DECISION
1. The
Appellant appeals against an assessment to excise duty dated 8 April 2009 in
the sum of £40,181 for the period 1 July 2008 to 10 October 2008. Following a
statutory review dated 1 October 2009, HMRC upheld the assessment.
Undisputed Background Facts
2. The
Appellant was, at the relevant time, a Director of Dexter Paints Limited
(“DPL”) which manufactured industrial paints, Dexter Biofuels Limited and
Dexter Paint Holdings Limited. In 2008, DPL invested in plant and premises for
the production of bio-diesel, which commenced in early 2008 and ceased in
August 2008. The Company operated under the guidance of an insolvency
practitioner from 23 September 2008 until 23 October 2008, following which it
was placed into Administration which concluded in April 2010 when the Company
was divided up and sold in respective parts.
3. The
returns for payment of excise duty on bio-diesel produced for the quarters
ending September and December 2008 were not filed. As a result, HMRC officer Ms
Havard met the Appellant and another former Director, Mr Alan Sharples, at the
Company’s premises on 31 March 2009. Records relating to the Company’s
production and sales of bio-diesel were produced by the former Directors as a
result of which Ms Havard was able to calculate DPL’s liability to duty.
4. Ms
Havard’s enquiries showed that Dexter Biofuels Limited produced the fuel, but
registration and payment of duty was made through DPL. An invoice dated 31
March 2007 in the sum of £320,000 revealed that the bio-fuel production plant
and machinery had been transferred from DPL to Dexter Paint Holdings Limited.
5. DPL,
as a registered biofuel producer, was required to “make entry” of their
premises. Form EX103A entitled “Excise Entry: Incorporated Company” is the
document HMRC requires as evidence of entry being made and which was signed on
behalf of DPL, a corporate body, by the Appellant on 11 September 2007. By
letter dated 10 October 2007 HMRC acknowledged receipt of that entry.
6. On
8 April 2009 HMRC notified the Appellant of an assessment to duty in the sum of
£40,181 for the period 1 July 2008 to 10 October 2008; the latter date being
the last date upon which the Company records showed biofuel being sold. The
assessment was withdrawn and subsequently reissued on 31 July 2009.
7. By
letter dated 20 August 2009, the Appellant’s representatives, Alan Powell
Associates, requested a review of the decision to issue an assessment to the
Appellant.
8. The
review was carried out by HMRC Officer, Mr McCann, who by letter dated 1
October 2009 informed the Appellant that the assessment would be upheld.
Appeal
9. By
Notice of Appeal dated 27 October 2009, the Appellant appealed against the
decision to uphold the assessment to excise duty. The grounds of appeal state
that:
“HMRC’s decision to assess the appellant for duty is
possibly unsafe on strict application of the law in relation to the liability
for biofuel and, by reference to wider legal principles (human rights, equity
of treatment, reasonableness), is manifestly unjust. The full grounds for
contesting HMRC’s decision are contained within the full letter of 20 August
2009 to HMRC’s Reviewing Officer. HMRC has not replied to a single point made
in support of the appellant’s case against their assessment decision at policy,
local or “independent review” level.”
10. The letter dated
20 August 2009 from the Appellant’s representatives to Ms Havard formally
requests an independent review of the decision to assess the Appellant
personally for excise duty, stating:
“I would like the Reviewing Officer to be aware that
the liability may appear to be applicable (and this may not be certain, as will
be examined below), but is undermined by fundamental principles of general and
public law. It is extremely disappointing that the Commissioners have so far
elected to ignore these factors.”
11. The letter goes
on to set out in detail the legislation applicable and the contentions on behalf
of the Appellant as to why the assessment should be withdrawn. The factors
relied upon can be summarised as follows; that the form EX103A which must be
signed by the producer makes no mention of potential personal liability of a
company director signing the form, that other duty regimes do not suffer the
same requirement to make entry, that there are a number of technical arguments
against the Appellant’s personal liability to duty, and that the assessment
infringes a number of principles of community and public law such as
non-discrimination, fairness, reasonableness and human rights.
12. Both parties
provided helpful skeleton arguments. The skeleton argument provided by Mr
MacWhannell on behalf of the Appellant summarised the Appellant’s case as being
that
“...the Commissioners’ exercise of their discretion
within the review is unreasonable and/or that the assessment has been
unlawfully raised...”
13. With reference
to the skeleton argument, Mr MacWhannell made submissions which expanded on the
Appellant’s grounds of Appeal as set out at paragraphs 9 to 11 above and which
will be examined in more detail in due course.
Issues
14. The quantum of
the assessment was not disputed by the Appellant.
15. The issues for
us to determine were agreed by both parties as being:
(a)
The legality of assessing the Appellant, as Director of Dexter Paints
Limited at the relevant time, as personally liable for excise duty owed; and
(b)
Whether, taking into account the principles of Wednesbury
reasonableness, proportionality and protection of human rights, the review
decision upholding the assessment raised against the Appellant is unlawful
and/or so unreasonable that it should be set aside.
Law
16. We were provided
with the legislation applicable by both parties.
17. There was no issue
between the parties as to the definition of bio-diesel as a type of hydrocarbon
oil by virtue of Sections 1 and 2AA of the Hydrocarbon Oil Duties Act 1979
(as amended) (“HODA 1979”) or that Section 6AA provides that excise duty is
chargeable on bio-diesel:
(1)A duty of excise
shall be charged on the setting aside for a chargeable use by any person, or
(where it has not already been charged under this section) on the chargeable
use by any person, of biodiesel.
(2)In
subsection (1) “chargeable use” means use—
(a) as fuel for
any engine, motor or other machinery, or
(b) as an
additive or extender in any substance so used.
18. Section 21 HODA
1979 gives power to HMRC to make regulations “with a view to the protection of
the revenue:
(1)The Commissioners
may, with a view to the protection of the revenue, make regulations—
(a) for any of the
purposes specified in Part I of Schedule 3 to this Act (which relates to
hydrocarbon oil);
(b). . . . . . .
(c) for any of the
purposes specified in Part III of that Schedule (which relates to road fuel
gas).
(2)In the case of
regulations made for the purposes mentioned in subsection (1)(a) above,
different regulations may be made for different classes of hydrocarbon oil....
And Part 1, Schedule 3 of HODA 1979 contains the subject
parameters for regulations relating to, inter alia hydrocarbon oil, made under
Section 21.
19. Section 6AC HODA
1979 provides HMRC with the power to make regulations extending the application
of the provisions relating to hydrocarbon oil to biodiesel:
(1)The
Commissioners may by regulations provide for—
(a)references
in this Act, or specified references in this Act, to hydrocarbon oil to be
construed as including references to—
(i)biodiesel;...
20. Regulation 3 of The
Biofuels and Other Fuel Substitutes (Payment of Excise Duties etc) Regulations
2004 (as amended) (“the Regulations”) provides that references within HODA
1979 to hydrocarbon oil include references to biodiesel and that section 21 of
HODA applies:
(1) The references to hydrocarbon
oil in the following provisions of the Oil Act are to be construed as including
references to biodiesel...—
(d) section 21(2)
(regulations with respect to hydrocarbon oil);
21. The Regulations
set out two different duty arrangements; warehousing (under Part 3) and
production premises (under Part 4).
22. In respect of
production premises, Regulation 8 applies:
(1) Regulation 8A applies to a producer
of biofuel with respect to whom either the first condition or the second
condition is satisfied.
(2) The first condition is that at the
end of any calendar month the producer has produced 2,500 litres or more of
biofuel in the previous 12 months.
(3) The second condition is that at any
time there are reasonable grounds to believe that the producer will produce
2,500 litres or more of biofuel in the following 12 months.
8A.—(1) A producer to whom this regulation applies is liable to
make entry of all premises at which he has produced or will produce biofuel,
but this is subject to regulations 8B and 8C.
23. Section 108 of The
Customs and Excise Management Act 1979 provides for the making of entries:
(1)Where by or under
the revenue trade provisions of the customs and excise Acts any person is
required to make entry of any premises or article—
(a) the entry shall
be made in such form and manner and contain such particulars; and
(b) the premises or
article shall be, and be kept, marked in such manner, as the Commissioners may direct.
(3) Where any person required to make entry is a body corporate—
(a)the entry shall be signed by a director, general manager, secretary
or other similar officer of the body and, except where authority for that
person to sign has been given under the seal of the body, shall be made under
that seal; and
(b) both the body corporate and the person by whom the entry is signed
shall be liable for all duties charged in respect of the trade to which the
entry relates.
24. Liability to
duty is governed by Regulations 17, 18 and 19 of the Biofuels Regulations which
set out excise duty points and persons liable to pay duty at the relevant
excise duty point.
Regulation 18 (a): “...The person liable to pay the
biofuels duty at an excise point fixed by Regulation 17 is...in the case of
biofuel that is charged to biofuels duty on production premises, the
producer....
Regulation 19 (1): “The requirements in paragraph (1)
(a) apply to a producer...in relation to-
(a)
Each of his entered premises, and
(b)
Any premises for which he is liable to make entry that have not
been entered
Regulation 19 (1) (A): A producer to whom this
paragraph applies must no later than the fifteenth day of each quarter –
(a) furnish a return...and
(b) pay the biofuels duty...”
HMRC Review
25. In a review of
HMRC’s decision to assess for under-declared excise duty dated 1 October 2009,
Mr McCann upheld the assessment.
26. Mr McCann gave
evidence to the Tribunal confirming that he had carried out an independent
review following which the assessment was upheld. Mr McCann referred us to the
review decision which set out the reasons for his conclusions. Mr McCann stated
that the purpose of his review was to determine whether the assessment was
lawfully raised against the correct person. Mr McCann confirmed that in
considering these factors he believed that the issues as to reasonableness and
proportionality raised on behalf of the Appellant were also addressed. Mr
McCann did not accept in cross examination that he had not addressed the issues
raised in the letter from the Appellant’s agent to HMRC dated 20 August 2009.
He stated that his review was independent of the original decision maker and
line management chain.
27. It was put to Mr
McCann in cross examination that his review decision did not specifically refer
to the points raised on behalf of the Appellant in respect of European law and
discrimination. Mr McCann stated that he had applied the relevant UK legislation and accepted that he had not referred to European law. It was accepted by Mr
McCann that the Form EX103A makes no specific reference to liability to duty
nor is there any mention of personal liability in the public notice. Mr McCann
stated that the Form EX103A was relevant to his decision in ascertaining who
had “entered” the premises for the purpose of production and thereafter the
legislation under section 108(3) (b) CEMA 1979 was applicable, which allowed
for the liability to duty of either the body corporate or the signatory. Mr
McCann stated that he had followed advice sought from HMRC’s Solicitor’s Office
and confirmed that once he had established that the assessment to duty was
lawful and could be raised against the Appellant, he had no discretion to withdraw
the assessment.
Submissions on behalf of the Appellant
28. Mr MacWhannell
for the Appellant submitted that it is not disputed that DPL was the producer
of biodiesel and that the Appellant was not the producer. It was submitted on
behalf of the Appellant that there is a conflict between Section 108 (3) (b)
CEMA 1979, the entry form EX103A and Regulations 17 and 18 of the Regulations.
Mr MacWhannell submitted that the Form EX103A was completed by DPL via its
Director, the Appellant, and that there was no reference within the form to
either Section 108 CEMA 1970 or the Regulations.
29. Mr MacWhannell
submitted that it is unreasonable to impose liability to duty on an officer of
the Company simply because he signed the form. It is further contended on
behalf of the Appellant that this would circumvent the principles of corporate
personality and an automatic lifting of the corporate veil in circumstances
that would otherwise be inappropriate. On behalf of the Appellant it is
submitted that the contents of the form are consistent with the liability
created by the Regulations; the producer is the entity which has completed the
form thereby creating a link between the company and the production of
biodiesel. It is submitted that the reference to Section 108 CEMA 1970
contained within Regulation 2 (2) is to the nature of making entry as opposed
to the imposition of liability on the person who signed the form as liability
to duty is provided for by Regulations 17 and 18.
30. Mr MacWhannell
referred us to a number of European cases; Administration Des Douanes v
Gondrand Frères [1981] ECR 1931; Case T-115/94 Opel Austria v
Council [1997] ECR in which the principle that rules imposing charges
on a taxpayer must be clear and unequivocal arose. In reliance upon these
cases, it was submitted that the conflict between Section 108 CEMA 1979 and the
Regulations results in the law being insufficiently clear to justify the
imposition of a charge to tax, particularly bearing in mind that Form EX103A
makes no reference to liability incurred through its completion nor is any
warning given within the Public Notice. Where such conflict arises, Mr
MacWhannell submitted that the application of the legislation should be
resolved in favour of the taxpayer (Case 78/77 Luhrs v Hauptzollant
Hamburg-Jonas [1978] ECR 169).
31. It was submitted
on behalf of the Appellant that the manner in which Mr McCann exercised his
discretion is both manifestly unfair and unreasonable. Mr MacWhannell submitted
that the Review Officer failed to consider whether the assessment should be
raised against the Appellant by reference to the facts, as opposed to reaching
conclusions based wholly on the collection of tax from the entity in the best
position to pay. We were referred to internal correspondence disclosed by HMRC
which, it was submitted, showed the uncertainty on the part of the Respondent
as to whether the assessment was lawful.
32. Mr MacWhannell
submitted that it was unreasonable to assess the Appellant as personally liable
to duty on the basis that two returns were not filed. The Appellant relied upon
the Form EX103A, which bears no reference to the potential liability as a
result of completion or Section 108 CEMA 1979, and submitted that the fact that
the form warns that the signatory must be authorised to complete the form is a
“powerful indication” that the consequences of completion are directed only at
the company. It is further submitted that the connection between signing the
form and liability is beyond contemplation on the face of the document. It was
submitted that the Appellant was unaware of his potential liability to duty
incurred by signing the form.
33. Mr MacWhannell
referred to the Public Notice 179 and submitted that the rights and obligations
created by completion of Form EX103A are not clarified; although Section 108
CEMA 1979 is referred to at paragraph 3.3.1 of the Notice, there is no
reference to the consequences of making entry nor that the two factors are
linked and therefore any reference to Section 108 is made in a wholly different
context to that of any potential liability to duty.
34. It was submitted
on behalf of the Appellant that the combination of the Form EX103A and the
Public Notice create a legitimate expectation that a director is not personally
liable to tax by completing the form and that the imposition of tax must be
sufficiently clear and certain; it is therefore reasonable to infer that any
liability would be upon the company as “producer” and not the Appellant as a
director.
35. Mr MacWhannell
relied upon Council Directive 92/12/EEC, which provided for the Community law
rules that harmonise the chargeability of excise goods to duties, and the
principle of equal treatment in support of his contentions. It was submitted
that the requirement to make entry does not exist in respect of warehouse
keepers who only import and export biodiesel and therefore there is unequal
treatment of operators within the biodiesel market and a potential distortion
of competition between importers and domestic producers.
36. It was submitted
by Mr MacWhannell that Section 108 CEMA 1979 creates joint liability as opposed
to joint and several liability to tax with the consequence that both the
Appellant and DPL ought to have been assessed and the liabilities would be
proportionate. The Appellant contended that the advice received by Mr McCann
from HMRC’s Solicitor’s Office that the Appellant should be pursued because “it
is doubtful we will get more than a few pence...pursuing the company...” was a
misunderstanding of the purpose of Administration, which was to save the
company, and was applied without consideration of the merits of assessing the
company to tax. Mr MacWhannell also noted that the insolvency practitioners for
the company had advised HMRC to send an assessment to the company.
37. As a result of
this course of action, Mr MacWhannell submitted that HMRC circumvented the
purpose of Administration and the principles of corporate personality. Section
108 CEMA 1979, it was submitted, goes further than is necessary to achieve the
objective of the legislation and is therefore disproportionate.
38. It was submitted
on behalf of the Appellant that the power existed to take a security from DPL
and having chosen not to exercise this power, it is unreasonable for HMRC to
use Section 108 CEMA 1979 to secure the collection of tax by any means.
Submissions on behalf of HMRC
39. Mr Redpath on
behalf of HMRC submitted that there is no failure to harmonise or implement EC
law by the requirement to make entry or the liability imposed by Section 108
CEMA 1979. It was submitted on behalf of HMRC that the European jurisprudence
relied upon by the Appellant is predicated on duty suspended warehousing
regimes and therefore is of no relevance to this appeal.
40. Mr Redpath
submitted that the principle of non-discrimination does not apply in the
circumstances of this case. In response to the Appellant’s contention that
there is unequal treatment between operators within the biodiesel market, Mr
Redpath submitted that there can be no proper comparison made between the two
different regimes of “production” and “warehousing.”
41. Mr Redpath
contended that the entry requirements and consequential liability imposed by
Section 108 CEMA represent a just and proportionate measure by reference to the
need for supervision and the protection of revenues derived from excise duties.
For that reason, HMRC submitted that there could be therefore be no merit in
the issues of natural justice and Human Rights raised by the Appellant.
42. In respect of
the Appellant’s arguments relating to the Form EX103A, HMRC submitted that the
significance of the form lies in the fact that it provides an evidential basis
for determining the person who shall be liable with reference to section 108
(3) (b) CEMA 1979. There is a basic requirement at Regulation 3 of the
Regulations that anyone beginning oil production must first make entry of the
premises intended to be used for that purpose. This requirement does not
differentiate between subsequent duty regimes; whether the producer chooses the
“warehousing” route or remains under “production premises” arrangements.
43. As regards
Public Notice 179, HMRC submitted that the full text at paragraph 3.7.1 refers
to the requirement to make entry under the Regulations and Section 108 CEMA
1979.
44. Mr Redpath
submitted that there is no conflict between the Regulations (which give excise
duty points which distinguish between duty suspension and production premises) and
Section 108 CEMA 1979. By virtue of Regulation 18, the liability to duty falls
principally on the producer at the time when the biofuel becomes charged with
duty. Section 108 CEMA 1979 concerns liability for all duties charged. It was
submitted by HMRC that the reference point for liability arising under Section
108 (3) (b) CEMA 1979 is the excise duty point as defined by Regulations 17 and
18.
45. Mr Redpath
contended that the purpose of Section 108 CEMA 1979 is to impose liability on
separate persons; the corporate entity and the individual signatory so that
liability may be joint or several.
46. HMRC submitted
that the Tribunal has no jurisdiction to consider the issue of whether the
assessment was fair or reasonable once it is established that the assessment
was lawful.
47. As to the issue
of legal certainty and legitimate expectation, HMRC contended that the
Appellant’s ignorance as to the potential liability to duty created by Section
108 CEMA 1979 could not excuse him from the joint and several liability.
48. Mr Redpath
submitted that the imposition of liability and the power to assess is clear and
cannot therefore circumvent any principles of corporate insolvency or the
purpose of Administration.
Decision
49. We carefully
considered the submissions made by both parties both orally during the hearing
and in their respective skeleton arguments.
European Jurisprudence
50. We found that
Article 4 of Council Directive 92/12/EEC entitled “On the general
arrangements for products subject to excise duty and on the holding, movement
and monitoring of such products” related principally to warehousing and
duty suspended regimes as distinct from the “production premises” arrangement
which is the subject of this appeal.
51. We noted that
Article 6 makes reference to “any manufacture...outside a suspension
arrangement” however it is clear from reading Article 6 that the context of
this reference is to the point where “excise duty shall become chargeable at
the time of release for consumption” which we found distinguishable from
“production premises”. Article 11 states that “each Member State shall
determine its rules concerning the production, processing and holding of products
subject to excise duty, subject to the provisions of this Directive” and
that “production, processing and holding of products subject to excise duty,
where the latter has not been paid, shall take place in a tax warehouse.”
We found that domestic legislation applicable in this case does not contravene
the Directive should it be deemed to apply to the circumstances of this
particular case. We were referred to Article 13 which states that the
requirements set out therein must respect the principle of non-discrimination
between national and intra-Community transactions and noted that the Article
specifically refers to “an authorized warehousekeeper.” We concluded
that the Directive has little or no impact on the issue in this case which
relates to the personal liability of the Appellant as a person who has made
entry of the premises used for the production of biodiesel.
Equal Treatment/Non Discrimination
52. Having concluded
that that there is no contravention of principles set by European Community
Law, we considered the Appellant’s submissions as to the fact that the
requirement to make entry gives rise to unequal treatment between those subject
to the “production premises” regime and those subject to “warehousing” rules.
We found as a fact that the legislation provides for two very separate regimes
and that no meaningful comparison can be drawn between the two arrangements and
we therefore rejected the submission on behalf of the Appellant that the
provisions setting out his liability to duty are discriminatory.
Conflict
53. We considered
the European case law cited and accepted that the principles established were
that rules imposing charges on a taxpayer must be clear and unequivocal. We
went on to consider whether any conflict exists between Section 108 CEMA 1979 and
the Regulations.
54. We found that
there is a clear link between the liability to duty and the point at which duty
becomes payable. The Regulations state (emphasis added):
Regulation 18 (a) “...The person liable to pay the
biofuels duty at an excise point fixed by Regulation 17 is...in the case of
biofuel that is charged to biofuels duty on production premises, the
producer....
Regulation 19 (1): “The requirements in paragraph (1)
(a) apply to a producer...in relation to-
(a)
Each of his entered premises, and
(b)
Any premises for which he is liable to make entry that have not
been entered
Regulation 19 (1) (A): A producer to whom this
paragraph applies must no later than the fifteenth day of each quarter –
(a) furnish a return...and
(b) pay the biofuels duty...”
55. Section 108 CEMA
1979 states:
(1)Where by or under
the revenue trade provisions of the customs and excise Acts any person is
required to make entry of any premises or article—
(3) Where any person
required to make entry is a body corporate—
(b)both the body corporate
and the person by whom the entry is signed shall be liable for all duties
charged in respect of the trade to which the entry relates.
56. We found that
there was no conflict between these provisions and that there is a clear link
between the person who must make entry and the person who is, as a result,
liable to duty.
Form EX103A
57. We considered
the fact that Form EX103A makes no reference to liability incurred through its
completion. We noted that the form is specific as to status of the signatory
who must be authorised by the company to sign on its behalf. We found that this
was a clear indication that the signatory must hold sufficient responsibility
within the company and it would be expected, as a result, that the consequences
of signing the form would be known to the signatory. We found as a fact that
the ignorance of the Appellant as to the consequences of signing the form does
not negate the liability he incurred nor does the fact that the form does not
contain specific reference to section 108 CEMA 1979.
58. We rejected the
Appellant’s argument that the imposition of tax as a result of signing the form
is not sufficiently clear; in signing the form, we found it was reasonable to
expect that a taxpayer understood the reasons for signing the form, i.e. to
make entry, and the consequences, including liability to tax, as a result.
Public Notice 179
59. Mr MacWhannell,
on behalf of the Appellant, relied in support of his submissions on the fact
that the Public Notice does not clarify the rights and obligations created by
Form EX103A, and in particular makes no reference to liability to tax of the
body corporate and signatory. We were referred to paragraph 3.3.1 of the Public
Notice which refers to section 108 CEMA 1979. It was submitted that the context
of the reference is solely to making entry of premises and contains no
reference to liability.
60. We considered
this Notice carefully and found that there were a number of references to
Section 108 CEMA 1979 within the Notice. We accept that that the references are
made in respect of making entry, however we found that this was a clear
indication of the link between making entry and the liability arising under
CEMA 1979. We found that the references are to the whole of Section 108 CEMA
1979, thereby including the subsection in respect of liability, and
consequently it must follow that the person referring to the Notice must be
taken as having read and understood Section 108 CEMA 1979. We noted that
references are made within the Notice to duties; under the heading “what is
this notice about” it states “It also provides guidance on accounting for
excise duty and VAT charged upon these fuels in the UK”. Guidance is also given
throughout the Notice as to where to find additional assistance if required. We
found as a fact that the Notice makes a clear and sufficient link between the
making of entry, the fact that duties arise as a result and the relevant
section of CEMA, which clearly states the person/body liable.
Principle of Corporate Personality
61. We did not
accept that in pursuing the Appellant for the excise duties owed, that HMRC
were piercing the corporate veil or circumventing the purpose of
Administration, nor did we accept that there had been a mistake on the part of
HMRC as to Administration or the winding up of a company.
62. It is a well
established principle that HMRC are entitled to use the means available to them
to protect the collection of revenue. We found that there was no doubt that tax
from the production of biodiesel was due, and that Section 108 CEMA makes clear
that the liability for such tax can fall on the company and the signatory. We
found that it was a relevant and proper consideration for HMRC as to whether
the company was in a position to pay the tax. On the information known to HMRC
at the time, it appeared that the company would be unable to meet its tax
obligation and therefore the decision was made by HMRC to pursue the Appellant
for the tax owing.
63. Even if the
company had been in a position to pay the tax owing, it would still have been
open to HMRC to raise an assessment against the Appellant personally, by virtue
of Section 108 (3) (b) CEMA 1979.
64. We did not
accept that the justification for the decision taken by HMRC is limited; the
objective of the legislation is to protect the revenue and the imposition of
liability upon the Appellant is clear. The collection of tax is a legitimate
and lawful aim and we did not accept that the assessment interfered with the
Appellant’s human rights.
Legitimate Expectation, Reasonableness and
Proportionality
65. We rejected the
Appellant’s submissions in respect of legitimate expectation; Mr MacWhannell on
behalf of the Appellant accepted that ignorance is no excuse and we found,
given the clear wording of Section 108 (3) (b) CEMA 1979 that there could be no
doubt or confusion on the part of the Appellant as to his liability for duty.
66. We did not
accept that there was a legitimate expectation that a director would not be
personally liable as a result of Form EX103A and the Public Notice. The Form
makes clear that the signatory must be authorised, inferring responsibility
upon that person. Public Notice 179 makes reference to the section of CEMA 1979
under which personal liability can arise. We did not accept that the reference
to “producer” within the Regulations, Form EX103A and Public Notice provides
any basis upon which the Appellant could assume that only the company can be
deemed the “producer”. We found that this amounted to a lack of knowledge and
understanding by the Appellant, which does not negate his liability.
67. We found as a
fact that the wording of Section 108 (3) (b) imposes a clear liability to duty
on both the company and the Appellant. There is no dispute as to the fact that
duty is owed. As a result, the assessment was lawfully raised against the Appellant.
In such circumstances we do not accept that this Tribunal has any jurisdiction
to consider the reasonableness of the decision to raise an assessment against
the Appellant.
68. We found as a
fact, there being no issue as to the amounts due as a result of the production
of biodiesel, that the assessments are not disproportionate.
HMRC’s Review
69. We considered
the Review undertaken by Mr McCann. We found that the officer had taken the
correct approach to the Review, namely determining whether the assessment had
been raised against the correct person and whether the assessment was lawful.
70. We read the
internal correspondence between the Officer and his colleague at HMRC’s
Solicitor’s Office which it may be helpful to set out:
Email from Mr McCann to Lisa Bentley-Thornburn
“Issue
whether the director of a limited company, who has
made entry as a biofuel producer using form EX103A on behalf of that company
and has signed the excise Entry on its behalf, can be personally liable for the
excise duty charged in the course of its business if that company is placed
into administration owing excise duty...”
Email from Lisa Bentley-Thornburn to Mr McCann:
“1. The wording of CEMA means that both the body
corporate and the person who signs the EX103A have prime liability.
2. It would appear that from the guidance note both
parties should be assessed although I am doubtful of the complete
enforceability of this as this is “guidance” and not written in statute.
3. Clearly both parties cannot pay. My feeling is that
such provisions are put in place in order to give HMRC the flexibility as to
who to pursue especially in situations of administration/liquidation. The
logical answer/interpretation would be that HMRC would ordinarily pursue the
company unless it was in administration whereby it would pursue the director...
4. In this scenario the director should be pursued.
You may wish to notify the administrators/liquidators of the company and send
an assessment to them. However, given that we will rank pari passu with the
other creditors it’s unlikely that we will get more than a few pence in the
pound pursuing the company for the liability.”
71. We did not
accept that in taking advice, the Officer’s decision could be doubted. We found
that this showed the care taken by the Officer to ensure that he had addressed
the relevant issues.
72. We found the
Appellant’s submission that to assess the Appellant is unreasonable to be
misconceived; there is no discretion where tax is due and an assessment
lawfully raised. We found that there could be no basis upon which the decision
of HMRC could be said to be unreasonable and we found that as a fact that the
Reviewing Officer had taken into account all relevant matters.
Liability
73. We found that
the wording of Section 108 (3) (b) CEMA 1979 is clear in imposing a liability
on separate persons:
“both the body
corporate and the person by whom the entry is signed shall be liable for all
duties charged in respect of the trade to which the entry relates”
74. We accepted the
submission on behalf of the Respondents that joint and several liability is a
just and proportionate means by which HMRC can ensure the protection and
collection of revenues derived from excise duties. We found that Section 108
(3) (b) imposes a liability on both the corporate entity and the signatory,
which does not preclude its application as joint and several liability. In such
circumstances we found that the assessment raised against the Appellant is
lawful and that to find otherwise would leave HMRC without the protection
clearly intended by the legislation.
75. We did not
accept the Appellant’s submission that the imposition of such tax amounts to a
penalty on the basis that excise duty is owed and the Appellant, as signatory
on the Form EX103A, entered premises and is liable for payment of that duty. We
did not accept that any power held by HMRC to take a security from DPL had any
bearing on the lawfulness of the assessment raised against the Appellant.
76. The appeal is
dismissed.
77. This document
contains full findings of fact and reasons for the decision. Any party
dissatisfied with this decision has a right to apply for permission to appeal
against it pursuant to Rule 39 of the Tribunal Procedure (First-tier Tribunal)
(Tax Chamber) Rules 2009. The application must be received by this Tribunal
not later than 56 days after this decision is sent to that party. The parties
are referred to “Guidance to accompany a Decision from the First-tier Tribunal
(Tax Chamber)” which accompanies and forms part of this decision notice.
TRIBUNAL JUDGE
RELEASE DATE: 19 May 2011
