PETITIONER:
STATE OF TAMIL NADU
Vs.
RESPONDENT:
MAHI TRADERS & ORS. ETC. ETC.
DATE OF JUDGMENT03/02/1989
BENCH:
RANGNATHAN, S.
BENCH:
RANGNATHAN, S.
MUKHARJI, SABYASACHI (J)
CITATION:
1989 AIR 1167 1989 SCR (1) 445
1989 SCC (1) 724 JT 1989 (1) 196
1989 SCALE (1)267
ACT:
Central Sales Tax Act, 1956: Sections 14(1)(iii) &
15--'Leather splits', 'Coloured leather'--Whether hides and
skins--Eligibility for special treatment under the Act.
Statutory construction--Contemporaneous
exposition--Opinion rendered on meaning of statutory expres-
sions by the Department concerned--The terms of the statute
can be construed by reference to such exposition--In the
absence of anything in the statute to indicate the contrary.
Words & phrases: 'Leather splits'--Meaning of.
HEADNOTE:
The respondents are dealers in hides and skins. They
deal among other things in splits and coloured leather. The
splits are the cut pieces, small and irregular, obtained in
the process of cutting raw or tanned hides and skins either
with a view to reduce their thickness or to give them a
regular shape. Coloured leather is obtained when the tanned
hides and skins are dyed with various colours. The claim of
the respondents is that these two items fail in the list of
"goods of special importance in inter-State trade and com-
merce" set out in s. 14 of the Central Sales Tax Act and,
therefore, entitled to the concessions available under s. 15
of the Act, namely the benefits of single point taxation and
of a smaller rate of tax. Such claims were allowed by the
assessing authority in respect of coloured leather and in
respect of splits he disallowed the claims. The Appellate
Assistant Commissioner upheld the order of the assessing
authority. The Board of Revenue negativated the contention
that leather splits continued to be dressed skins under
declared goods of inter-State importance and held that these
splits are to be treated as 'scraps' or to be taxed at the
multiple rates. As regards coloured leather the Board held
that these are commercially different products and that the
exemption granted was not correct. The tribunal, in certain
cases, had held that the assessee was entitled to the con-
cessions claimed in respect of both items.
The respondents moved the High Court by way of Writ Peti-
tions
446
and tax revision cases and the High Court upheld the claim
of the respondents, holding that 'splits' and 'coloured
leather' continue to be hides and skins eligible for special
treatment under the Central Sales Tax Act.
The present appeals by special leave are against those
judgments of the High Court.
The contentions of the appellant-State were that the
leather splits or cuttings are "scrap" and do not qualify
any longer to be described merely as hides and skins and
that coloured leather is a totally new and sophisticated
product known as leather and can no longer be described
merely as hides and skins and as such cannot qualify for
exemption.
On behalf of the respondents, a reference was made to
certain circulars of the authorities which contain a contem-
poraneous exposition of the meaning of the entry in question
and contended that, to say that one item being called scraps
and the other as leather would not be sufficient to take
them out of the description "hides and skins, in a raw or
dressed state" and cuttings of hides and skins would not
cease to be hides and skins merely because they are small
pieces and can be loosely described as "scraps". As for
coloured leather, it was contended that the exact scope of
the expression used in entry (iii) of s. 14(1) which re-
ferred to 'hides and skins whether in a raw or dressed
state' would have to be looked into.
Dismissing the appeals,
HELD: 1.1. The High Court was right in holding that
'splits' and 'coloured leather' continue to be hides and
skins eligible for special treatment under the Central Sales
Tax Act. [456E]
1.2 A contemporaneous exposition by the administrative
authorities is a very useful and relevant guide to the
interpretation of the expressions used in a statute. Consid-
ering that the clarification was sought for from the Minis-
try of Commerce at the earliest point of time when a doubt
arose as to the scope of the expression used by the statute
and given after considering the technicalities of the proc-
esses employed in the manufacture of finished leather by the
department fully conversant with this branch of trade and in
the context of the provisions of this very statute, the
terms of the statute can well be construed by reference to
such exposition, in the absence of anything in the statute
to indicate the contrary. Indeed, such interpretation should
be shown to
447
be clearly wrong before it is overturned. The view of the
Ministry was that the expression 'hides and skins in the raw
or dressed State' refers at one end to the raw material
obtained from the slaughtered or dead animals and at the
other end to the tanned and finished material; the expres-
sion, therefore, seems to include the other intermediate
stages as well. 'Dressing' according to the authoritative
interpretations, would mean the conversion of tanned hides
and skins by further suitable processing into leathers of
different types which are ready for use. [452F-H; 452B-D]
Desh Bandhu Gupta and Ors. v. Delhi Stock Exchange,
[1979] 4 SCC 565; Verghese v. I.T.O., [1981] 131 ITR 597,
relied on.
Mahi Traders v. State of Tamil Nadu, [1980] 45 STC 327,
approved.
2. Definitions in this regard show that hides and skins
acquire the name of 'leather' even if the hair or wool has
not been removed therefrom, as soon as they receive some
treatment which prevents them from putrefaction after treat-
ment with water. 'Dressing' is a stage much later than
tanning. Indeed, from the definitions it is clear that it is
practically the same as giving finishing touches to the
leather and making it suitable for the manufacture of par-
ticular types of goods. The findings of the Tribunal in this
regard in an earlier case, which had not been appealed
against by the Department, that under the Central Sales Tax
Act, the appellant is in a much better position, because all
the hides and skins are brought together in one entry, and
whether raw or dressed, the product falls under the same
entry, seems to be the correct view of the scope of the
entry in question. [454B-D; 455E]
Glossary of terms relating to hides, skins and leather
published by ISI in 1960: Dictionary of Leather Terminology
published by the Tanners' Council of America. Encyclopedia
Britannica Vol. 7 and, 'Wealth of India'. Part V, a publica-
tion of the Council of Scientific and Industrial Research,
1966, relied on.
3. Hides and skins are termed 'leather' even as soon as
the process of tanning is over and the danger of their
putrefaction is put an end to. The entry in the Central
Sales Tax Act, however, includes within its scope hides and
skins until they are 'dressed'. This represents the stage
when they undergo the process of finishing and assume a form
in which they can be readily utilised for manufacture of
various commercial articles. In this view, it is hardly
material that coloured leather may be a form of leather or
may even be said to represent a different commer-
448
cial commodity. The statutory entry is comprehensive enough
to include the products emerging from hides and skins until
the process of dressing or finishing is done. [456C-E]
JUDGMENT:
CIVIL APPELLATE JURISDICTION: Civil Appeal Nos. 2665-72
(NT) of 1981 etc. etc.
From the Judgment and Order dated 9.1.1980 of the Madras
High Court in Tax Case Nos. 894, 895 of 1977, 591, 942,968,
975 of 1979 and W.P. Nos. 4951 and 4952 of 1978.
S. Padmanabhan, R. Mohan and R.A. Perumal for the Appel-
lant.
T.A. Ramachandran, A.K. Sen, Mrs. J. Ramachandran,
Inbarajan, P.N. Ramalingam, A.T.M. Sampath and A.V.V. Nair
for the Respondents.
The Judgment of the Court was delivered by
RANGANATHAN, J. All these civil appeals and special
leave petitions raise a common question as to the interpre-
tation of an expression used in the Central Sales Tax Act.
Some of these matters arise out of judgments of the High
Court in Tax Revision cases and some out of judgments in
writ petitions but the point involved is the same. 1n view
of the pendency of the appeals, we grant leave in the spe-
cial leave petitions after condoning the delay in filing
some of them and proceed to dispose of all the appeals by a
common order.
The respondents are all dealers in hides and skins
carrying on business in the State of Tamil Nadu. As is well
known, raw hides and skins undergo various processes such as
cutting, tanning, dyeing, dressing and finishing before they
get converted into finished leather and assume a condition
fit for the manufacture of various kinds of leather arti-
cles. The dispute in these appeals is in regard to two items
of goods that are sold by these assessees viz. leather
splits and coloured leather. The splits are the cut pieces,
often small and irregular, obtained in the process of cut-
ting raw of tanned hides and skins either with a view to
reduce their thickness or with a view to give them a regular
shape. Coloured leather is obtained when the tanned hides
and skins are dyed with various colours. The assessee, inter
alia, deal in these two items, their manner of such dealing
varying from case to case. Some of them obtain the leather
splits in the process of cutting and sell them while
449
some purchase the cuttings and sell them as such. So also,
the coloured leather is obtained by some of the assessees in
the process of finishing and they sell them while others
purchase the coloured leather and sell them as such. The
assessees’ claim is that these two items fall in the list of
“goods of special importance in inter-State trade and com-
merce” set out in S. 14 of the Central Sales Tax Act, 1956
(the ‘CST Act’) and that, therefore, the assessee is enti-
tled, in respect of their sales, to the concessions avail-
able under s. 15 of the CST Act viz. the benefits of single
point taxation and of a smaller rate of tax. The sole ques-
tion in these appeals is whether the High Court was right in
upholding this claim. The principal judgment of the High
Court on this point has been reported as Mahi Traders v.
State of Tamil Nadu, [1980] 45 S.T.C. 327.
The relevant entry in s. 14 of the CST Act reads:
“14(1)(iii) hides and skins, whether in a raw or dressed
state. ”
The short case of the department is: (a) that leather splits
or cuttings are “scrap” and do not qualify any longer to be
described as hides and skins; and (b) that coloured leather
is a totally new and sophisticated product known as leather
and can no longer be described merely as hides and skins.
The department’s case is best explained in a passage from
the order of the Board of Revenue which accepted the depart-
ment’s contention. It observed:
“The contentions have been examined with
reference to the connected records. The splits
are only pieces of leather obtained in the
process of getting leather of uniform thick-
ness from dressed skins. Such splits cannot be
treated as dressed hides and declared goods.
The expression “raw or dressed skin” in sec-
tion 14 of the Central Sales Tax Act has a
distinct connotation and it cannot be extended
to leather bits obtained in a process. These
splits are of much lesser value and cannot be
equated to dressed skins. In 27 S.T.C. page
385 the Orissa High Court has held that if
steel plates are cut to sizes, they cease to
be the original product. What should be con-
sidered is whether those leather splits are
commercially understood as dressed hides and
skins. If they are understood only as just
skins as claimed, there is no need to call
them as splits in commercial parlance. The
Courts have repeatedly ruled that the entries
in the Act
450
should be treated only as understood by the
Trade. These splits were produced before the
Board at the time of hearing. They were found
to be thin pieces which can be utilised only
for miscellaneous purposes. The contention
that these leather splits continue to be
dressed skins and are declared goods of inter-
state importance, is untenable. The assessing
officer was therefore right in treating these
splits as scraps and taxing them at the multi-
point rate, and in the absence of ‘C’ forms,
at 10%.
As regards the coloured skins, once
the dressed skins bought are split and the
upper layer of uniform size is coloured or
dyed, such coloured skins become different
products. They are finished leather sold as
coloured skins and not as dressed skins. They
are commercially different, and are treated
and dealt with in trade circles as different
products. The process of dyeing or colouring
changes the commercial nature of the dressed
skins. There are different patterns of dyeing
and colouring. The complete piece may be dyed
or coloured uniformly with a single colour or
with a pattern of colours, depending upon the
requirements of the prospective consumers in
the market. As the dressed skins are subjected
to process, first by splitting and secondly by
colouring they become different products.
Pieces of coloured and dyed leather were
produced before the Board at the time of
hearing. Some pieces were coloured With a
single colour on one side and dyed on the
reverse. They can be used straightaway for
manufacturing leather goods. They were also in
patterns. The contention that no change is
involved has therefore no force. Both the
Appellate Assistant Commissioner and the
Assessing Officer were not therefore correct
in allowing exemption.”
On the other hand, on behalf of the assessees, refer-
ence is made to certain circulars of the authorities which
contain a contemporaneous exposition of the meaning of the
entry in question, reliance is placed on the decision of the
Sales Tax Appellate Tribunal to the contrary and it is
emphasised that, to say that the one item is called scraps
and the other is called leather is not sufficient to take
them out of the description “hides and skins, in a raw or
dressed state”. It is submitted that cuttings of hides and
skins do not cease to be hides and skins merely because they
are small pieces and can be loosely described as “scraps”.
So far as coloured leather is concerned, according
451
to the assessee, the question is not whether the coloured
skin is described as leather or whether it is a new product
different from hides and skins, as understood generally, but
what exactly is the scope of the expression used in entry
(iii) of s. 14(1). The submission is that hides and skins
are generally described as leather even as soon as tanning
is done but the entry in the statute goes much beyond this
stage. It takes in all categories of hides and skins right
from their raw condition, through various stages of their
tanning and other processing, right upto the stage when they
receive the final finishing touches.
We have heard learned counsel on both sides at length
and come to the conclusion that the assessees are entitled
to the benefit of Ss. 14 and 15 of the CST Act in respect of
the two items in question. As far as the first item is
concerned, it is common ground that leather splits are
nothing but cut pieces of hides and skins. We fail to see
how they cease to be hides and skins. It is no doubt true
that they are cheaper and have a separate name but the name
only indicates that they are cut pieces. It is not because
they have ceased to be hides and skins and constitute a
different commercial commodity that they are called
‘scraps’. Some of the dealers purchase and sell such splits
and such turnover is considerable. There is no material to
suggest that they are useless or worthless articles. A loose
description of them as ‘scrap’ cannot deprive them of the
benefit of s. 14 of the Act.
Turning to coloured leather, we may, at the outset,
refer to a very important circumstances referred to by the
respondents. When the CST Act came into force on 1.4.1957, a
question was raised regarding the meaning of the expression
‘hides and skins in dressed state’ used in s. 14. The matter
was referred to the leather development wing of the Ministry
of Commerce and Industry which gave the following opinion:
“Hides and Skins are obtained from either
slaughtered or dead animals. The raw hides and
skins thus obtained are known to be in the
Green State. These are easily putrescible; if
proper precautions are not taken they would
easily rot and decay. Since tanneries are not
always located very near the source of raw
hides and skins, the question of preserving
them for a temporary period till they reach a
tanning centre assumes importance. Raw hides
and skins are ‘cured’ by either wet salting,
dry salting or drying. In the ‘cured state’
the raw materials can be preserved for a
temporary period. In the third state of tempo-
rary preserva-
452
tion, the hides and skins are ‘picked’. During
the next stage they are tanned in which state
they can be preserved almost indefinitely.
These tanned hides and skins are processed
further to yield Dressed Hides and Skins which
are ready for use. ‘Dressed’ or finished
material could also be preserved almost indef-
initely.
From the above, it will be seen that
the expression ‘Hides and Skins in the raw or
dressed State’ refers at one end to the raw
material obtained from the slaughtered or dead
animals and at the other end to the tanned and
finished material; the expression, therefore,
seems to include the other intermediate stages
indicated in the previous paragraphs. Dress-
ing, according to the authoritative interpre-
tations, would mean the conversion of tanned
hides and skins by further suitable processing
into leathers of different types which are
ready for use” (vide SBT/ . 18(495/14) of
November 11, 1957).
It would seem though this is not quite clear from the
record, that this opinion held the field for quite some time
until the assessments presently in question were made. Even
here, as pointed out by the High Court, the departmental
view was not quite consistent. The Deputy Commercial Tax
Officer, in some of the cases, was willing to concede that
coloured leather, notwithstanding the colouring, continued
to be dressed hides and skins but thought that leather
splits should be brought to multipoint tax. The Assistant
Commissioner, on the contrary, took the view that splits
would continue to be hides and skins. It was the Board of
Revenue that decided that both items would fall outside the
purview of item (iii) in section 14(1).
It has been pointed out by this court in Desh Bandhu
Gupta and Ors. v. Delhi Stock Exchange, [1979] 4 SCC 565,
and Varghese v. ITO, [1981] 131 ITR 597 that a contemporane-
ous exposition by the administrative authorities is a very
useful and relevant guide to the interpretation of the
expressions’ used in a statute. Considering that the above
clarification was sought for at the earliest point of time
when a doubt arose as to the scope of the expression used by
the statute and given after considering the technicalities
of the processes employed in the manufacture of finished
leather by the department fully conversant with this branch
of trade and in the context of the provisions of this very
statute, the terms of the statute can well be construed by
reference to such exposition, in the absence of anything in
the statute
453
to indicate the contrary. Indeed, “such interpretation
should be shown to be clearly wrong before it is
overturned.”
Can it then be said that the view expressed above is
clearly wrong? We think not; on the contrary, it is seen to
be quite correct. The statutory expression refers to “hides
and skins in a dressed state”. The guidelines issued for
identification of ‘finished’ leather for exports by the
Indian Standards Institution (ISI) refer to as many as 19
operations or processes undergone during manufacture of
‘finished leather’ but ‘dressing’ is not one of them. A
glossary of terms relating to hides, skins and leather
published by the I.S.I. in 1960 contains the following
definitions:
CRUSTS: (Crust Leather)–Tanned hides and
skins without any finish.
CURRYING: A series of dressing and finishing
processes applied to leather after tanning in
the course of which appropriate amounts of
oils and greases are incorporated in the
leather to give it increased tensile strength,
flexibility and resisting properties.
DRESSED RIDES: Tanned hides, curried or other-
wise finished, for various purposes, such as
belting, harness and saddlery, travel goods
and for upholstery.
DRESSING LEATHER: Vegetable tanned hides which
may be dressed to suit the purpose for which
they are to be used, such as for harness,
saddlery and other mechanical purposes.
LEATHER: The skin or hide of animals prepared
by tanning, which still retains its original
fibrous structure more or less intact, but
from which hair or wool may or may not have
been removed and which has been treated so as
to be imputrescible even after treatment with
water.
The earlier glossary of such terms published by the
British Standards Institution defines ‘dressing’ as a
“general term for the series of processes employed to con-
vert certain rough tanned hides and skins and/or crust
leather into leather ready for use.” Also, “Leather” is
defined as “a general term for hide or skin which still
retains its original fibrous structure more or less intact,
and which has
454
been treated so as to be imputrescible even after treatment
with water.” The hair or wool may or may not have been
removed. Certain skins, similarly treated or dressed, and
without the hair removed, are termed ‘fur’. The Dictionary
of Leather Terminology published by the Tanners’ Council of
America, describes leather as “the hide and skin of any
animal or any portion of such skin, when tanned, tawed or
otherwise dressed for use.”
The above definitions show that hides and skins acquire
the name of ‘leather’, even if the hair or wool has not been
removed therefrom, as soon as they receive some treatment
which prevents them from putrefaction after treatment with
water. Dressing is a stage much later than tanning. Indeed,
from the definitions quoted above, it will be seen that it
is practically the same as giving finishing touches to the
leather and making it suitable for the manufacture of par-
ticular types of goods.
Sri Sen invited our attention, apart from the contempo-
raneous exposition by the Department, to the findings of the
Tribunal in this regard in an earlier case which had not
been appealed against by the Department. The Tribunal had
said:
“We have carefully considered the records as
well as the arguments. We have seen the speci-
mens of the articles sold. Bits of the same
are also on record. We have carefully scruti-
nised the same. We are unable to say that what
the appellants had sold is not leather or in
other words dressed hides and skins. The fact
that the appellant has done some more finish-
ing would not take away the resultant product
from the classification. We do find that the
clarification issued by the Board of Revenue,
Madras and the Govt. of India supports the
appellants case. The expert opinion which only
says that the resultant product has undergone
some chemical changes observed as under:
It is, surely a different product,
because it is a finished leather. It however,
retains the leathery properties of the dressed
leather.
Hence the expert opinion also fully supports
the appellants case inasmuch as it concedes
that the resultant product is ‘finished leath-
er’. It is because the issue in appellant’s
case is not whether the appellant was selling
a different product
455
from the one it purchased, but whether the
appellant was selling tanned leather. In this
case, we do not find any factual basis even to
cast any doubt upon the appellant’s claim. It
is a pity that the assessing authority should
have followed the audit objections without the
application of his own mind. Leather from the
stage of raw skins to the stage of dressed
hides and skins may undergo various stages of
changes. Under the classification for the
purposes of section 14 of the Central Sales
Tax Act, the various stages are irrelevant.
For the purposes of Tamil Nadu General Sales
Tax Act, 1959, only two stages that are rele-
vant are the skins at the raw stage and the
skins in the form of dressed hides and skins
(or tanned hides and skins). The appellant
purchases semifinished leather and undertakes
further process of finishing with a view to
colour the hides and skins for certain uses of
skins. He says that he purchased the same
tanned hides and skins and sold the tanned
hides and skins. According to him the products
purchased and sold are not different even
under the classification by way of the dichot-
omy between raw and dressed hides and skins
under the Tamil Nadu General Sales Tax Act.
Under the Central Sales Tax Act, the appellant
is in a much better position, because all the
hides and skins are brought together in one
entry. Whether raw or dressed, the product
falls under the same entry.”
We are of opinion that this represents the correct view of
the scope of the entry in question.
The same conclusion is further borne but by the litera-
ture referred to before us by Sri Ramachandran. Vol. 7 of
the Encyclopedia Brittanica, under the word “dress”, ex-
plains that the verb has various applications which can be
deduced from its original meaning and that “it is thus used
not only of the putting on of the clothing but of the pre-
paring and finishing of leather ……. “Vol. 17, under
the head “leather” details the various processes applied in
the treatment of hides and skins at all stages, pre-tanning,
tanning and post-tanning. Dyeing or colouring is a process
which follows tanning but precedes “finishing” (i.e. dress-
ing) in order to make it suitable for the purpose for which
it is required in commercial usage. Part V of the “Wealth of
India”, a publication of the Council of Scientific and
Industrial Research (1966), dealing with leather under
“Industrial Products” explains that “hides and skins are
liable to putrefaction and loss unless
456
suitably treated and converted into leather.” Structurally,
hides and skins have a thick middle layer called corium,
which is converted to leather by tanning. The operations
involved in leather manufacture however fall into three
groups. Pre-tanning operations include soaking, liming,
deliming, bating and pickling, and post tanning operations
are splitting and shaving, neutralising, bleaching, dyeing,
fat-liquoring and stuffing, setting out, samming, drying,
staking and finishing. These operations bring about chemical
changes in the leather substance and influence the physical
characteristics of the leather, and different varieties of
commercial leather are obtained by suitably adjusting the
manufacturing operations. These processes need not be gone
into in detail but the passages relied upon clearly show
that hides and skins are termed ‘leather’ even as soon as
the process of tanning is over and the danger of their
putrefaction is put an end to. The entry in the CST Act,
however, includes within its scope hides and skins until
they are ‘dressed’. This, as we have seen, represents the
stage when they undergo the process of finishing and assume
a form in which they can be readily utilised for manufacture
of various commercial articles. In this view, it is hardly
material that coloured leather may be a form of leather or
may even be said to represent a different commercial commod-
ity. The statutory entry is comprehensive enough to include
the products emerging from hides and skins until the process
of dressing or finishing is done.
We are, therefore, of the view that the High Court was
right in holding that ‘splits’ and ‘coloured leather’ con-
tinue to be hides and skins eligible for special treatment
under the CST Act. All the appeals, therefore, fail and are
dismissed. We however make no order as to costs.
G.N. Appeals dis-
missed.
457