso to the sub-section lays down that where an application for refund
    has been made before the commencement of Act No. 40 of l'l91 such
H   application shall be deemed to have been made under the amended
                     U.0.1. v. I.T.C. [DR. ANAND, J.)                  283

provisions and shall be dealt with in accordance with the provisiops of' A
sub-section (2) as amended. In the second proviso, it is stated that the
limitation of six months shall not apply where such duty has been paid
under protest. Sub-section (2) of Section 118 inter alia provides that the
Assistant Collector of Central Excise while entertaining the claim for
refund of duty may order the refund of the amount of duty paid by the
claimant provided he had not passed on the incidence of such duty to any B
other person. The thrust of the amendment vide Section 11{8)(2) of the
Act is that the refund of duty paid by the manufacturer can be allowed, if
due, only in cases where the assessee has not passed on the incidence of
such duty to any other person.

     Sub-section (3) of the amended Section llB provides :                     c
        "(3) Notwithstanding anything to the contrary contained in any
        judgment, degree, order or direction of the Appellate Tribunal or
        any court or in any other provision of this Act or the Rules made
        thereunder or any other law for the time being in force, no refund D
        shall be made except as provided.in sub-section (2).'

      It is, thus, seen that under Section 11B{3) (supra) no refund shall be
made except as provided for in sub-section (2), as amended, notwithstand-
ing anything to the contrary contained in any judgment, order or direction
of the Appellate Tribunal or any court or in any other provision of the Act    E
or the Rules made thereunder or under any other law for the time being
in force. We are not persuaded to agree with learned counsel for the
respondent that the amended provisions of Section 118 can be applied only
prospectively i.e. to refund claims made after the introduction of the
amendment and would not apply to pending cases and refund claims filed         p
prior thereto and that the prohibition contained therein cannot apply to
the present case. The refund in the present case was ordered by the High
Court in the writ petition by setting aside the orders of the statutory
authority refusing the claim for refund, as barred by limitation. The judg-
ment of the High Court is under appeal before us. It was during the
pendency of the appeal in this Court that Section 118 of the Act was           G
amendo.d l:>y Act 40 of 1991 with effect from 20.9.1991. The matter relating
to refundwas thus wide open before this Court in the present appeal and
had not been fmally settled when Act 40 of 1991 came into force. As per
amended Section 118, all pending claims for refund ~n or before 20.9.1991
are required to be dealt with and disposed of in accordance with the           H
     284                   SUPREME COURT REPORTS (1993) SUPP. 1 S.C.R.

A amended provisions of law. By operation of Section 118(3), as amended,
    notwithstanding the order given by the High Court in the writ petition, no
    refund can be inade to the respondent except in accordance with th'
    provisions of Section 118(2) of the Act. The direction to pay the amount
    to the fc:spon dent to the extent ordered by the Delhi High Court contained
B in !lie interim order of this Court dated 8.10.1982 was a conditional one
    and subject to the respondent (i) furnishing bank guarantee to the Collec-
   tor of Central Excise, Meerut for the amount in question and (ii} that in
    case the respondent fails in' this appea~ it shall be liable to pay interest @
   12% p.a. while refunding the amount to the appellant. Thus, the amount
C in question was directed to be paid to the respondent by this Court only
   as an interim arrangement, during the pendency of the appeal and could
   not be construed to be an order of 'execution' of the order and directions
   of the High Court. The conditional order made on 8.10.1982 did not finally
   conclude the "refund claim' of the respondent and cannot take the case of
   the appellant out of the purview of Section 118(3) of the Act read with the
D first proviso to Sec. 1l B (1), as amended. The argument on behalf of the
   respondent to the contrary is not only spacious but also fallacious. In this
   connection, it would also be advantageous to note a judgment of a three
   Judge Bench of this Court in Union of India & Ors. v. Jain Spinners limited
  and llllT., (1992) 4 sec 389, as the law on the question of retrospectivity of
E Section 118(3) has been settled therein. In Jain Spinners' case (Supra),
   refund was allowed by the Assistant Collector as a result of the approval
   of the classification list as filed by the assessee provisionally. Subsequently,
   on receipt of a test report ffom the Deputy Chief Chemist, the department
   took the view that the refund had been erroneously granted and sought to
F recover it by issuance of a notice. The Assistant Collector confirmed the
   demand for payment of the duty amount which had been erroneously
  refunded The assessee questioned the order of the Assistant Collector
  through a writ petition before the High Court and also by filing an appeal
  before the Collector of Central Excise (AppCals}. The High Court ;ssued
  an interim stay in favour of the assessee against the demand confirmed by
G the Assistant Collector's order subject to the assessee depositing the
  amount of the demand in the coutt. The respondent (Union of India) was
  permitted to withdraw the amount by an interim order of the Court on
  19.2.1986 subject to the condition that it would pay interest at bank rate and
  refund the amount alongwith interest within two months of the decision of
H the writ petition if the petitioner ultimately succeeded. The appeaf filed by
                      U.0.1. •·. l.T.C. IDR. ANAND. J.J                  285

the assessee before the appellate authority, however, succeeded and con-        A
sequential relief wa.o;; ordered, "if otherwise admissible". The assessee,
thereupon, filed an application before the Assistant Collector for refund
of the duty plus interest as per the conditions contained in the interim
order of the High Court. The assessce also filed an ~pplication before the
High Court stating that in view of the appellate order, the writ petition no    B
longer survived and sought a direction to the respondents to pay the
amount along with interest. The High Coun allowed the application of the
assesee on 19. 9.1991 and directed the Union of India to refund the amou/11
due to the assessee. On 20.9.1991, Act 40 of 1991 came into force, prohibit-
ing the grant of refund except in accordance with the provisions of sub-
section (2) of Section llB. The Union of India filed an application stating     C
 that whether it was the High Court's order of 19.2.1986 or 19.9.1991, it was
the duty of the Assistant Collector to satisfy himself that no part of the
duty in respect of which refund was claimed was recovered by the assessee
from any other person before making an order of refund. The Union of
India sought two months time to consider the claim for refund in accord-        D
ance with the amended provisions of Section llB. The application was
rejected by the High Court in view of the order dated 19.9.1991, which had
been passed prior to the coming into force of the Amendment Act with
effect from 20.9.1991. In November, 1991, the assessee filed a contempt
pettion alleging failure on the part of the officers of the Union of India to   E
comply with the High Court's order granting refund to the assessee. When
the petition came up for hearing on 18.3.1992, the counsel for the respon-
dent submitted that the question regarding the applicability of the amended
provisions was under consideration of the Government and he sought time.
On 13.4.1992, the Assistant Collector passed an exhaustive order holding
that since the assessee had· passed on the incidence of duty to others, it      F
was not entitled to receive the refund. The High Coun at the time of hearing
of the contempt petition on 20.4.1992 was apprised of the order of the
Assistant Collector but it held that the decision of the Assistant Collector
was not a decision of the Government and directed the Union of India to
deposit the entire amount of refund with bank interest on or before 24.4.1992. G
It was in this background, that the Union of India filed an appeal before
this Court against the order dated 20.4.1992 passed by the High Court to
give effect to its earlier order dated 19.2.1986. This Court held that the
High Court's order of 19th February 1986, under which alone the refund
was claimed could not be an exception to the provi~ions of Section 11B(3)       H
    ?~6                  SUPREME COURT REPORTS [1993] SUPP. 1 S.C.R.

A of the Act, anu that the High Court could not have made any order, after
    September 20, 1991 directing the payment of refund contrary to the
    amended provisions of Section 118(2) of the Act. The Court expressed the
    view that Section 118(3) of the Act, as amended, would apply to all cases
    which were pending notwithstanding any order or decree or judgment of
B   a court or tribunal or the provisions of any other law for the time being in
    force. This Court imer a/ia held :

            "The only question before us is whether the impugned order dated
            20.4.1992 of the High Court which is passed to give effect to its
            earlier order of 19.2.1986 is valid or not. Since, we are of the view
c           that the order of 19.2.1986 attracts the provisions of sub-section
            (3) of Section UB of the Act which has come into force on
            20.9.1991, the respondents are not entitled to take advantage of
            the said order unless they succeed in showing to the statutory
            authorities that they had not passed on the whole or any part of
            the duty in question to others."
D
          Repelling on argument raised on behalf of the assessee that the
    amount deposited in court or withdrawn under orders of the court, would
    stand on a different footing then the orders of "refund" contemplated by
    Section 118(3) of the Act, and would not fall within the mischief of the
E   prohibition contained therein, Sawant J., speaking for the three Judges
    Bench observed :

            "Further, if the contention advanced by the learned counsel is
            accepted, it would defeat the amended provisions of the Act. It
F           would then be open to the assessees to obtain orders from courts
            as in the present case, and instead of paying the assessed amount
            of duty to the authorities, deposit it in court and raise a plea that
            what is deposited in Court is not duty and the assessees are entitled
            to get the refund either directly from the court or if it is withdrawn
            by the authorities, from the authorities, notwithstanding that they
G           have passed on the duty to others. It would create two artificial
            classes of assessees, viz., those who have paid the duty to the
            obtained orders from the cour!s for depositing the duties in courts.
            The former will, and the latter will not, be governed by the
            amended provisions of the Act. This would result in a dis-
H           criminatory and indivious situation. The view canvassed by the
                      U.0.1. '" l.T.C. [DR. ANAND, J.]

         learned counsel will al'o open a new door for unjust enrichment       A
         by enabling the assessees to bypass the statutory provisions which
         have been specifically enacted to prevent the malpractice..

      The judgment in Jain Spinners' case (supra), therefore, answers fully
the submissions raised on behalf of the respondent and we reject the plea       B
raised on behalf of the respondent that the prohibition contained in Section
11B(3) of the Act would not apply to the facts and circumstances of the
present case more so because the judgment and order, of the High Court
directing refund was pending final adjudication by this Court when the
amended provision of Section 11B(3) of the Act came into force with effect
from 20.9.1991.                                                                 C

       That apart, the argument on behalf of the respondent that in the
 present case "refund has already been made" to the respondent in accord-
 ance with the directions of the High Court by virtue of the interim order
 of the Court dated 8.10.1982 is factually incorrect. It is based on mis- D
 construction both of the order of the High Court as well as the interim
 order of this Court. After quashing the orders of the Collector Central
 Excise (Appeals), holding the two refund applications as time barred, the
·High Court allowed the writ petition and issued a mandamus "directing the
 respondents to refund to the petitioners the sum of Rs. 23, 68,686.85 + Rs.
 26,21,356.16 or such other lesser sum as may be found on verification to be E
 due". Thus, refund had to be made, even under the orders of the High
 Court dated April, 12, 1982, only after "verification of the refund due". The
 order was, thus, not an order absolute in terms. Admittedly, the respondent
 did not approach the competent authority for "verification of the refund
 due" and no amount till date has been verified by the competent authority
 to be due to the respondent. Again, payment made to the respondent under F
 interim orders of this Court dated 8.10.1982 was only an interim arrange-
 ment pending disposal of the appeal, against the judgment of the Delhi
 High Court and was further subject to the stipulations and conditions
 contained therein. That interim order cannot be treate<! to be an order of
 "refund" in terms of the directions of the High Court. It is, therefore, futile G
 for the respondent to contend that Section 11B(1)(2) and (3} have no
 application to the prese,nt case. We are of the opinion that in the facts and
 circumstances of the present case, the provisions of Section llB as
 amended by Act 40 of 1991 are clearly attracted to the present case
 because the order of the Division Bench of the High Court had not
 acquired any finality when the amendment Act of 1991 came into force and H
    288                  SUPREME COURT REPORTS (1993] SUPP. I S.C.R.

A the present appeal was pending in this Court. All pending claims for refund
    on or from 20.9.1991, are required to be dealt with and disposed of only
    in accordance with the amended provisoins of the law, by reason of the
    amended Section ll8(3) and the present case is no exception.

         Under the amended provisions of Section 118, claim for refund has
B to be made by an assessee to be Assistant Collector Central Excise in the
  prescribed manner, supported by documentary and other evidence, to
  establish that the claimant had not passed on the burden of the excise duty
  to any other person and had borne it himself, but with a view to obviate
  delay, which would result by an order of remand aimed at providing an
C opportunity to the respondent to establish by any material or documentary
  evidence before the Assistant Collector Excise, that it had not passed on
  the incidence of duty to any other person we directed the respondent to
  furnish documentary or other evidence, as it may deem appropriate, to
  establish that the amount of duty of excise in relation to which the refund
  is claimed was collected from or paid by him and that the incidence of such
D duty had not been passed on by him to any other person. The respondent
  has not furnished any documentary or other evidence at all. With the
  written submissions, the respondent has however, filed an affidavit in which
  it has been stated in paragraph 3 as follows :

E           'Without prejudice to the contention that sub-section (3), or sub-
            section (2) ( d) or any other sub-section of S. 118 of the Central
            Excises & Salt Act, 1944 (hereinafter referred to as the 'Act"), as
            amended by Central Excises & Customs Laws (Amendment) Act,
            1991 (Act 40 of 1991) is not applicable to the present case, since
            refund has already been made pursuant to a writ issued by the .
F
            Delhi High Court under Article 226 of the Constitution of India,
            it is stated that differential duty, in respect of which refund has
            already been made to the Respondent company, was not passed
            into the customer, as explained in the illustration below. It may be
            clarified that the differential duty, in the present case, relates to
G           the differential between the duty calculated on the basis of (i) the
            price at which the Respondent Company sold the goods to WDs
            (ls! sale) and (ii) the higher price at which the wholesale dealers
            re-sold the goods to Secondary Wholesale Dealers (2nd sale)."


H                                                             (Emphasis ours)
                    U.0.1. v. l.T.C.[DR.ANAND,J.]                    289

      This averment is not at all satisfactory. It does not go to show that A I
the respondent did not pass on the burden of the excess excise duty to any
other person. The expression "was not passed on to the customer, as
explained in the illustration" is vague and non-specific. It is not stated as
to at what rate the duty was collected by the respondent in the present
case. The "illustrations" given in the affidavit cannot carry the matter any B
further nor can the same be any substitute for a clear and categoric
statement of fact that the excess duty was paid by the assessee or collected
from it and that its incidence was not passed on by the assessee to any
other person. There is no averment, much less a clear and specific one,
even to show that the respondent did not collect excise duty at the higher
rate (even according to the illustrations) when they sold the goods, since C
the price was an integrated or cum duty price. The respondent has not filed
any evidence or material whatsoever to show that the burden of excess
excise duty has been borne by them and not passed on to any other person
in spite of ample opportunity given by this Court.
                                                                           D
     Section 12(B) of the Act which was also introduced by the Amending
Act 40 of 1991 lays down as follows:

        "S. 12B. Presumption that the incidence of duty has been passed
        on 'to the buyer-Every person who has paid the dnty of excise on
        any goods under this Act shall, unless the contrary is proved by   E
        him, be deemed to have passed on the full incidence of such duty
        to the buyer of such goods."

      This Section, thus, creates a rebuttable presumption that every per-
son who has paid excise duty has passed on the burden of the same to the F
buyers of such goods. The presumption has to be rebutted by the manufac-
turer who has paid the duty. The burden of proof is on the person claiming
the refund to establish that he has paid the duty but not passed on the duly
to the buyer of such goods. Since, this Court granted sufficient opportunity
to the respondent to furnish such documentary or other evidence as it may
wish to produce to establish that it had not passed on the incidence of the G
excess excise duty to the buyers of such goods and despite the grant of that
opportunity, it has failed to produce any such evidence or material and the
affidavit filed by it falls completely short of the necessary averments, we
would consider it futile to either remand the case to the Assistant Collector
Excise or to grant an opportunity to the respondent to file a fresh applica- H
    290                  SUPREME COURT REPORTS [1993] SUPP. 1 S.C.R.

A tion before the Assistant Collector Excise under Section llB(l) and (2) of
    the Act to seek refund in the manner known to law by adducing such
    evidence as is required by the amended provisions of law. The failure of
    the respondent to produce the necessary evidence before us goes to show
    that the respondent has failed to rebut the presumption that it had not
B   passed on the burden of the excise duty to any other person as envisaged
    by Section 12(B) of the Act (supra).

        Reliance placed by the respondent on the judgment of this Court in
  Tata Engineering and Locomotive Company's case (supra) is misplaced. In
  that case, this Court found, on the basis of the pleading and the material
C on the record, that TELCO (appellants in the appeal) had not, unlike the
  present case, recovered the amount paid by them by way of octroi duty
  from any third person. The Court noticed :

            "The learned counsel for the respondent then contended that the
D           appellants have recovered the amounts paid by them by way of
            octroi duty from the dealers or the customers to whom they had
            sold the goods and therefore they are in any case not entitled to
            get a refund. The argument was that if refund is ordered it would
            amount to allowing the appellants to unjustly enrich themselves at
            the cost of the public to whom the burden had already been passed.
E           This argument is based on the ground that in the selling price the
            Company had merged the octroi duty originally paid as deposit and
            if a refund is made the company would be getting an additional
            amount over and above normal price which they would have
            charged but for the fact that they were initially asked to deposit
F           octroi. There is no evidence, that any of the articles sold by the
            Company is subject to any price control by the Government or that
            the Company had charge<l any octroi separately in the bills. In-
            voices and the other documents of sale to the outside purchasers
            produced before us do not also show that any octroi was separately
            charged and collected by the Company. It may be mentioned that
G           in the re_joinder filed by the appellant in the writ petition they have
            specifically denied that they "have recovered the amount paid by
            them by way of octroi duty from the dealers to whom they bad sold
            the goods or that the dealers in turn have recovered the octroi duty
            from the customers." In view of this the question of unjust enrich-
H           ment does not arise.n
                        U.0.I. v. I.T.C.[DR.ANAND,J.J                     291

           Ti'.LCO case (supra) is thus clearly distinguishable and has no ap-   A
    plication to the present case.

           Thus, in view of the amended provisions of Section 11B of the Act,
1   since the responent has failed to establish that it had not passed on the
    burden of the excess excise duty to any other person, it is not entitled to
    the refund of the amount claimed by it and we accordingly allow this appeal B
    and set aside the order of the Divisjon Bench of the Delhi High Court
    directing the refund of Rs. 23,68,686.85 plus Rs. 26,21,356.16 while uphold-
    ing the order of the High Court as regards the question of limitation.
    Further, in accordance with the interim order of this Court dated 8.10.1982,
    we direct the respondent to refund to the appellants the sum of Rs. C
    23,68,686.85 and Rs. 26,21,356.16 (total Rs. 49,90,043.01) with 12% interest
    per annum from the date when the amount ws received by the respondent,
    within a period of eight weeks from today since the respondent has been
    unable to make goods its submission that it should not be burdened with
    the payment of interest at the rate of 12% per annum, which was a specific
    condition contained in the interim order dated 8.10.1982. On the failure of D
    the respondent to pay the amount as per the above direction, the appel-
    lants shall be entitled to encash the bank guarantee and I or take snch other
    steps as may be available to it in law for recovery of the amount. The
    amount after recovery shall be appropriated by the appellants in the
    manner provided by the amended provisions of the Act.                         E
          In the pecnliar circumstances of the case we however leave the
    parties to bear their own costs.

    S.K.                                                      Appeal allowed.