This case involves two pollution control boards - the Telangana State Pollution Control Board (TSPCB) and Andhra Pradesh Pollution Control Board (APPCB) - who wanted to switch from one tax exemption provision to another that would be more beneficial for them. They had existing approvals under Section 10(23C)(iv) (of Income Tax Act, 1961) but wanted to be notified under Section 10(46) (of Income Tax Act, 1961) instead. The tax authorities refused, saying they couldn’t surrender their existing exemption. The High Court ruled in favor of the pollution boards, directing the authorities to process their applications for the new exemption provision.
Get the full picture - access the original judgement of the court order here
Telangana State Pollution Control Board vs Central Board of Direct Taxes (High Court of Telangana)
Writ Petition No. 4834 & 15629 of 2020
Date: 26th July 2021
Can pollution control boards that already have tax exemption approval under Section 10(23C)(iv) (of Income Tax Act, 1961) voluntarily surrender that approval and seek notification under Section 10(46) (of Income Tax Act, 1961), which would be more beneficial to them?
Both pollution control boards were established under environmental protection laws to control pollution and hazardous waste. TSPCB got approval under Section 10(23C)(iv) (of Income Tax Act, 1961) from Assessment Year 2014-15, while APPCB got theirs from 2010-11.
However, despite having these approvals, the tax authorities kept denying them actual exemption benefits, leading to ongoing appeals. In 2011, Parliament introduced Section 10(46) (of Income Tax Act, 1961), which seemed more suitable for their activities.
So in March 2017, both boards applied to be notified under Section 10(46) (of Income Tax Act, 1961) instead, offering to surrender their existing Section 10(23C)(iv) (of Income Tax Act, 1961) approvals. But here’s the frustrating part - the tax authorities just sat on these applications for nearly three years without any response.
When the case came to court in February 2021, the court gave the boards time to formally apply for withdrawal of their existing exemptions. They did this on February 23, 2021. But on March 2, 2021, the authorities rejected these applications, saying there’s no provision for surrendering exemptions once granted.
Petitioners’ (Pollution Boards) Arguments:
Respondents’ (Tax Authorities) Arguments:
The court relied on several important precedents:
CCE v. Indian Petro Chemicals: The Supreme Court held that “if two exemption notifications are applicable in a given case, the assessee may claim benefit of the more beneficial one”
H.C.L. Limited v. Collector of Customs: The Supreme Court ruled that “where there are two exemption notifications that cover the goods in question, the assessee is entitled to the benefit of that exemption notification which gives him greater relief”
Kalahharati Advertising v. Hemant Vimatnath Narichania and Others: The Supreme Court defined “withdrawal” as meaning “to go away or retire from the field of battle or any contest,” indicating it’s “indicative of the voluntary and conscious decision of a person”
Samee Khan v. Bindu Khai: The Supreme Court explained that the word “also” means “Besides; as well; in addition; likewise”
In Re Cheruirala Narayan: A Division Bench held that “the word ‘also’ denotes the extent of power of the Magistrate rather than its limitation”
The court also referenced Section 293C (of Income Tax Act, 1961), which provides general withdrawal powers to tax authorities.
The High Court ruled completely in favor of the pollution control boards.
Court’s Legal Analysis:
The court made several key findings:
Final Orders:
The court directed the 2nd respondent to:
Q1: What’s the practical difference between Section 10(23C)(iv) (of Income Tax Act, 1961) and Section 10(46) (of Income Tax Act, 1961)?
A: Section 10(23C)(iv) (of Income Tax Act, 1961) only gives you approval to claim exemption, but the tax officer can still scrutinize and potentially deny it. Section 10(46) (of Income Tax Act, 1961) provides automatic exemption once you’re notified - no discretion for the tax officer to deny it.
Q2: Can any taxpayer now surrender their existing tax exemptions?
A: This judgment establishes the principle that voluntary surrender is possible, but it would depend on the specific circumstances and applicable provisions. The court emphasized that assessees should be able to choose the most beneficial exemption available to them.
Q3: Why did the tax authorities resist this for so long?
A: The authorities seemed to believe that once an exemption is granted, it’s permanent and can’t be surrendered by the taxpayer. The court rejected this interpretation, finding it too restrictive and contrary to the law’s intent.
Q4: What does this mean for other similar organizations?
A: Other pollution control boards and similar statutory bodies may now be able to apply for notification under Section 10(46) (of Income Tax Act, 1961) if they meet the criteria, even if they already have approvals under other provisions.
Q5: How long did this entire process take?
A: The boards applied in March 2017, faced three years of administrative silence, approached the court in 2020, and got their favorable judgment in 2021 - highlighting the importance of the court’s criticism of administrative delays.

By these two separate writ petitions, the petitioners are questioning
the action of the respondents, in particular the l't respondent, in not
notifying the petitioners under Section 10(46) (of Income Tax Act, 1961),
1961 (for short,'the Act'). Hence, these writ petitions are being disposed
of by a common order.
2. The Telangana State Pollution Control Board (for short'TSPCB') is
the petitioner in W,P.No.4B34 of 2020, while Andhra Pradesh Pollution
Control Board (for short 'APPCB) is the petitioner in W.P.N0.15629 of
2020.
3. Both the petitioners are constituted by the State Governments
under Section 4 of Water (Prevention and Control of Pollution) Act, 1974
and Section 5 of the Air (Prevention and Control of Pollution) Act, 1981
and are established for the purpose of administering and controlling
various steps relating to reduction of pollution and hazardous waste of all
kinds, as per the statutory provisions of the said statutes.
4. It is the case of the petitioner-TSPcB that on its application, the
prescribed authority viz., the 2nd respondent, granted approval under
Section 10(23C)(iv) (of Income Tax Act, 1961) with effect from the Assessment Year 2014-
15 onwards.
5. Similarly, it is the case of the petitioner-APPcB that the prescribed
authority granted approval to it under Section 10(23c)(iv) (of Income Tax Act, 1961) with
effect from the Assessment Year 2010-11 onwards'
6. It is the common case of the petitioners that though the petitioners
were approved by the 2nd respondent and granted exemption under
Section 10(23C) (of Income Tax Act, 1961), the 3'd respondent denied the benefit of
exemption on its income under the Act, for one or other reason and the
matters are pending consideration in appeal before the appellate forum'.
7. The petitioners contend that Parliament by the Finance Act' 2011'
insefted sub-section (46) to Section 10 (of Income Tax Act, 1961)' with effect from
01.06.2011; that the said provision being more apposite to the activities
carried on by the petitioners, the petitioners submitted applications
dt.07.03.2017 and 08'03.2017, respective|y, for being notified Under
Section 10(46) (of Income Tax Act, 1961) of the AcU that the petitioners satisty the conditions
specified under Section 10(46) (of Income Tax Act, 1961); that similarly placed Pollution
Control Boards of the other States, have been notified under Section
10(46) of the AcU and that despite the petitioners making applications
for issue of notification under Section 10(46) (of Income Tax Act, 1961)' which would
entail the petitioners to avail exemption on their income' the said request
of the petitioners is not being considered and the petitioners ar enot
notified under Section 10(46) (of Income Tax Act, 1961)'
8. Counter-affidavitonbehalfoftherespondentsisfiledopposingthe
claim of the Petitioners.
9. Heard Sri Y.Ratnakar, learned counsel for the petitioners, and
Sri K.Raji Reddy, learned Senior Standing Counsel appearing on behalf of
the respondents.
10. The fulcrum of the petitioners contention is that in view of insertion
of sub-section (46) to Section 10 (of Income Tax Act, 1961) with effect from 01'06'2011,
the petitioners being i) established under Central Act, ii) Constituted by
the State Government, iii) the activities carried on are for the benefit of
general public, and iv) not engaged in any commercial activity, are eligible
for being notified under Section 10(46) (of Income Tax Act, 1961). The consequence of
being notified under section 10(46) (of Income Tax Act, 1961), would make the petitioners
entitled to claim exemption on its income under the Act'
ll. It is also contended that the petitioners being instrumental ityof
state cons$tuted to implement and enforce the provisions of central
enactment,theyareentitledtoimmunityfromUniontaxationunder
Afticle 289 of the Constitution of India. It is thus, claimed that the
petitioners having made applications to the 2nd respondent during the
financialyear2Oir6-tT,theyarerequiredtobenotifiedUnderSection
10(46) of the Act from the Assessment Year 2016-17 and on being
notified, the petltioners would surrender the approval granted to them
eartier under Section 10(23C) (of Income Tax Act, 1961).
12. Opposing the contentions urged by the petitioners, on behalf of the
respondents it is contended that the petitioners are not eligible to be
notif.ied under Section 10(46) (of Income Tax Act, 1961), Since the petitioners Were
alreadygrantedregistrationunderSectionl0(23CXiv)oftheAct,andthe
said registration is still in force; and that in view of the 18th proviso to
Section 10(23C) (of Income Tax Act, 1961) inserted with effect from 01'04'2015, the beneflt of
approval under section 10(46) (of Income Tax Act, 1961) would not be available. It is also
contended that the claim of the petitioners with regard to the similarly
placedBoardsofotherStatesbeingnotifiedunderSectionl0(46)ofAct,
would attract the concept of "Zohnerism" (whatever that means)' as
unlike other Pollution Control Boards, the petitioners are already
registered under Section 10(23CXiv) (of Income Tax Act, 1961).
13. On 16.02.2021, when the writ petitions were taken up for hearing
by this Court, the petitioners were granted time to file applications before
1st respondent seeking withdrawal of exemption granted under Section
10(23C) of the Act, and seeking for being notified under Section 10(46) (of Income Tax Act, 1961) of
the Act with effect from the Assessment Year 2015-17. This Court further
directed the 1st respondent to dispose of the said applications within a
period of wvo weeks from date of its receipt and communicate the
decision to the petitioners.
14. Pursuant thereto, the petitioners filed applications on 23.02.2021
seeking for withdrawal of exemption under Section 10(23C) (of Income Tax Act, 1961)
and sought for being notified for exemption under Section 10(46) (of Income Tax Act, 1961) of the
Act with effect from the Assessment Year 2016-17 onwards.
15. The said applications filed by the petitioners on 23.02.2021 were
disposed of by the 2nd respondent by order dt.02.03.2021. By order
dt.02.03.2021, the 2nd respondent, while holding that the approval
granted under Section 10(23C)(iv) (of Income Tax Act, 1961) is in perpetuity, by referring
to the clarification issued to 15th proviso to Section l0(23C)(iv), vide
Circular No.7/2010 dt.27.10.2010, rejected the applications filed by the
petitioners seeking withdrawal of approval granted tc it under Section
10(23CXiv) of the Act, on the ground that under the existing provisions
of the Act, there is no provision for surrendering the exemption, once, it
is granted.
16. The petitioners contend that the power to withdraw conferred on
the proper authority is not only at the behest of the prescribed authority
who granted approval. but is also required to be exercised at the behest
of an applicant, like petitioners. It is also contended that in the absence
of any express restriction or prohibition imposed under the Act, for an
applicant to approach the prescribed authority seeking withdrawal of
approval granted, the claim of the 2nd respondent that exercise of such
power being conferred only on the authority and cannot be exercised at
the behest of the applicant, is discriminatory.
17. The petitioners further contend that the stand of the 2nd
respondent that the exemption granted under Section 10(23C)(iv) (of Income Tax Act, 1961) of the
Act, is in perpetuity, except for being withdrawn at the behest of the
authority, is contrary to the statutory mandate and also powers conferred
under Section 293C (of Income Tax Act, 1961).
18. On the other hand, learned Senior Standing Counsel, while
reiterating the stand of the respondents on the basis of the counter
affidavit filed, would submit that as the grant of approval under Section
10(23c)(iv) of the Act, allows an assessee to avail exemption, being a
benevolent provision, and such approval having been granted at the
behest of the assessee, the petitioners/assessee cannot seek to surrender
the exemption, once it is granted under a pafticular provision of the Act,
and seek for grant of exemption under another provision of the Act,
merely because it is more beneficial to it.
19. We have considered the submissions made by the learned counsel
appearing for the parties.
20. Before adverting to the respective contentions advanced on behalf
of the parties, it is necessary to take note of the Scheme of the Act,
dealing with exemption under Section 10(23CXiv) (of Income Tax Act, 1961) and 10(46) of Act.
21 . Chapter-Ill of the Act deals with 'Incomes which do not form paft
of Total Income'. Section 10 (of Income Tax Act, 1961) provides that in computing the
total income of a previous year of any person, any income falling within
the clauses mentioned therein shall not be included. Sub-clause (iv) of
Clause (23C) of Section 10 (of Income Tax Act, 1961) mentions that the income of any
fund or institution established for charitable purposes (which may be
approved by the prescribed authority) having regard to the objects and
importance either throughout India or State or States, shall not be
included in its total income. By Rule 2C (of Income Tax Rules, 1962) (for
short 'Rules'), the prescribed authority is specified as Principal
Commissioner or Commissioner, whom the Central Board of Direct Taxes
may authorize. The form prescribed for making applications for according
approval under Section 10(23CXiv) (of Income Tax Act, 1961) is in Form No' 56.
22. Firstly, it is to be noted that on grant of approval to an assessee
under Section 10(23C)(iv) (of Income Tax Act, 1961) by the prescribed authority, assessee
would be eligible to claim exemption in respect of cetain incomes as not
forming paft of its total income. Upon the assessee making a claim, grant
of exemption is not automatic or compulsory, but the same is subject to
scrutiny and grant by the assessing authority. Thus, according of
approval under Section 10(23CXiv) (of Income Tax Act, 1961) by the prescribed authority,
would not confer any benefit by itself. Such approval granted is like
possessing an entry ticket for a circus show without a seat in first row.
23. Secondly, the stand of the respondents that the approval granted
under Section 10(23C) (of Income Tax Act, 1961), is in perpetuity and cannot be
surrendered by the assessee, like the petitioners, also appears to be
without any basis. No provision of the Act has been shown to this Court,
expressty placing such a restriction on an assessee, from surrendering an
approval obtained, by approaching the prescribed authority, who
thereafter can exercise powers conferred on him to withdraw such
approval granted. In absence of any such provision in the Act, the
claim of the respondents, that the power to withdraw can only be
exercised by the prescribed authority in the circumstances specifled,
cannot be accepted.
24, Fufther, the reliance placed by the respondents on 15th proviso to
Section 10(23C)(iv) (of Income Tax Act, 1961), and the conditions specified therein to
claim that exemption can be withdrawn by the prescribed authority only,
is totally misplaced. Having regard to the usage of words namely
"Provided also" in conjunction, the power conferred on the prescribed
authority to withdraw the approval granted in the event of any one of
conditions specified getting attracted has to be considered as'in addition
to', but not in a restrictive manner.
25. The word "Provided" has been defined as - "A clause beginning
with this word is usually termed a proviso. It may have various effects.
Sometimes it is to be taken for a condition, sometimes for an explanation,
sometimes for a covenant, sometimes for an exception, sometimes for a
reseruation"
. Similarly, the word "also" used in conjunction connotes a
meaning. In Samee Khan v. Bindu Khai, the Hon'ble Supreme Court
by referring to Black's Law Dictionary held that the word'also' has variety
of meanings like "Besides; as well; in addition; likewise; in like manner;
similarly; too; withal".
26. Applying the meaning as ascribed to the above two words, used as
opening words of 15th proviso to Section 10(23CXiv) (of Income Tax Act, 1961), it can be
in Ferred that the conditions specified therein relate to restriction imposed on the prescribed authority for exercising powers on his own. In Re
Cheruirala Narayarf a Division Bench of this Court speaking through
Hon'ble Sri Justice K. Subba Rao, C.J. (as his Lordship then was), whlle
interpreting the provisions of Section 207-A(4) (of Income Tax Act, 1961) of Cr.p.C., had held that -
" In our view, the word 'also' denotes the extent of power of the
Magistrate rather than its limitation".
27. Further, the term 'withdraw'as used in Sectior 10(23C)(iv) 15th
proviso and also in Section 293C (of Income Tax Act, 1961) has a wider connotation and
cannot be construed in a restrictive manner as sought to be projected by
the respondents. ln Kalahharati Advertising v. Hemant Vimatnath
Narichania and Other/, the Supreme Court held that the term
"withdrawal" means 'to go away or retire from the fleld of batue or any
contest." Thus, the word "withdrawal' is indicative of the voluntary and
conscious decision of a person.'
28. Applying the principles deduced from the above, to the facts of the
case, it is to be held that the power to 'withdraw' is the prerogative of the respondent, and the assessee cannot seek to surrender the approval
granted to it under 10(23C)(iv) of Act, would amount to giving a
restrictive meaning to the word 'withdrawal', to say, only at the behest of
the prescribed authority. This, in our considered view, would run contrary
to the harmonious interpretation of the provision required to be
under taken.
29, On the other hand, if the stand of the respondents that once the
exemption is granted, the same can only be withdrawn by the authorit
granting exemption and such withdrawal cannot be sought by the
assessee, is accepted, it might result in an assessee, who in a given
situation having sought for grant of approval under Section 10(23CXiv) (of Income Tax Act, 1961) of
the Act, continuing to retain such approval, even though he is not
complying with the provisions of the Act for availing exemption'
30. It is understandable, that in normal circumstances, as it is the
assessee who would seek for grant oF approval in order to avail
exemption, may not by itself seek for 'withdrawal'. But, in a given
circumstance where an assessee decides not to avail exemption and
chooses to surrender the approval obtained by approaching the prescribed
authority, it cannot be said that the Act does not provide for surrender,
and also that the prescribed authority lacks power to accept surrender and
exercise the power of withdrawal conferred on him. This interpretation
results in the assessee being compelled to continue with such approval
obtained.
31. It is to be seen that no assessee can be compelled to continue any
exemption, if it intends not to avail the same. It is always open for an
assessee to arrange its affairs in a manner which it feels it would be
beneficial, and it cannot be compelled to continue its operations/activities
in a padicular manner which would be prejudicial to its interest. If the said stand of the respondent is accepted, it would lead to an anomalous
situation and results in "Incentive to be Dishonest" rather than
"Rewarding the Honest".
32. In juxtaposition, Section 10(46) (of Income Tax Act, 1961) confers powers on the
Central Government to notify in the official gazette any specified income
of a body or authority or Board or Trust or Commission, not being
included in its total income, subject to complying with the conditions
specified therein. Thus, once a notification is issued by Central
Government in official gazette, specitying the income of an assessee not
forming part of total income, the assessee would be entitled to claim
exemption on that specified income and no discretion would vest with the
assessing authority to examine the eligibility of the assessee to claim
exemption thereon.
33. Thus, the basic difference between the two provisions of the Act
viz., 70(23C)(iv) and 10(46) of the Act, is that, while under the first
provision, it is only a grant of an approval making an assessee eligible to
claim exemption without any certainty of exemption beino allowed on any
income, since it is subject to scrutiny, the latter provision confers benefit of automatic exemption in respect of the specified income oF the assessee as notified by the Central Government in the gazette. Thus, under Section 10(46) (of Income Tax Act, 1961), there is a certainty with regard to claim oFexemption.
34. The Supreme Court in CCE v. Indian Petro Chemicalf , nen
that - "if two exemption notifications are applicable in a given case, the
assessee may claim beneflt of the more beneficial one".
35. In H,C.L. Limited v, Collector of Custom{, the Hon'ble
Supreme Court relying on the judgemefi in fndian Petro Chemicals
(supra), held that - "where there are hvo exemption .lotifications that
cover the goods in question, the assessee is entitled to the benefit of that
exemption notification which gives him greater relief, regardless of the
fact that the notification is general in its terms and the other notification is more specific to the goods",
36.Inthefactsofthepresentcase,thoughtherearetwodifferent
provisions of the Act under which the petitioners can claim the benefit,
mere fact of petitioners being granted approval under one particular
provision of the Act, namely Section i0(23CXiv) of the Act, in our
opinion, would not disentitle the petitioners/ assessees to seek for being
notified under a different provision, as it is for the assessees/petitioners to choose as to which of the provisions would be more beneficial'
37. Fufther, it is also to taken note that the petitioners, while applying
for exemption and seeking for being notified under Section 10(46) (of Income Tax Act, 1961) of the
Act, also offered to surrender the approval obtained by it under Section
10(23C)(iv) of the Act on being notified. The respondents for the reasons
bestknowndidnottakeanyactionontheapplicationsfiledbyeachofthe
petitioners for being notified under Section 10(46) (of Income Tax Act, 1961)' nor
communicated the reason for not considering the applications, for nearly
three years, till the petitioners approached this Court by the present writ
petitions. Thus, the action of the respondents in not processing the case
ofthepetitionersandmaintainingstaticsilence,cannotbecountenanced.
38. We may also refer to Section 293C (of Income Tax Act, 1961),
which states:
"Where the Central Government or the Board or an income-tax
authority, who has been conferred upon the power under any
provision of this Act to grant any approval to any assessee' the
Central Government or the Board or such authority may'
notwithstanding that a provision to withdraw such approval has not
been specifically provided for in such provision, withdraw such
a1?roval at anY time:
Provided that the Central Government or Board or income-tax
authority shatl, after giving a reasonable opportunity of showing
cause against the proposed withdrawal to the assessee concerned'
at any time, withdraw the approval afrer recording the reasons for
doing so."
39. in our view, the reason assigned by the 2nd respondent in its
communication dt.02.03.2021 to reject the request of the petitioners
seeking withdrawal of the approval granted under Section 10(23C) (of Income Tax Act, 1961) of the
Act, is also overlooking the power conferred on the said authority under
Section 293C (of Income Tax Act, 1961), even if lt is construed that the 15th proviso
confers power on the authority to withdraw only on the conditions
stipulated therein, The understanding of the 2nd respondent that the
power to withdraw conferred under Section 293C (of Income Tax Act, 1961) or Section 10(23CXiv) (of Income Tax Act, 1961) of
the Act, to be undeftaken only at the behest of the respondents and not
at the request of the petitioners, does not appeal to this Court, as a
correct understanding. As detailed herein above, the word 'withdraw' as
used in both the Sections 10(23C)(iv) and 293C of the Act, encompasses
in itself the exercise of power even at the behest of the
assessee/petitioners, and the contrary view of the respondents is liable to
be rejected.
40, It is also to be seen that the petitioners have not sought for grant
of exemption under Section 10(46) (of Income Tax Act, 1961) either from the day the said
provision was introduced or from the date of their initial grant oF approval
under Section 10(23C) (of Income Tax Act, 1961). The petitioners sought for being notified
under Section 10(46) (of Income Tax Act, 1961) only from the relevant previous year,
having regard to the fact that the benefit of exemption under Section
10(23C) of the Act, was being denied regularly, and they felt that the
provisions of Section 10(46) (of Income Tax Act, 1961) are more beneficial and are
applicable more aptly.
41. In view of the conclusions arrived at by us as above, the petitioners
are liable to succeed in these writ petitions.
42. Accordingry, the writ petitions are ailowed; the 2nd respondent is
directed to withdraw the approvar granted to the petitioners under section
10(23C) of the Act with effect from the date of applications made by the
petitioners for being notified under Section 10(46) (of Income Tax Act, 1961); and process
the petitioners,applications dt.07.03.20t7 and 08.03.2017 filed for being
notified under section 10(46) (of Income Tax Act, 1961) in accordance with the provisions of
the Act, from the previous year relevant to the date of applications, filed.
43, Pending miscellaneous petitions, if any, shall stand closed. No order
as to costs.
,TRUE COPY
Sd/-K.SAILESHI
ASSISTANT REGISTRAR
SECTION FFICER