P L D 2002 Karachi 374 (PLP)
HAKIM ALI ZARDARI‑‑‑Petitioner Versus TEE STATE and another‑‑‑Respondents
| Citation | P L D 2002 Karachi 374 (PLP) |
| Forum / Court | Although the immunity available under section 5 of the Protection of Economic Reforms Act, 1992, is not available to the applicant in the present case, the contention that there is overriding provision in section 3 of the Protection of Economic Reforms Act, 1992, is not available to the applicant in the present case, the contention that there is overriding provision in section 3 of the Protection of Economic Reforms Act, 1992, looses its significance. It is provided in section 3 of the Protection of Economic Reforms Act, 1992, that the provisions of said Act shall take effect notwithstanding anything contained in the Foreign Exchange Regulation Act, 1947, the Customs Act, 1969, the Income tax Ordinance, 1979 or any other law for the time being in force. This overriding provision shall become operative if there is any conflict in the provisions contained in the Protection of Economic Reforms Act, and the provisions contained in the laws enumerated in section 3 or any other law for the time being in force. Nothing has been shown to us pointing out any conflict in the provisions contained in the Protection of Economic Reforms Act, 1992 and the provisions in the NAB Ordinance, 1999. p. 392 H |
| Bench Members | Muhammad Roshan Essani and Muhammad Mujeebullah Siddiqui, JJ |
| Parties | HAKIM ALI ZARDARI‑‑‑Petitioner Versus TEE STATE and another‑‑‑Respondents |
Q1: What are the key laws and sections cited in P L D 2002 Karachi 374 (PLP)?
This judgment primarily cites: statutory provisions as referenced in Pakistani case law index.
Q2: Which judicial bench decided the case P L D 2002 Karachi 374 (PLP)?
The case was heard and decided by the Although the immunity available under section 5 of the Protection of Economic Reforms Act, 1992, is not available to the applicant in the present case, the contention that there is overriding provision in section 3 of the Protection of Economic Reforms Act, 1992, is not available to the applicant in the present case, the contention that there is overriding provision in section 3 of the Protection of Economic Reforms Act, 1992, looses its significance. It is provided in section 3 of the Protection of Economic Reforms Act, 1992, that the provisions of said Act shall take effect notwithstanding anything contained in the Foreign Exchange Regulation Act, 1947, the Customs Act, 1969, the Income tax Ordinance, 1979 or any other law for the time being in force. This overriding provision shall become operative if there is any conflict in the provisions contained in the Protection of Economic Reforms Act, and the provisions contained in the laws enumerated in section 3 or any other law for the time being in force. Nothing has been shown to us pointing out any conflict in the provisions contained in the Protection of Economic Reforms Act, 1992 and the provisions in the NAB Ordinance, 1999. p. 392 H bench comprising: Muhammad Roshan Essani and Muhammad Mujeebullah Siddiqui, JJ.
Q3: What is the official citation format for this judgment on Pakistan Law Portal?
Cite this legal precedent as: P L D 2002 Karachi 374 (PLP) (HAKIM ALI ZARDARI‑‑‑Petitioner Versus TEE STATE and another‑‑‑Respondents). Read the full summary and cross-referenced laws free on Pakistan Law Portal.
Representation
- Muhammad Yousaf Leghari for Petitioner. Anwar Tariq for Respondents.
- Date of hearing: 19th March, 2002.
Headnotes / Summary
(a) National Accountability Bureau Ordinance (XVHI of 1999)‑‑‑‑‑‑‑Ss. 3, 9 & 10‑‑‑Protection of Economic Reforms Act (XII of 1992), Ss.3 & 5‑‑‑Public Debt Act (XVIII of 1944), S.28‑‑‑Foreign Exchange Bearer Certificates Rules, 1985, Rr.4 & 11‑‑‑Foreign Exchange Regulation Act (VII of 1947), Preamble‑‑‑Income Tax Ordinance (XXXI of 1979), Ss. 13 & 14 & Second Sched. Part IV‑‑‑Wealth Tax Act (XV of 1963), S.5 & Second Sched. Part I‑‑‑Criminal Procedure Code (V of 1898), Ss.265‑K & 439‑‑ Corruption and corrupt practices‑‑‑Prosecution had been launched against the accused under Ss.9 & 10 of the National Accountability Bureau Ordinance, 1999 for accumulating properties by him, disproportionate to his known sources of income which came within the purview of "corruption and corrupt practices" as defined in S.9 of the said Ordinance‑‑‑Application from accused under S.265‑K, Cr.P.C. claiming immunity under S.5, Protection of Economic Reforms Act, 1992 and Foreign Exchange Bearer Certificates Rules, 1985, R.4‑‑‑Validity‑‑‑Provisions of Ss.3 & 5 of Protection of Economic Reforms Act, 1992 and R.4 of the Foreign Exchange Bearer Certificates Rules, 1985 do not provide complete protection and immunity from the operation of National Accountability Bureau Ordinance, 1999‑‑ Principles‑‑‑Provisions contained in National Accountability Bureau Ordinance, 1999 override any provision to the contrary and the provisions of the said Ordinance shall prevail over all other provisions of law for the time being in force on the 16th November, 1999 when the said Ordinance was promulgated‑‑‑Order of Trial Court dismissing the application of the accused under &.265‑K, Cr.P.C. not suffering from any illegality,, irregularity causing miscarriage of justice or any other infirmity, did not warrant interference by High Court in revision. The provisions of sections 3, and 5 of Protection of Economic Reforms Act, 1992 and Foreign Exchange Bearer Certificates Rules, 1985 do not provide complete protection and immunity from the operation of NAB Ordinance, 1999. Foreign Exchange Bearer Certificates Rules, 1985, framed' by‑the Federal Government, under section 28 of the Public Debt Act, 1944, have limited application. They merely deal with the matters pertaining to the issuance of FEBC, the manner and mode of purchasing the Foreign Exchange Bearer Certificates, encashment of the said certificates, the amount which shall be payable on encashment, the currency in which the encashmcnt shall be made the limit, on purchase, possession, import or export of the certificates. .In addition to these matters certain protections have been provided for the specific purposes and in respect of the authorities stated in the rules. Rule 4 provides that certificatemay be purchased by foreigners and. Pakistanis without limit, against payment in Foreign Exchange from any office of issue. In this rule it is further provided that no questionasball be asked regarding source‑ of funds. It is established principle of the interpretation of statutes that the words, expressions and the provisions take complexion and colour with reference to the context in which they are used and the matters with which the particular provisions deal. Thus, the provisions in rule 4., that no question shall be asked regarding source of fiends, pertains to the office of issue of the Foreign Exchange Bearer Certificates Rules.. It means that wherever, any person purchases any Foreign Exchange Bearer Certificates from any office of issue such office of issue shall not question the purchaser regarding the source of funds. Certain other protections are also contained in the rules. Under rule 11, the profit earned on these certificates is not liable to income‑tax or compulsory deduction of Zakat in Pakistan nor is to be taken into account for the purpose of determining rate of income‑tax on total income. It is further provided in rule 13 that where any certificates are encashed in Pakistan rupees, the office of issue concerned will give the holder a certificate in the form as prescribed in the rules and in case any amount is covered by such certificate no question will be asked by Taxation. Authorities regarding source of funds. Thus; it is abundantly clear that under the Foreign Exchange Bearer Certificates Rules, the profit earned on such certificates enjoys immunity from payment of income‑tax and compulsory deduction of Zakat. Moreover, it is not to be taken into account for determining the rate of tax on total income. If certificates are encashed in Pakistani rupees and the encashment certificate is issued then to the extent of amount in Pakistani rupees by conversion of Foreign Exchange Bearer Certificates, the taxation authorities shall not ask any question regarding source of funds. The effect of this protection is that in case of an amount representing encashment certificate it shall enjoy immunity from being subjected to tax under section 13 of the Income Tax Ordinance, as income from undisclosed sources. In the present case the applicant is not in possession of encashment certificate in spite of certain protections to the holders of Foreign Exchange Bearer Certificates from the probe and inquiry by the taxation authorities and immunity from levy of tax on the profit earned on these certificates it was cwt found sufficient by the Legislature to provide complete protection from levy of income‑tax and wealth tax, with the result that specific provisions have been made in Part IV of the Second Schedule to the Income Tax Ordinance, 1979, under the caption "exemption from specific provisions". The Second Schedule of the Income Tax Ordinance, is in pursuance of section 14 of the Income Tax Ordinance, 1979 and it is provided in Part IV of the Second Schedule, that the income or classes of income, persons or classes of persons enumerated therein shall be exempted from the operation of such provisions of the Ordinance, subject to such conditions and to the extent as are specified thereunder. Clause VI was inserted in Part IV by Notification No.S.R.O. 654(1)/85, July 1st, 1985 with the framing of Foreign Exchange Bearer Certificates Rules. Clause (6‑D) was inserted in the year 1998 vide Notification S.R.O. 516(1)/98, dated June 5th, 1998. It was substituted by another Notification S.R.O. 871(1)/98, dated August 5th, 1998. Likewise in Part 1 of Second Schedule to the Wealth Tax Act, 1963, under section 5 of the said Act, a specific provision was made to the effect that wealth tax shall not be payable by an assessee in respect of the assets in the form of Foreign Exchange Bearer Certificates, issued under the Foreign Exchange Bearer Certificates Rules, 1985. The above provisions made by the Legislature are indicative of the fact that mere provision in rule 4 of the Foreign Exchange Bearer Certificates Rules, 1985, to the effect that the office of issue shall not ask any question regarding source of funds or that the amount covered by encashment Certificate held on conversion of FEBC into Pakistani rupees shall be immune from questioning by Taxation Authorities regarding source of funds, were not found sufficient per se to provide complete protection/immunity even from applicability of special provisions contained in the Income Tax Ordinance, 1979 and the Wealth Tax Act, 1963. Thus, the question of enjoying any protection in respect of criminal prosecution under the NAB Ordinance with referee to Foreign Exchange Bearer Certificates Rules, does not arise. The~liability to pay income‑tax and wealth tax is primarily a liability of civil‑nature and when the.Foreign Exchange Bearer Certificates Rules, 1985 were not found sufficient by the Legislature itself to provide complete immunity from the civil liabilities, the question of enjoying complete immunity/protection from a criminal liability does not arise at all. The Foreign Exchange Bearer Certificates Rules, 1985 have been framed by the Federal Government under section 28 of the Public Debt Act, 1944. Thus, it is in the nature of subordinate legislation in exercise of delegated authority. Any subordinate legislation in pursuance of delegated authority shall be confined to the purposes for which the authority is delegated by the Legislature and for the purpose of the Act under which the delegated authority is exercised. It is provided in section 28 of the Public Debt Act, 1944, that the Government may make rules to carry out the purposes of the said Act. The purpose of enacting the Public Debt Act, 1944, is given in the Act itself, which is to consolidate and amend the law relating to Government securities and the management of the Public Debt. The rules' framed under section 28 shall always be confuted to the purposes of the Act and shall not extend to anything not covered under the purposes of the Public Debt Act, 1944. This is the reason for which the protections deemed necessary from the levy of taxes, were enacted in the Income Tax Ordinance, 1979 and Wealth Tax Act, 1963. Any provision contained in subordinate legislation shall not override the provisions contained ‑in the main Act/Ordinance enacted by the Legislature itself. If there is any conflict in the rules framed under delegated legislation and the statute enacted by the Legislature itself, then the subordinate legislation has to give way to the statute law. Although there is no provision in the F.E.B.C. Rules, 1985 to the effect that it will override any other law, but even if there would have been any such provision it would not have the effect of overriding the provisions contained in the NAB Ordinance, 1999. Subsection (1) of section 5 of this Act, provides that all citizens of Pakistan resident in Pakistan or outside Pakistan who hold foreign currency accounts in Pakistan, and all other persons who hold such accounts, shall continue to enjoy immunity against any enquiry from the Income Tax Department or any other,Taxation Authority as to the source of financing of the Foreign Currency Accounts. This provision provides protection to the holder of Foreign Currency Accounts in Pakistan. The evidence in the present case does not show that the accused was holding any Foreign Currency Accounts in Pakistan and, therefore, the provisions contained in subsection (1) of section 5 of the Protection of Economic Reforms Act, 1992, which provides immunity to the Foreign Currency Accounts is not attracted to the Foreign Exchange Bearer Certificates held by the applicant. Moreover, subsection (1) of section 5 of the Protection of Economic Reforms Act, merely provides that the holder of Foreign Currency Accounts, shall continue to enjoy immunity against any inquiry from Income‑tax Department or any other Taxation Authority as to the source of financing of the Foreign Currency Account. The law itself specifically provides that the immunity to the Foreign Currency Accounts was available from Income Tax Department or any other taxation authority but does not provide immunity from prosecution for a criminal offence under any law including NAB Ordinance, 1999. In subsection (2) of section 5, it is provided that the balances in the Foreign Currency Accounts and income therefrom shall continue to remain exempted from the levy of wealth tax and income‑tax and compulsory deduction of Zakat at source. Subsection (3) provides that the banks shall maintain complete secrecy in respect of transaction in the Foreign Currency Account. The immunity available' in section 5 of the Protection of Economic Reforms Act, 1992, is not available from the applicability or operation of the provisions contained in the.NAB Ordinance, 1999. In the present case, no proceedings have been initiated by any taxation authority but by the authorities under the NAB Ordinance, 1999, in respect of a criminal liability. Although the immunity available under section 5 of the Protection of Economic Reforms Act, 1992, is not available to the applicant in the present case, the contention that there is overriding provision in section 3 of the Protection of Economic Reforms Act, 1992, is not available to the applicant in the present case, the contention that there is overriding provision in section 3 of the Protection of Economic Reforms Act, 1992, looses its significance. It is provided in section 3 of the Protection of Economic Reforms Act, 1992, that the provisions of said Act shall take effect notwithstanding anything contained in the Foreign Exchange Regulation Act, 1947, the Customs Act, 1969, the Income tax Ordinance, 1979 or any other law for the time being in force. This overriding provision shall become operative if there is any conflict in the provisions contained in the Protection of Economic Reforms Act, and the provisions contained in the laws enumerated in section 3 or any other law for the time being in force. Nothing has been shown to us pointing out any conflict in the provisions contained in the Protection of Economic Reforms Act, 1992 and the provisions in the NAB Ordinance, 1999. [p. 392] H Immunity provided in section 5 of the Limitation Act, is not extended to the criminal prosecution under the NAB Ordinance, 1999. Section 4 gives freedom to all citizens of Pakistan resident in Pakistan or outside Pakistan and all other persons to bring, hold, sell, transfer and take out foreign exchange within or out of Pakistan in any form and shall not be required to make a foreign currency declaration at any stage nor shall any one be questioned in regard to the same. In the present case, the prosecution has not questioned the right of applicant to bring foreign exchange within Pakistan or to take away the foreign exchange out of Pakistan and no prosecution has been launched for non‑declaration of any foreign currency at any stage. In the present case, the prosecution has been launched under sections 9 and 10 of the NAB Ordinance, for accumulating properties by the accused disproportionate to his known sources of income which comes within the purview of corruption and corrupt practices as defined in section 9 of the NAB Ordinance, 1999. Even if it is assumed for the sake of argument that there is any conflict in the provisions contained in the Protection of Economic Reforms Act, 1992 and Foreign Exchange Bearer Certificates Rules, 1985, on one hand and the provisions contained in the NAB Ordinance, 1999 on the other hand, the provisions contained in the NAB Ordinance, 1999 shall override the provisions contained in the earlier laws. The reason being that, it is provided in section 3 of the NAB Ordinance, that the provisions of the said Ordinance, shall have effect notwithstanding anything contained in any other law for the time being in force. Thus, there are non obstante clauses in both the enactments. When there are non obstante clauses in two Acts, the later shall prevail. The Protection of Economic Reforms Act, 1992, was enacted in the year 1992 and the NAB Ordinance, under which the applicant in the present case is being prosecuted has been promulgated in the year 1999. The provisions contained in the NAB Ordinance, 1999 shall override any provision to the contrary and the provisions of the NAB Ordinance, shall prevail over all other provisions of law in force on the 16th November, 1999, when the NAB Ordinance, was promulgated. Order of the trial Court dismissing the application of the accused under section 265‑K, Cr.P.C. did not suffer from any illegality, irregularity causing miscarriage of justice or any other infirmity warranting interference by High Court. H.C:A. No.281 of 2000 and Messrs Elahi Cotton Mills Ltd. v. Federation of Pakistan 1997 PTD 1555 ref. Hudabiya Engineering (Pvt.) Ltd. v. Pakistan PLD 1998 Lab. 90 distinguished. (b) Interpretation of statutes‑‑‑‑‑‑ Meaning of words used in statute=‑‑Words, expressions and provisions take complexion and colour with reference to the context in which they are used and the matters with which the particular provisions deal. (c) Interpretation of statutes‑‑‑‑‑‑ Subordinate legislation‑‑‑Provisions contained in subordinate legislation shall not override the provisions contained in the main Act/Ordinance enacted by the Legislature itself. (d) National Accountability Bureau Ordinance (XVIII of 1999)‑‑‑‑‑‑‑Preamble‑‑‑Limitation Act (IX of 1908), S.5‑‑‑Immunity provided in S.5, Limitation Act, 1908 is not extended to the criminal prosecution under the National Accountability Bureau Ordinance, 1999. (e) Interpretation of statutes‑‑‑‑‑‑ Non obstante clauses in two Acts‑‑‑Applicability‑‑‑Latter would prevail.
Judgment & Decree
(3) The batiks shall maintain complete secrecy in respect of transactions in the foreign currency accounts. (4) The State Bank of Pakistan or other banks shall not impose any restrictions on deposits in and withdrawals from the foreign currency accounts and restrictions, if any, shall stand withdrawn forthwith. "
18. In support of his contention he has placed reliance on a Full Bench judgment of the Lahore High Court in the case of Hyudabiya Engineering. (Pvt.) Limited v. Pakistan PLD 1998 Lahore 90, wherein it has been held as follows:‑‑ "On proper analysis, the conclusion which follows is that sub section (1) of section 5 bars the Authorities from taking any action against the person on the basis of transactions in the foreign currency accounts. "
19. He vas posntea out the following findings by the Full Bench of the Lahore High Court in the judgment cited above:‑‑ "
31. It is also to be seen that as sections 4 and 5 of the Act, both deal with foreign currency, while interpreting section 5, section 4 of the Act cannot be lost sight of. It provides complete freedom to all citizens of Pakistan and all other persons to bring, hold, sell and take out foreign currency in any form. It specifically provides that no person shall be required to make any foreign currency declared at any stage and also ordains that no one shall be questioned in regard to the same. This clearly brings out the legislative intent that no question can be asked from,the person holding any foreign currency in respect of the same. That being so, no inquiry either into the source or the holding of the foreign currency can be initiated or made by any agency especially when non obstante clause in section 3 of the Act provides that the Act shall override all other laws.
32. On consideration of various provisions of the Protection of Economic Reforms Act, 1992, we have reached the conclusion that so far as foreign currency accounts are conceived, the holders. Where-of, have complete immunity from inquiry and scrutiny and complete secrecy must be maintained in respect of those accounts which cannot be` violated by any agency or functionary. That being so, neither the Income Tax Authorities nor Federal Investigation Agency had any jurisdiction to hold any inquiry in respect of the transactions in .the foreign currency accounts nor could the same be made basis of criminal prosecution."
20. The learned counsel for the applicant has submitted that section 3 of the Protection of Economic Reforms Act, 1992, has overriding effect and therefore, the applicant is fully protected. Section 3 of the Protection of Economic Reforms Act, 1992, reads as follows:‑‑ "
3. Act to override other laws.‑‑The provisions of this Act shall have effect notwithstanding anything contained in the Foreign Exchange Regulation Act, 1947 (VII of 1947), the Customs Act, 1969 (IV of 1969), the Income Tax Ordinance, 1979 (XXXI of 1979), or any other law for the time being in force."
21. Mr. Yousuf Leghari, learned counsel for the applscan s concluded his arguments contending that the applicant enjoys complete protection from any inquiry under any law in respect of source of acquiring Foreign Exchange Bearer Certificates and the assets created out of Foreign Exchange Bearer Certificates. Consequently, all the authorities are debarred from making any inquiry in respect of the source of acquiring properties from Foreign Exchange Bearer Certificates. According to him, when the source cannot be inquired into the consequence would be that the prosecution cannot establish that the property in question was acquired beyond the known sources of income or from any illegal means or corrupt practices and thus, no offence shall be deemed to have been committed by the applicant, entitling him to be acquitted under section 265‑K, Cr.P.C. as there is no probability of the accused being convicted of any offence. He has further submitted that an accused under section 265‑K, Cr.P.C. can be acquitted at any stage of the case. According to learned counsel, the learned trial Court committed illegality in not acquitting the applicant under section 265‑K, Cr.P.C. and, therefore, the impugned order is liable to be set aside, with the direction for acquittal of the applicant.
22. On the other hand, the learned D.P.G.A. has submitted that the contentions raised by the learned counsel for the applicant are totally uncalled for. He has fully supported the impugned order of the learned trial Court rejecting the application under section 265‑K, Cr.P.C. He has submitted that so far section 5 of the Protection of Economic Reforssls Act, 1992, is concerned, it only provides immunity against any inquiry from the Income‑tax Department or any other taxation authority as to the source of financing of the foreign currency accounts. He has submitted that the immunity is not available for prosecution under the NAB Ordinance, 1999, and likewise the provisions in the F.E.B.C. Rules to the effect that no question shall be asked regarding the source of funds, is also of no help to the applicant because of the provisions contained in sections 2 and 3 of the NAB Ordinance, to the effect that Ordinance shall come into force at once and shall be deemed to have come into force from the 1st day of January.. 1985 and that the provisions of the Ordinance, shall have effect notwithstanding, anything contained in any other law for the time being in force. He has submitted that the applicant may riot be liable to the levy of Income‑tax, Wealth Tax or any other tax but shall still be liable for punishment provided in the NAB Ordinance. He has submitted that under section 9(v) of the NAB Ordinance, it is provided that holder of public office, or any other person, is said to commit or to have committed the offence of corigon and corrupt practices: "(v) if he or . any of his dependants or benamidars owns, possesses, or has acquired right or title in any movable or immovable property or pecuniary resources disproportionate to his known sources of income, which,he cannot reasonably account for."
23. He has contended that if sections 2, 3, 9 and 10 are read together, no doubt shall be left in the proposition that because of the overriding effect of the NAB Ordinance, any person who is established to have committed any offence envisaged under the said Ordinance shall be liable to the punishment provided in the said Ordinance.
24. We have carefully considered the contentions raised by the learned Advocates for the parties and in order to appreciate the contentions, it would be appropriate to reproduce theprovisions contained in sections 2, 3 and 9 of the NAB Ordinance, which read as follows:‑‑
2. Commencement.‑‑This Ordinance shall come into force at once and shall be deemed to have come into force from the 1st day of January, 1985.
3. Ordinance to override other laws.‑‑The provisions of this Ordinance shall have effect notwithstanding anything contained in any other law for 'the time being in force.
9. Corruption and corrupt practices.‑‑(a) A holder of a public office, or any other person, is said to commit or to have committed the offence of corruption and corrupt practices‑‑ (i) if he accepts or obtains from any person or offers any gratification directly or indirectly, other than. legal remuneration, as a motive or reward such as is specified in section 161. of the Pakistan Penal Code (Act XLV of 1860) for doing or forbearing to do any official act, or for showing or forbearing to show, in the exercise of his official functions, favour or disfavour to any person, or for rendering or attempting to render any service or disservice to any person; or (ii) if he accepts ' or obtains or offers any valuable thing without consideration, or for a consideration which he knows to be inadequate, from any person whom he knows to have been, or likely to be, concerned in any proceeding or business transacted or about to.be transacted by him, or having any connection with his official functions or from any person whom he knows to be interested in or related to the person so concerned; or (iii) if he dishonestly or fraudulently misappropriates. or otherwise converts for his own use, or for the use of any other person, any property entrusted to him, . or under his control, or wilfully allows any other person so to do; or (iv) if he by corrupt, dishonest, or illegal means, obtains or seeks to obtain for himself, or for his spouse and/or dependants or any other person, any property, valuable thing, or pecuniary advantage; or (v) if he or any of his dependants or benamidars owns, possesses, or has acquired right or title in any movable or immovable property or pecuniary resources disproportionate to his known sources of income, which he cannot reasonably account for; or (vi) misuses his authority so as to gain any benefit or favour for himself or any other person, or to render or attempt to do so or wilfully fails to exercise his authority to prevent the grant, or rendition of any undue benefit or favour which he could have prevented by exercising his authority; (vii) if he has issued any directive, policy, or any S.R.O. (Statutory Regulatory Order) or any other order which grants or enables any undue concession or benefit in any taxation matter or law or otherwise so, as to benefit himself or any relative or associate or a benamidar or any other person; or (viii) if he commits an offence of wilfull default; or, (ix) If he commits the offence of cheating as defined in section 415 of the Pakistan Penal Code and thereby dishonestly induces members of the public at large scale to deliver any property including money or valuable security to any person or he commits the offence of criminal breach of trust as defined in section 405 of the Pakistan Penal Code with regard to any property including money or valuable security entrusted to him by members of the public at large scale. (b) All offences under this Ordinance shall be non‑bailable and, notwithstanding anything contained in sections 426, 491, 498. and 561‑A or any other provision of the Code, or any other law for the time being in force no Court shall have jurisdiction to grant bail to any person accused of any offence under this Ordinance. (c) Where the Chairman NAB decides to release from custody or detention a holder of a public office or any other person accused of an offence under this Ordinance he shall do so after considering the gravity of the charge against such person and the accruing quantum of loss involved in the offence alleged to have been committed and may impose any reasonable conditions for such release. (d) The amount deposited by the accused with the NAB shall be transferred to the Federal Government or, as the case may be, a Provincial Government or the concerned bank or financial institution (corporate body, cooperative society, statutory body or authority concerned) within one month from the date of such deposit.
25. The first and foremost emphasis of Mr. Yousuf Legbari, is that under the Foreign Exchange Bearer Certificates Rules, 1985, it is provided that no question shall be asked regarding source of funds for purchasing Foreign Exchange Bearer Certificates: 'and that under section 5 of the Protection of Economic Reforms Act, 1992, immunity is available to the Foreign Currency Accounts. He has submitted that a Full Bench of Lahore High Court has already decided the issue in his favour in the case of Hudabiya Engineering (Pvt.) Limited v. Pakistan (supra).
26. On a careful exantittation of all these provisions we are unable to agree with the learned counsel for the applicant that the provisions on which reliance has been placed provide complete protection and immunity to the applicant from the operation of NAB Ordinance, 1999. We have reached to this conclusion for the reason that the Foreign Exchange Bearer Certificates Rules, 1985, framed by the Federal Government, under section 28 of the Public Debt Act, 1944, have limited application. They merely deal with the matters pertaining to the issuance of F.E.B.C., the manner and mode of purchasing the Foreign Exchange Bearer Certificates, encashment of the said certificates, the amount which shall be payable on encashment, the currency in which the ettcashment shall be trade the limit on purchase, possession, import or export of the certificates. In addition to these matters certain protections have been provided for the specific purposes and in respect of the authorities stated in the Rules. Rule 4 on which Mr. Leghari, has placed reliance provides that certificate may be purchased by foreigners and Pakistanis without limit, against payment in Foreign Exchange from any p, office of issue. In this rule it is further provided that no question shall be asked regarding source of funds. It is established principle of the interpretation of statutes that the words, expressions and the provisions take complexion and colour with reference to the context in which they are used and the matters with which the particular provisions deal. Thus, the provisions in rule 4, that no question shall be asked regarding source of funds, pertains to the office of issue of the Foreign Exchange Bearer Certificates Rules. It means that wherever, any person purchases any Foreign Exchange Bearer Certificates from any office of issue such office of issue shall not question the purchaser regarding the source of funds. Certain other protections are also contained in the Rules. Under rule 11, the profit earned on these certificates is not liable to income‑tax or compulsory deduction of Zakat in Pakistan nor is to be taken into account for the purpose of determining rate of income‑tax on total income. It is further provided in rule that where any certificates are encashed in Pakistani rupees, the office of issue concerned will give the holder a certificate in the form as prescribed in the Rules and in any amount is cover certificate no question will be asked by Taxation Authorities regarding source of funds. Thus, it is abundantly clear that under the Foreign Exchange Bearer Certificates Rules, the profit earned on such certificates enjoys immunity from payment of income‑tax and compulsory deduction of Zakat. Moreover it is not to be taken into account for determining the rate of tax on total income. If certificates are encased in Pakistani rupees and the encashment certificate is issued then to the extent of amount in Pakistani rupees by conversion of Foreign Exchange Bearer Certificates the Taxation Authorities shall not ask any question regarding source of funds. The effect of this protection is that in case of an amount representing encashment certificate it shall enjoy immunity from being subjected to tax under section 13 of the Income Tax Ordinance, as income from undisclosed sources. Here, we would like to point out that the applicant is not in possession of encashment certificate as clarified by P.W.4, Freedy Rustamjee Sethena. The statement of this witness recorded by the trial Court has been produced by the learned counsel for the applicant/accused alongwith revision application as Annexure 'C/4'. Here, we would like to further point out that in spite of certain protections to the holders of Foreign Exchange Bearer Certificates from the probe and inquiry by the taxation authorities and immunity from levy of tax on the profit earned on these certificates it was not found sufficient by the Legislature to provide complete protection from levy of income‑tax and wealth tax, with the result that specific provisions have been made in Part IV of the IInd Schedule to the Income Tax Ordinance, 1979, under the caption "exemption from specific provisions". The Second Schedule of the Income Tax Ordinance, is in pursuance of section 14 of the Income Tax Ordinance, 1979 and it is provided in Part IV of the Second Schedule, that the income or classes of income persons or classes of persons enumerated therein shall be exempted from the operation of such provisions of the Ordinance, subject to such conditions and to the extent as are specified thereunder. Clause (VI) was inserted in Part IV by Notification No.S.R.O. 654(1)/85, July 1st, 1985 with the framing of Foreign Exchange Bearer Certificates Rules. Clause (VI) reads as follows: "(VI) The provisions of section 13, Chapter XI or Chapter XII shall not apply in respect of any amount invested in the acquisition of Foreign Exchange Bearer Certificates issued under the Foreign Exchange Bearer Certificates Rules, 1985." Clause (VI‑D) was inserted in the year 1998 vide Notification S.R.0 516(1)/98, dated June 5, 1998, which reads as follows:‑‑ (VI‑D) The provisions of section 13 or 65 or Chapter XI or Chapter XII shall not apply in respect of rupees withdrawn or assets created out of such withdrawal in rupees from private foreign currency accounts, or encashment of Foreign Exchange Bearer Certificates, U.S. Dollar Bearer Certificates and Foreign Currency Bearer Certificates provided that the conversion from foreign currency or encashment of certificates takes place before the first day of September, 1998." It was substituted by another Notifica on O. No.87 I)/98, dated August 5, 1998, which reads as follows: (VI‑D) The provisions of section 13 or section 65 or Chapter XI and Chapter XII shall not apply in respect of rupees withdrawn or assets created out of such withdrawal in rupees from private foreign currency accounts, or encashment of Foreign Exchange Bearer Certificates, U.S. Dollax Bearer Certificates and Foreign. Currency Bearer Certificates. "
27. Likewise in Part 1 of IInd Schedule to the Wealth Tax Act, 1963, under section 5 of the said Act, a specific provision was made to the effect that wealth tax shall not be payable by an assessee in respect of the assets in the form of Foreign Exchange Bearer Certificates, issued under the Foreign Exchange Bearer Certificates Rules, 1985.
28. The above provisions made by the Legislature are indicative of the fact that mere provision in rule 4 of the Foreign Exchange Bearer Certificates Rules, 1985, to the effect that the office of issue shall not ask any question regarding source of funds or that the amount covered by encashment Certificate held on conversion of F.E.B.C. into Pakistani rupees shall be D immune from questioning by Taxation Authorities regarding source of funds, were not found sufficient per se to provide complete protection/immunity even from applicability of special provisions contained in the Income Tax Ordinance, 1979 and the Wealth Tax Act, 1963. Thus, the question of enjoying any protection in respect of criminal prosecution under the NAB Ordinance with reference to Foreign Exchange Bearer Certificates Rules, does not arise. The liability to pay income‑tax and wealth tax is primarily a liability of civil nature and when the Foreign Exchange Bearer Certificates Rules, 1985 were not found sufficient by the Legislature itself to provide r complete immunity from the civil liabilities, the question of enjoying complete inuriunity/protection from. a criminal liability does not arise at all.
29. At this stage, we would further like to make a very pertinent observation. The Foreign Exchange Bearer Certificates Rules, 1985 have been. framed by the Federal Government under section 28 of the Public Debt Act, 1944. Thus, it is in the nature of subordinate legislation in exercise of E delegated authority. Any subordinate legislation in pursuance of delegated authority shall be confined to the purposes for which the authority is delegated by the Legislature anti for the purpose of the Act under which the delegated authority is exercised. It is provided in. section 28 of the Public Debt Act, 1944, that the Government may make rules to carry out the purposes of the said Act. The purpose of enacting the Public Debt Act, 1944, is given in the Act itself, which is to consolidate and amend the law relating to Government securities and the management of the Public Debt. The rules framed under section 28 shall always be confined to the purposes of the Act and shall not extend to anything not covered under the purposes of the Public Debt Act, 1944. This is the reason for which the protections deemed necessary from the levy of taxes were enacted in the Income Tax Ordinance, 1979 and Wealth Tax Act, 1963, which have been referred to, in the earlier part of this judgment.
30. Another aspect is also equally important. Any provision contained in subordinate legislation shall not override the provision:; contained in the main Act/Ordinance enacted by the Legislature itself. If there is any conflict in the rules framed under delegated legislation and the statute enacted by the Legislature itself, then the subordinate legislation has to give way to the statute law. Although there is no provision in the F.E.B.C. Rules, 1985 to the effect that it will override any other law, but even if there would have been . any such provision it would not have the effect of overriding the provisions contained in the NAB Ordinance, 1999.
31. Now, we come to section 5 of the Protection of Economic Reforms Act, 1992. This section has already been reproduced in earlier part of this judgment and we need not to repeat the same. Subsection (1) of section 5 of this.Act, provides that all citizens of Pakistan resident in Pakistan or outside Pakistan who hold foreign currency accounts in Pakistan, and all other persons who hold such accounts, shall continue to enjoy immunity against F any enquiry from the Income Tax Department or any other taxation authority as to the source of financing of the Foreign Currency Accounts. This provision provides protection to the holder of Foreign Currency Accounts in Pakistan and it has nowhere been pleaded on behalf of applicant that the property in question was acquired by withdrawal of foreign currency from the Foreign Currency Accounts in Pakistan. Mr. Yousuf Leghari, has referred the statement of P.W.4. Freedy R.Sethena, who at the relevant time served as head of Customer Services Department in Deutsche Bank, Karachi. He has stated that on 29‑3‑1990 Foreign Exchange Bearer Certificates worth Rupees seventeen million and two hundred thousand were got encashed and thereafter draft for U.S. Dollars worth 795968.32 was got issued in the name of H. Ali and F.E.B.C. worth Rs.17,80,000 were got encashed and Demand Draft for U.S. Dollars 8222.05 was got issued in the name of Mr. H. Ali. The ;vidence which has been recorded so far, does not show that the applicant was holding any Foreign Currency Accounts in Pakistan, and therefore, the .provisions contained in subsection (1) of section 5 of the Protection of Economic Reforms Act, 1992, which provides immunity to the Foreign Currency Accounts is not attracted to the Foreign Exchange Bearer Certificates held by the applicant. Moreover, subsection (1) of section 5 of the Protection of Economic Reforms Act, merely provides that the holder of Foreign Currency Accounts, shall continue to enjoy immunity against any inquiry from Income‑tax Department or any .other Taxation Authority as to the source of financing of the Foreign Currency 'Account. The law itself specifically provides that the immunity, to the Foreign Currency Accounts was available from Income Tax Department or any other Taxation Authority but does not provide immunity from prosecution for a criminal offence under any law including NAB Ordinance, 1999. In subsection (2) of section 5, it is provided that the balances in the Foreign Currency Accounts and income therefrom shall continue to remain exempted from the levy of wealth tax and income‑tax and compulsory deduction of Zakat at source. Subsection (3) provides that the banks shall maintain complete sccia,.y in respect of transaction in the Foreign Currency Account. The' immunity available in section 5 of the Protection of Economic Reforms Act, 1992, is not available from the applicability or operation of the rovisions contained in the NAB Ordinance, 1999.
32. A perusal of the judgment of o e High Court in the case of Hudabiya Engineering (Pvt.) Limited (supra) shows that the facts of the cited case are distinguishable. The facts of the cited case are stated in para. 4 of the judgment, according to which a letter was addressed by Commissioner of Income‑tax Lahore, to the Regional Commissioner of Income‑tax, Central Region, Lahore stating that on information gathered from reliable sources he had learnt that two benami bank accounts have been opened with M/s. Habib Bank A.G. Zuricb Branch, Lahore in a dubious manner to whiten the black money by taking advantage of Dollar Bearer Certificates and certain traveller cheques, to the benefit and advantage of the appellant and matter may be referred to the Federal Investigation Agency to detect evasion of tax. On the basis of this letter, the matter was referred to Director‑General, F.I.A., Islamabad, for necessary action. In this background it was held by the Full Bench of the Lahore High Court, that subsection (1) of section 5 bars the authorities from taking any action against a person, on the basis of transaction in the Foreign Currency Accounts. This judgment is, therefore, of no help to the' applicant for the reasons that, first, it pertains to the Foreign Currency Accounts and in the present case, the applicant is not shown to be holder of 1~oreign Currency Accounts and secondly, in the cited case t eMquiry was initiated by the Income Tax Department against which protection is provided in subsection (1) of section 5 of the Protection of Frnnnmic. Reforms Act. 1992. In the present case, no proceedings have been Authority but by the Authorities under the NAB Ordinance, 1999,. m respect of a criminal liability. Although, after holding the view that the immunity available under section 5 of the Protection of Economic Reforms Act, 1992, is not available to the applicant in the present case, the contention that there is overriding provision in section 3 of the Protection of Economic Reforms Act, 1992, is not available to the applicant in the present case, the contention that there is overriding provision in section 3 of the Protection of Economic Reforms Act, 1992, looses its significance, however, we would like to deal with this contention also. It is provided in section 3 of the Protection of Economic Reforms Act, 1992, that the provisions of said Act shall effect notwithstanding anything contained in‑die Foreign Exchange Regulation Act, H 1947, the Customs Act, 1969, the Income Tax Ordinance, 1979 or any other law for the time being in force. This overriding provision shall become operative if there is. any conflict in the provisions contained in the Protection of Economic Reforms Act, and the provisions contained in the laws enumerated in section 3 or any other law for the time being in force. Nothing‑has been shown to us pointing out any conflict in the provisions contained in the Protection of Economic Reforms Act, 1992 and the provisions in the NAB Ordinance, 1999
34. We have already dilated upon the point that the immunity provided in section 5 of the Limitation Act, is not extended to the criminal prosecution under the NAB Ordinance, 1999. At this stage, we would like to refer section 4 of the Protection of &ononuc Reforms Act, 1992, which gives freedom to all citizens of Pakistan resident in Pakistan or outside Pakistan and all other persons to bring, hold, sell, transfer and take out foreign exchange within or out of Pakistan in any form and shall not be required to make a foreign currency declaration at any stage nor shall anyone be questioned in regard to the same. In the present case, the prosecution has not questioned the right of applicant to bring foreign exchange within Pakistan or to take away the foreign exchange out of Pakistan and no prosecution has been launched for non‑declaration of any foreign currency at any stage. In the present case, the prosecution has been launched under sections 9 and 10 I of the NAB Ordinance, for accumulating properties by the applicant disproportionate to his known sources of income which comes within the purview of corruption and corrupt practices as defined in section 9 of the NAB Ordinance, 1999. Even if we assume, for the sake of argument that . there is any conflict in the provisions contained in the Protection of Economic Reforms Act, 1992 and Foreign Exchange Bearer Certificates Rules, 1985, on one hand and the provisions contained in the NAB Ordinance, 1999 on the other hand, the provisions contained in the NAB Ordinance, 1999 shall override the provisions contained in the earlier laws. The reason being that, it is provided in section 3 of the NAB Ordinance, that the provisions of the said Ordinance, shall have effect notwithstanding anything contained in any other law for the time being in force. Thus, there are non obstante clauses in both the enactments and the Hon'ble Supreme Court has laid down the principle in the cage of M/s. Elahi PTD 1555, that when there are non obstante clauses in two Acts, the later shall prevail. In this case, the Hon'ble Surpeme Court, was considering the non obstante ciause in section 80‑D of the Income Tax Ordinance, to the effect that "notwithstanding" anything contained in this Ordinance or any other law for the time being in force and it was provided in section 3 of the Protection of Economic Reforms Act, 1992 that "provisions of this Act, shall have effect notwithstanding anything contained in, or any other law for the time being in force". In para. 54 of the cited judgment Hon'ble Supreme Court held as follows: "In our view, since the provisions of Act XII of 1992 are subsequem in time and as they are contained in a special statute, they shall prevail over the provisions of section 80‑D of the Ordinance, which was enacted through Finance Act, 1991, which was an earlier statute and which was part of a general statute." Admittedly the Protection of Economic Reforms Act, 1992, was enacted in the year 1992 and the NAB Ordinance, under which the applicant is being prosecuted has been promulgated in the year 1999.
35. In view of the dictum laid down by the Hon'ble Supreme Court in .j the case of Elahi Cotton Mills Ltd. (supra)., the provisions contained in the NAB Ordinance, 1999 shall override any provision to the contrary and the provisions of the NAB Ordinance, shall prevail overall other provisions of law for the time being in force on the 16th November, 1999, when the NAB Ordinance, was promulgated.
36. For the foregoing reasons, it is held that the impugned order of the trial Court dismissing the application of the applicant under section 265‑K, x Cr.P.C. does not suffer from any illegality, irregularity causing miscarriage of justice or any other infirmity warranting interference by this Court.
37. Before parting with this judgment, we would like to clarify that any finding or observation in this judgment shall not be deemed to be a finding of guilt on the part of the applicant. We have given finding on the point of law only and it shall remain confined to the proposition of law only. If there is any observation on point of fact for the purpose of appreciating the contention of learned counsel for the applicant on the point of law, it should not be taken as any finding. directed towards the guilt of the applicant. The trial Court shall decide the question of guilt or otherwise of the applicant on the basis of evidence produced before it and the provisions of law. The trial Court shall decide all the questions of facts and law, raised before it, at the time of final arguments by applying its independent mind and appreciating the evidence on record.
38. With the above note of caution, the revision application stands dismissed. M.B.A./H‑66/K Application dismissed.