Title: ANOMALIES IN SALES TAX
1ANOMALIES IN SALES TAX FEDERAL EXCISE
SHEKHA MUFTI CHARTERED ACCOUNTANTS
- Adnan Mufti FCA
- Partner, Shekha Mufti
- The Institute of Chartered Accountants of
Pakistan - 24 February 2009
An independent member firm of MOORE
STEPHENS INTRNATIONAL LIMITED members in
principles cities across the world
2OVERVIEW
SHEKHA MUFTI CHARTERED ACCOUNTANTS
- SALES TAX
- POLICY INTERPRETATION OF ISSUES
- Audit by Directorate of Revenue Receipt Audit
(DRRA) - Export Refunds
- Refund on Building Materials, Steel, etc
- Refunds under Section 66
- Multiple Audits
- Record Keeping Audit
- Toll Manufacturing
- Work Back Assessment
- Consumption of Procured Goods vs. Taxable
Activity - Accounting for Refunds
3OVERVIEW
SHEKHA MUFTI CHARTERED ACCOUNTANTS
- SALES TAX (cont)
- LEGAL ISSUES
- Value of Supply not inclusive of Special Excise
Duty - Market Values
- Taxation of Retailers
- Award of Stay by Collector (Appeals)
- Sales Return beyond 180 days
- Recovery of Adjudged Tax
- Revised Return
- Wastage
- Input tax Credit on Fixed Assets
- Input Tax on Goods Destroyed
- Mismatching of Penal Interest
4OVERVIEW
SHEKHA MUFTI CHARTERED ACCOUNTANTS
- SALES TAX (cont)
- PROCEDURAL MATTERS
- Apportionment of Input Tax on Exports
- Audit Report
- Verification of Transactions
- Alternative Dispute Resolution
5OVERVIEW
SHEKHA MUFTI CHARTERED ACCOUNTANTS
- FEDERAL EXCISE
- LEGAL ISSUES
- Duty Adjustment
- Basis of Duty Adjustment
- Credit Debit Note
- SED Drawback
- Mandatory Payment Before Filing Appeals
- PROCEDURAL MATTERS
- Duty on Franchise Fee / Royalty
6SHEKHA MUFTI CHARTERED ACCOUNTANTS
7SHEKHA MUFTI CHARTERED ACCOUNTANTS
- Policy Interpretation of Issues
8AUDIT BY DIRECTORATE OF REVENUE RECEIPT AUDIT
(DRRA)
SHEKHA MUFTI CHARTERED ACCOUNTANTS
- The Sales Tax Appellate Tribunals and Peshawar
High Court have held that DRRA has no powers of
audit of taxpayers records. Despite this, the
department continues to issue DRRA audit notices
to the taxpayers. -
- Suggested Action
- Article 201 of the Constitution prescribes that
any decision of a High Court shall, to the extent
that it decides a question of law or is based
upon or enunciates a principle of law, be binding
on all courts subordinate to it. Accordingly, the
Federal Board of Revenue should clarify that
henceforth DRRA shall not undertake any audit of
taxpayers sales tax and excise records. -
9EXPORT REFUNDS
SHEKHA MUFTI CHARTERED ACCOUNTANTS
- Apart from the list of supportive documents
prescribed in Rule 38 of Sales Tax Rules 2006,
the department requires the refund claimant to
furnish records, returns, accounts, statements,
summaries pertaining to his suppliers to cross
match the payment of output tax. This has created
the following problems - The desired documents are not prescribed under
the law or the rules - Under the law, the supplier is not bound to
furnish his returns, summaries and other
statutory declarations to his buyer - In certain cases, the department directly
contacts the respective supplier to verify the
genuineness of the disputed transaction however
in other cases, the onus of verification is
transferred upon the refund claimant himself. - Recently, the Large Taxpayers Unit Karachi has
discontinued the above refund verification
mechanism which has resulted in 2 sets of
practices prevailing in Regional Tax Office and
Large Taxpayers Unit (LTU). The LTU now requires
the refund claimants to get the invoice summary
statements, sales tax returns, etc. of their
suppliers verified / authenticated from their
respective Collectorates, otherwise Bank
Guarantees furnished by refund claimants may be
encashed. - Suggested Action
- To streamline the entire refund verification and
sanctioning process, the FBR should device
necessary mechanism for the whole country in the
light of the Section 10 and Sales Tax Rules 2006
thus ending practical hassles, liquidity problems
for refund claimants and frivolous litigation
pertaining to refunds.
10REFUND ON BUILDING MATERIALS, STEEL, ETC
SHEKHA MUFTI CHARTERED ACCOUNTANTS
- After the suppression of SRO 578(I)/98 dated 12
June 1998 through SRO 490(I)/2004 dated 12 June
2004, sales tax paid on building materials has
become eligible for refund / adjustment purposes.
However, the RTO has placed certain other
conditions attached to the refund claim such as
filing of Approved Building Plan, BOQ, Counter
Confirmation from respective Trade Association,
etc. Such requirements are not spelled out either
in the statute or the rules. Besides, they are
against the superior courts decisions. The LTU,
like before, does not require such additional
documents. - Suggested Action
- In line with the statute and the related
judgments of the superior courts, the said
Standing Order may be withdrawn forthwith and
refunds may be allowed on building materials
without any exception.
11REFUNDS UNDER SECTION 66
SHEKHA MUFTI CHARTERED ACCOUNTANTS
- Legal Position
- No refund of tax claimed to have been paid or
over paid through inadvertence, error or
misconception shall be allowed, unless the
claim is made within one year of the date of
payment - Departmental Interpretation
- No refund of tax claimed ..shall be
allowed, unless the claim is made within one year
of the date of payment - Suggested Action
- In line with an identical pronouncement by the
High Court, the FBR should clarify that where the
tax claimed as refund was not paid due to
inadvertence, error or misconception, the time
limit of 1 year will not be applicable.
Accordingly, all claims not falling under the
above, should be admissible and entertained
without any time limit as already held by High
Court. The Supreme Court has already held that no
limitation of time can be placed upon filing and
sanctioning refunds.
12MULTIPLE AUDITS
SHEKHA MUFTI CHARTERED ACCOUNTANTS
- The tax authorities conduct multiple audits of
same tax period under different names, i.e.,
investigative audit, desk audit, audit for
abnormal profile, etc. Under section 25, the tax
department may conduct audit of registered person
only once a year. Also, the terms Desk Audit,
Investigative Audit Abnormal Tax Profile have
not been defined in the statute. - Recently the Federal Tax Ombudsman (FTO) has
also held that abnormal tax profile is not
defined in the Law and thus no scrutiny may be
made by the department on this account. - Suggested Action
- All audits or scrutiny other than the usual
audit prescribed under section 25 may be
withdrawn. -
13RECORD KEEPING AUDIT
SHEKHA MUFTI CHARTERED ACCOUNTANTS
- During the audit exercise, sometimes the tax
authorities call for documents like Audited
Accounts, Cost Audit Report, Minutes of BOD,
Income Tax Records, etc which are not prescribed
records in section 22 of the Act. In certain
cases, cases have been established out of the
information so sought and show cause notices
issued to the taxpayers. - Suggested Action
- The FBR and Federation of Pakistan Chamber of
Commerce Industry (FPCCI) have already agreed
upon records which may be sought by the tax
administration during tax audit. This agreement
was also made public vide FBRs letter dated 17
November 2001. It is suggested that the suitable
amendments made be made in section 22 of the Act
by incorporating the above FBR letter as part of
the statute.
14TOLL MANUFACTURING
SHEKHA MUFTI CHARTERED ACCOUNTANTS
- The amended definition of the term supply does
not include Other Disposition as part of
supply. Other Disposition was discussed in Para
1(E) of Sales Tax General Order (STGO) No. 3/2004
dated 12 June 2004 wherein the FBR had opined
that return of goods by the vendor back to the
principal tantamount to Other Disposition and
accordingly liable to sales tax. Hence, it
appears that Toll Manufacturing is out of the tax
ambit. - Suggested Action
- Since now toll manufacturing is out of supply,
it is suggested that Part I(E) of above STGO may
also be withdrawn to avoid potential problems for
the taxpayers during audit. -
15WORK BACK ASSESSMENT
SHEKHA MUFTI CHARTERED ACCOUNTANTS
- In many cases, the department creates tax
demands based on work back method. Under the law,
except in cases where the taxpayer fails to file
the return, no officer can make a worked back
assessment and create liabilities. - Suggested Action
- The superior courts have held in numerous
judgments that unless supply of taxable goods is
established, no tax can be levied. The Supreme
Court has also held that work back assessment
under Rule 226 of (repealed) Central Excise Act
1944 is illegal. - It is, therefore, suggested FBR should clarify
that except in case of section 11(5) read with
Para D of STGO 3/2004, no assessment may be made
on presumptive basis. -
16CONSUMPTION OF PROCURED GOODS VS. TAXABLE
ACTIVITY
SHEKHA MUFTI CHARTERED ACCOUNTANTS
- Prior to Finance Act 2008, the act of putting to
private, business or non business use of goods
acquired or manufactured in the course of
business was treated as supply. Vide Finance
Act 2008, goods acquired is out of the
definition meaning thereby no sales tax is
leviable on non business consumption of purchased
goods. However, the present definition is in
conflict with the term taxable activity which
also includes anything done during commencement
or termination of economic activity. - Suggested Action
- Clause 2(33)(a) should be brought in harmony
with section 2(35) to avoid unnecessary
litigation on this account. -
17ACCOUNTING FOR REFUNDS
SHEKHA MUFTI CHARTERED ACCOUNTANTS
- In recent cases, the tax authorities have
started rejecting refund claims where such claims
were not booked as receivable in the taxpayers
audited accounts. In support of such contention,
the tax authorities contend that non recording of
refund as receivable from government tantamount
that the sum of claimed was charged off in cost
of sales thus becoming part of selling price
which was ultimately recovered from the
customers. Therefore, such claims were rejected
under Section 3B of the Act. - Suggested Action
- The above appears to be an attempt to override
the explicit provisions of the Act which makes no
distinction between corporate and non corporate
taxpayers. In quite a few cases, because of the
contingent nature of refunds due to
interpretational / legal issues, the taxpayer
could not book it as receivable in the accounts.
This is the internationally accepted and
practiced accounting convention. It is,
therefore, suggested that refund cases may be
examined only in the light of books required
under section 22 of the Act and agreement reached
between FBR and FPCCI. -
18SHEKHA MUFTI CHARTERED ACCOUNTANTS
19VALUE OF SUPPLY
SHEKHA MUFTI CHARTERED ACCOUNTANTS
- In terms of Federal Excise Notification
655(I)/2007 dated 29 June 2007, Special Excise
Duty (SED) is not taken into account for the
purpose of computing value of supply under
Sales Tax Act 1990. This exemption is incorrectly
placed in Federal Excise Law instead of Sales Tax
and thus lacks due intended legal support - Suggested Action
- It is suggested that section 2(46)(a) of Sales
Tax Act 1990 should be modified as follows - value of supply means- in respect of taxable
supply, the consideration in money including all
Federal and Provincial duties except special
excise duty levied under section 3A of Federal
Excise Act 2005 and taxes, if any, which the
supplier receives from the recipient for that
supply excluding the amount of tax.
20MARKET VALUES
SHEKHA MUFTI CHARTERED ACCOUNTANTS
- In case where there is sufficient reason to
believe that value of supply has not been
declared correctly, the dispute is resolved by
forming valuation committee comprising
representative of business community and the tax
department. Nevertheless, in most of the cases,
the department continues to dispute valuation on
the basis of available market price with
adjudication orders passed without forming
valuation committees. - Suggested Action
- Identical to ADRC, a panel comprising of
business community may be formed by FBR and all
disputes regarding the value of supply may be
referred to such committees under 2(46)(e). -
21TAXATION OF RETAILERS
SHEKHA MUFTI CHARTERED ACCOUNTANTS
- A registered retailer is required to pay
turnover tax on value of supplies specified in
3rd Schedule of the Act on which the respective
manufacturer had already discharged the entire
tax liability. -
- Further, 5(3) of Sales Tax Rules 2006 allows
corporate buyer / income tax withholding agents
to claim sales tax paid to retailers. This Sub
Rule is in conflict with Section 2(28) and Rule 3
whereby retailers are the persons supplying goods
to general public for consumption purposes. Thus,
according to the statute, no input tax becomes
admissible to the buyer / end consumer. - Suggested Action
- Double taxation on 3rd schedule items should be
removed at retail stage. Further, Rule 5(3)
should be amended keeping in view the ancillary
specific provisions and the spirit of Retail
Taxation. -
22AWARD OF STAY BY COLLECTOR (APPEALS)
SHEKHA MUFTI CHARTERED ACCOUNTANTS
- With the removal of sub section 4 of section
45B, the law now appears to be silent with
respect to powers of Collector (Appeals) to grant
stay against a departmental demand, subjoined at
appeal stage. - Suggested Action
- It is suggested that the power of Collector
(Appeals) for grant of stay in sub judice cases
may be restored. This suggestion is
notwithstanding the dictim of superior courts
whereby the authority empowered to grant ultimate
relief is always empowered to grant interim
relief as well. -
23SALES RETURN BEYOND 180 DAYS
SHEKHA MUFTI CHARTERED ACCOUNTANTS
- Section 9 of the Act read with rules thereof
restricts self adjustment through credit debit
note beyond 180 days, which is extendable to
another 180 days only with prior approval from
the Collector. The law does not cater return of
goods, particularly food items, which carry
expiry of a longer period than 1 years. - Suggested Action
- In the present era where technology checks can
be placed, as long as the registered person is
able to prove the genuineness of original and
revised transaction, no time limits may be
imposed upon him under the rules for issuing
credit and debit note or enjoying related tax
credit / adjustment.
24RECOVERY OF ADJUDGED TAX
SHEKHA MUFTI CHARTERED ACCOUNTANTS
- Section 48 read with Rule 71 empower initiation
of recovery proceedings at the end of 30 days
from the date of order in which government dues
are adjudged against the taxpayer. On the other
hand, section 45B allows the taxpayer to file an
appeal with the Office of Collector (Appeals)
within 30 days from the date of receipt of order.
Thus, Rule 71 is in conflict with section 45B of
the Act. - Suggested Action
- Due to secretarial formalities, adjudicating
orders are served to the taxpayer long after
their pronouncements. It is, therefore, suggested
that Recovery Rules may be amended and recovery
proceedings may only be enforced after 30 days of
service of order to the taxpayer. This amendment
is also required in the best interest of natural
justice.
25REVISED RETURN
SHEKHA MUFTI CHARTERED ACCOUNTANTS
- Section 26(3) allows the registered person to
file a revised return with the permission of the
Collector to rectify any omission or wrong
declaration made in his monthly tax return.
However, there is no mechanism for revising the
monthly special return, which is filed by 42
sectors of the economy. - Suggested Action
- It is suggested that necessary amendments may be
made and reference of section 27 may also be
incorporated in section 26(3) of the Act.
26WASTAGE
SHEKHA MUFTI CHARTERED ACCOUNTANTS
- There is no provision in the statute governing
both visible and non visible wastage that occurs
during manufacturing process. The audited
accounts also do not separately disclose
wastages rather the same is reported as part of
stock consumed. Quite often, cases are
established against the taxpayers on account of
difference in stock figures which usually is due
to the element of wastage. - Suggested Action
- To address this critical issue, it is suggested
that Industrial Notes may be drawn by the FBR in
consultation with trade, industry and tax
consultants encompassing business processes of
significant sectors and standard ratios of
wastage occurring during such processes. -
27INPUT TAX CREDIT ON FIXED ASSETS
SHEKHA MUFTI CHARTERED ACCOUNTANTS
- Under Section 8B, input tax attributed on fixed
assets is adjustable in 12 equal monthly
installments. However, the term fixed assets
has not been defined in the statute. - Capitalisation policy of businesses differs from
each other. Especially in case of non corporate
taxpayers, due to non availability of audited
accounts, disputes may arise as to what
constitutes fixed assets. Consequently, cases
could be established where the taxpayer had
claimed the entire sales tax in a single return
instead of prorating it over 12 months time. - Suggested Action
- The term fixed assets may be defined in the
same fashion as plant and machinery is defined in
the Customs Act 1969. -
28INPUT TAX ON GOODS DESTROYED
SHEKHA MUFTI CHARTERED ACCOUNTANTS
- Rule 23 of Sales Tax Rules 2006, disallows input
tax credit in respect of goods destroyed being
unfit for human consumption.. - Suggested Action
- Except for above change brought in vide Finance
Act 2008, the legal position has been consistent
for destruction of goods since 1990. Further, we
understand input tax has been declared as vested
right of the taxpayer under the main statute and
the same cannot be taken away by subordinate
legislation. It is suggested that the
disallowance, being ultra vires of section 8 of
the Act, may be withdrawn. -
29MISMATCHING OF PENAL INTEREST
SHEKHA MUFTI CHARTERED ACCOUNTANTS
- A registered person can be penalized with
default surcharge _at_18 p.a if he fails to pay off
the tax liability by due date. On the other hand,
failure of the department to pay off the due tax
refunds in time only costs it 6 p.a - Suggested Action
- Keeping in view the rate of inflation, cost of
funds and above all natural justice, the
interest on delayed refund may be enhanced to
atleast 12 p.a thus compensating the taxpayers
for the departmental delays / non compliances. -
30SHEKHA MUFTI CHARTERED ACCOUNTANTS
31APPORTIONMENT OF INPUT TAX ON EXPORTS
SHEKHA MUFTI CHARTERED ACCOUNTANTS
- Tax attributed to exports and zero rated
supplies is refundable to the registered person.
However, the law does not prescribe any formula /
method of proration of input tax between exports
and local supplies. -
- Suggested Action
- A formula / mechanism identical to the
Apportionment of Input Tax Rules should be
introduced in the statute. Else the exporter may
be allowed to carry forward entire excess input
tax to the next tax period without any exception.
-
32AUDIT REPORT
SHEKHA MUFTI CHARTERED ACCOUNTANTS
- Upon completion of departmental audit, the audit
report prepared by the auditors and reviewed and
approved by the Additional Collector, is required
to be sent to the registered person followed by
an Audit Completion Certificate in the prescribed
format. However, in practice, no such audit
report is discussed or shared with the taxpayers.
The department also does not issue Audit
Completion Certificate and huge demands are
created without proper compliance of the law. - Suggested Action
- The taxpayer should be aware of the results of
department audit. This would be not only in
compliance with the legal framework but might
also facilitate quick payment(s) of unpaid tax by
the taxpayer alongwith reduced penalty under
section 33. -
33VERIFICATION OF TRANSACTIONS
SHEKHA MUFTI CHARTERED ACCOUNTANTS
- Section 73 fails to address cases where payments
are knocked off through contra book entries
between buyer and sellers. - The provision does not cater situations where
payments become doubtful or eventually turns
irrecoverable for the supplier - The law does not take into account transactions
where payments are made by creditors / guarantors
/ 3rd parties on behalf of the buyer. - Suggested Action
- We understand that the basic intent of section
73 has been to document the economic and business
transactions. This objective may well be achieved
within sophisticated accounting and corporate
environment and the growing business realities.
Thus, section 73 may be amended to cater the
inter company (book) transactions and the issue
of bad debts.
34ALTERNATIVE DISPUTE RESOLUTION
SHEKHA MUFTI CHARTERED ACCOUNTANTS
- The law does not provide a comprehensive
framework for ADRCs. Resultantly, no concrete
solution is available to the following problems
confronting the mechanics of ADR - Too centralized mechanism
- CBR holds powers to accept or reject the
recommendations of ADRC without assigning any
reason thereby wiping of the entire process of
deliberations and efforts - Powers of ADR have not been specified for
instance, legally ADRC cannot order inspection of
books of accounts of a 3rd party - No provision exists requiring appellate forums to
put the judicial proceedings in abeyance till the
outcome of ADR - Can documents exchanged / agreement reached at
the ADR stage be put as evidence at any judicial
proceedings ? - Suggested Action
- A comprehensive ADR framework should be
developed encompassing the extent and scope of
both the Committees and FBR respectively. For
this purpose, liaison may be made with Karachi
Centre for Dispute Resolution, constituted with
the assistance of International Finance
Corporation (IFC) and Sindh High Court.
35SHEKHA MUFTI CHARTERED ACCOUNTANTS
36SHEKHA MUFTI CHARTERED ACCOUNTANTS
37DUTY ADJUSTMENT
SHEKHA MUFTI CHARTERED ACCOUNTANTS
- Under section 6, FED is adjustable only if the
registered person holds a valid proof to the
effect that he has paid the price of goods
purchased by him including FED and received the
price of goods sold by him including FED through
banking channels. The condition of payment and
receipt is creating lot of problems for the
taxpayers. On the other hand, SED is adjustable
on payment basis. -
- Suggested Action
- There is a need to bring harmony among the two
duties. It is suggested that both FED and SED
should be made adjustable on accrual / paid basis
as per section 7 of Sales Tax Act 1990. Further
the duty adjustment should not be made subject to
receipt of sale proceeds and related duty.
38BASIS OF DUTY ADJUSTMENT
SHEKHA MUFTI CHARTERED ACCOUNTANTS
- FED paid on excisable goods, which are used
directly as input goods for the manufacture of
dutiable goods, is adjustable against the final
liability. On the other hand, SED paid on
industrial inputs is adjustable against the SED
chargeable on the goods manufactured therefrom.
The term industrial input has not been
specified under the law. - Suggested Action
- In the absence of any definition of industrial
inputs, it could be construed to include
everything consumed for the manufacturing /
allied activity like spares, printing, stores,
equipment, etc. In order to avoid litigation on
this account, it is suggested the term
industrial inputs may be defined in the law. -
39CREDIT DEBIT NOTE
SHEKHA MUFTI CHARTERED ACCOUNTANTS
- Identical to section 9 of Sales Tax Act 1990,
Rule 14A also allows adjustment(s) in tax invoice
or return for dutiable goods. However, the
benefit of such Rule has not been extended to
dutiable services. - Suggested Action
- To bring harmony in application of duty
provisions to both and services, it is suggested
necessary amendments may be made in Rule 14A to
include reference of dutiable goods and dutiable
services. -
40SED DRAWBACK
SHEKHA MUFTI CHARTERED ACCOUNTANTS
- Under SRO 655(I)/2007 read with Federal Excise
General Order (FEGO) 1 of 2008, in case of
exports, the SED paid on purchases / import shall
be paid to the exporter as drawback. However,
since July 2007, no such drawback is paid to the
exporters. - Suggested Action
- It is suggested that necessary instructions may
be passed onto field formations to process
outstanding SED drawbacks. To expedite around 2
years pending claims, it is also proposed that
SED Drawback may be sanctioned to the large
taxpayers upon submission of revolving bank
guarantee.. -
41MANDOTORY PAYMENT BEFORE FILING APPEAL
SHEKHA MUFTI CHARTERED ACCOUNTANTS
- Under Section 37, before preferring appeal
before Office of Collector (Appeals) or Appellate
Tribunal, a taxpayer is required to deposit the
impugned duty demanded or penalty imposed in the
appealable order. This mandatory compulsion is
considered as a hindrance in the dispensation of
justice. - Suggested Action
- The identical provisions in Income Tax and Sales
Tax have already been repealed. Therefore, it is
suggested the same is also removed from the
excise law. -
42SHEKHA MUFTI CHARTERED ACCOUNTANTS
43DUTY ON FRANCHISE FEE / ROYALTY
SHEKHA MUFTI CHARTERED ACCOUNTANTS
- In terms of Rule 43A(7), the franchisee is
entitled to take credit of the duty on franchise
fee, technical service or royalty so deducted by
bank making remittance on his behalf. However,
the tax return does not contain any column for
such credit. - Suggested Action
- Annexure E of the return may be amended and a
column should be incorporated so that due credit
may be availed by the franchisee for duty so
deducted by banks. -
44SHEKHA MUFTI CHARTERED ACCOUNTANTS