Vetted Final

31.12.2009

The Federal Value Added Tax Act, 2010

1. Short title, extent, and commencement.—

Chapter-I PRELIMINARY
2. Definitions
3. Associated persons
4. Consideration
5. Economic activity
6. Open market price
7. Taxable supply
Chapter-II INTEGRATION WITH PROVINCIAL VALUE ADDED TAX LAWS
8. Collection of Provincial VAT
Chapter-III IMPOSITION OF TAX
Part A – Tax Payable and Person Liable
9. Imposition of tax
10. Person liable to pay tax
11. Exemptions
12. Zero-rated supplies
13. Exemption and zero-rating only as provided by law
Part B – Basic Rules Relating to Imports
14. Value of imported goods
15. Payment of tax on taxable imports
Part C – Basic Principles Relating to Supplies
16. Progressive or periodic supply
17. Ancillary or incidental supplies
18. Value of supply
19. When tax becomes payable on supplies
Part D – Special Rules
20. Purchase of economic activity as a going concern
21. Second-hand goods purchased for on-sale
Part E – Place of Taxation Rules
22. Supply of goods and services made in Pakistan
23. Export of goods
Chapter-IV CALCULATION OF TAX PAYABLE ON SUPPLIES
Part A - Calculation of net tax payable for a tax period
24. Payment of tax payable on supplies
Part B – Adjustments
25. Deductions for input tax
26. Restrictions on input tax deductions
27. Apportionment of input tax
28. When input tax is deductible
29. Post-supply adjustments for adjustment events
30. Post supply adjustments for bad debts
31. Adjustments for goods applied to a private purpose
32. Adjustments on cancellation of registration
33. Adjustments on becoming registered
34. Adjustments when rate changes
Part C - Withholding and advance payments
35. Advance payment of tax on import of goods
36. Withholding by Government and Large Taxpayers
Chapter-V REFUNDS
37. Carry forward and refund of negative net amount for a tax period
38. Refunds without carry forward
39. Application and payment of refunds
40. Refunds to diplomats, non-profit bodies, and other international bodies
Chapter-VI REGISTRATION
41. Requirement to register
42. Voluntary registration
43. Compulsory registration
44. Application for Registration
45. Change in registration
46. Cancellation of registration
47. Suspension of registration
48. List of persons registered for VAT
Chapter-VII RECORDS, ACCOUNTS, INVOICING AND AUDITS
49. Tax Invoices
50. Sales receipts
51. Credit and debit notes
52. Documentation issued by or to agents
53. Prohibitions
54. Records and accounts
Chapter-VIII RETURNS AND DECLARATIONS
55. Tax returns
56. Amended tax returns
57. Minor corrections
58. Additional tax returns
Chapter-IX AMINISTRATION AND RELATED MATTERS
59. Functions and powers
60. Directorates General
Chapter-X RECOVERY OR PAYMENT OF TAX
61. Recovery of arrears of tax
62. Officer of Inland Revenue to act as Court in recovery matters
63. Change in jurisdiction for recovery
64. Estate in bankruptcy
65. Recovery through a liquidator
66. Tax liability in case of private companies or business
67. Condonation of time-limit or conditions
68. Instalments of arrears
Chapter-XI AUDIT AND ENFORCEMENT
69. Audit by officer of Inland Revenue
70. Special Audit
71. No multiple departmental audits in normal circumstances
72. Arrest and prosecution
73. Procedure for arrest
74. Compounding of offences
75. Power to call for information or documents and access to records and premises

Chapter-XII ADJUDICATIONS, APPEALS AND REFERENCES ETC.

76. Powers of adjudication in case of imported goods

77. Powers of adjudication
78. Powers of the Board and Commissioner Inland Revenue to reopen cases
79. Appeal to Commissioner Inland Revenue (Appeals)
80. Appeal to Appellate Tribunal
81. Reference to the High Court
82. Bar on payment of refund etc.
83. Alternative dispute resolution
84. Appearance by authorized representative
85. Correction of clerical errors, etc.
86. Issuance of certificate or duplicate documents
87. Bar of suits, prosecution and other legal proceedings
Chapter-XIII OFFENCES AND PENALTIES
88. Default surcharge
89. Offences and penalties
90. Recovery of tax not charged, levied or paid or inadmissible adjustment or refund

CHAPTER-XIV MISCELLANEOUS

91. Use of computerized system

92. Appointment and authorization of e-intermediaries
93. Compensation for delayed refunds
94. Powers to make rules, issue instructions and orders etc.
Chapter-XV TRANSITION
95. Repeal and savings
96 Adjustment for input tax
97. Removal of difficulties
SCHEDULES
THE FIRST SCHEDULE Exempt supplies and imports

THE SECOND SCHEDULE Zero rated supplies

THE THIRD SCHEDULE Penalties

 A
Bill
to introduce and implement a broad-based tax on sales and purchases of goods and terminal
taxes on goods, or passengers carried by railway, sea or air; taxes on their fares and
freights to form a broad-based tax on consumption;

WHEREAS it is expedient to impose a tax on sales and purchases of goods and

terminal taxes on goods, or passengers carried by railway, sea or air; taxes on their fares
and freights and to provide for the regulation and collection of the tax and of such taxes and
to provide for matters connected therewith and ancillary thereto:

It is hereby enacted as follows:—

1. Short title, extent, and commencement.— (1) This Act may be called the Federal
Value Added Tax Act, 2010.

(2) It extends to the whole of Pakistan.

(3) It shall come into force on the 1st day of July, 2010.

Chapter-II

PRELIMINARY

2. Definitions.― (1) In this Act, unless there is anything repugnant in the subject or
context,—

(i) ―Appellate Tribunal‖ means the Appellate Tribunal established under section
130 of the Income Tax Ordinance, 2001 (XLIX of 2001) and, in case of
imported goods, the Appellate Tribunal constituted under section 194 of the
Customs Act;

(ii) (c) ―approved non-profit charitable organization‖ means a charitable

organization whose income is exempt under sub-clause (3) of clause 58 in Part
1 of the Second Schedule to the Income Tax Ordinance, 2001 (XLIX of 2001);

(iii) ―association of persons‖ includes a firm, a Hindu undivided family, any

artificial juridical person, and a body of persons formed under a foreign law,
but does not include a company;

(iv) ―Board‖ means the Federal Board of Revenue established under section 3 of
the Federal Board of Revenue Act, 2007;

(v) ―company‖ means—

 a) a company as defined in the Companies Ordinance, 1984 (XL VII of
1984);

b) a body corporate formed by or under any law in force in Pakistan;

c) a modaraba;

d) a body incorporated by or under the law of a country outside Pakistan

relating to incorporation of companies; or

e) a trust, a co-operative society, or a finance society or any other society

established or constituted by or under any law for the time being in force;

(vi) ―computerized system‖ means an information technology system authorized by

the Board under section 91 for purposes relating to the administration of this
Act;

(vii) ―Customs Act‖ means the Customs Act, 1969 (IV of 1969) and the rules,
notifications, and orders made under that Act, as amended from time to time;

(viii) ―document‖ includes any electronic data, computer programme, computer

tape, computer disk, micro-film or any other medium for the storage of data;

(ix) ―due date‖ in relation to the furnishing of a tax return for a tax period means
the date on which the return is due to be filed;

(x) ―e-intermediary‖ means a person appointed as an e-intermediary under section

‎92;
(xi) ―entertainment‖ means the provision of food, beverages, tobacco, amusement,
recreation, or hospitality of any kind, whether or not the provision of such
entertainment is lawful

(xii) ―exempt,‖ in relation to a supply or import, has the meaning given in section
‎11;
(xiii) ―Federal list services‖ means the carriage of goods or passengers by railway,
sea, or air;

(xiv) ―Federal VAT‖ means tax imposed under this Act on a supply or import of
goods or on a supply of Federal list services;;

(xv) ―goods‖ includes all materials, commodities, and articles, other than actionable
claims, money, stocks, shares and securities;

(xvi) ―import‖, in relation to goods, means to bring goods into Pakistan;

(xvii) ―imposed‖ includes charged, levied, payable and all similar meanings
necessary to create and enforce a liability for tax under this Act;

(xviii) ―input tax‖, in relation to a registered person, means—

 a) Federal VAT imposed on a supply of goods to the person;

b) Federal VAT imposed on an import of goods by the person;

c) Federal VAT imposed on a supply of services to the person; and

d) Federal VAT imposed on a purchase of services by the person.

(xix) ―international transport‖ means the carriage of goods or passengers by railway,

sea, or air—

(a) from a place outside Pakistan to a place in Pakistan;

(b) from a place inside Pakistan to a place outside Pakistan; or

(c) from a place outside Pakistan to another place outside Pakistan;

(xx) ―LTU‖ means the Large Taxpayers Unit established by the Board;

(xxi) ―money‖ means

(a) any coin or paper currency that is legal tender in Pakistan or another
country;

(b) a negotiable instrument used or circulated, or intended for use or

circulation, as currency (whether of Pakistan or of another country);

(c) a bill of exchange, promissory note, bank draft, postal order, money
order, or similar instrument; or

(d) whatever is supplied as payment by way of credit card or debit card or

crediting or debiting of an account but does not include a collector’s piece
or an item of numismatic interest;

(xxii)―non-resident‖ means a person who is not a resident;

(xxiii) ―officer of the Inland Revenue‖ shall include -

(a) the Chief Commissioner VAT;

(b) Commissioner VAT;

(c) Commissioner VAT (Appeals);

(d) Additional Commissioner VAT;

(e) Deputy Commissioner VAT;

(f) Assistant Commissioner VAT;

(g) Officer of VAT;

(h) Special Officer VAT;

 (i) Inspector VAT; and

(j) any other officer of the VAT specified by the Federal Government;

(xxiv) ―output tax‖, in relation to a registered person, means—

(a) Federal VAT imposed on a supply of goods by the person;

(b) Federal VAT imposed on a supply of services by the person; and

(c) Federal VAT imposed on a purchase of services by the person;

(xxv) ―passenger vehicle‖ means an on-road or off-road vehicle designed or adapted

for the transport of 9 or fewer seated passengers;

(xxvi) ―permanent establishment‖ has the meaning given in the Income Tax
Ordinance 2001 (XLIX of 2001);

(xxvii) ―person‖ means—

(a) an individual;

(b) a company, or an association of persons, incorporated, formed,

organized or established in Pakistan or elsewhere;

(c) a Local Government in Pakistan;

(d) a foreign government, a political subdivision of a foreign government;

or

(e) a public international organization;

(xxviii) ―prescribed‖ means prescribed by rules made under this Act;

(xxix) ―progressive or periodic supply‖ means a supply that is made progressively or

periodically under an agreement or law that provides for progressive or
periodic payments or that is treated as a progressive or periodic supply under
a Provincial Value Added Tax law;

(xxx) ―recipient‖, in relation to a supply, means the person to whom the supply is
made;

(xxxi) ―registered office‖, in relation to a registered person, means the office or other
place of business specified by the person on the application for registration
under this Act or subsequently notified to the Board;

(xxxii) ―registration number‖ means the number allocated by the Board to the
registered person for the purpose of this Act;
(xxxiii) ―registered person‖ means -

(a) a person who is registered; and

(b) subject to the limitations set out in sub-section (6) of section 44, a
person who is required to be registered;

(xxxiv) ―resident‖ has the meaning given in the Income Tax Ordinance 2001 (XLIX of
2001);

(xxxv) ―RTO‖ means the Regional Taxpayers Office established by the Board.

(xxxvi) ―second-hand goods‖ means goods that have previously been used but does not
include—

(i) precious metals or goods made of precious metals, being -

(a) gold (in an investment form) of at least 99.5% fineness;

(b) silver (in an investment form) of at least 99.9% fineness;

(c) platinum (in an investment form) of at least 99% fineness;

(d) goods to the extent that they would fall within (a), (b), or (c) if
they were of the required fineness;

(ii) diamonds, rubies, emeralds, or sapphires that are not mounted, set, or
strung; or

(iii) animals or plants;

(xxxvii) ―services‖ means anything that is not goods, immoveable property, or money;

(xxxviii) ―Special Judge‖ means the Special Judge appointed under section 185 of the
Customs Act;

(xxxix) ―supplier‖, in relation to a supply, means the person making the supply;

(xl) ―supply‖ means any form of supply whatsoever;

(xli) ―supply of goods‖ means a sale, exchange, or other transfer of the right to
dispose of goods as owner, including under a hire purchase agreement;

(xlii) ―supply of services‖ means a supply of Federal list services;

(xliii) ―tax‖ includes—

(i) tax imposed under section ‎9;

(ii) a fine, default surcharge, penalty, or fee imposed under this Act;

(iii) any other sum payable under the provisions of this Act or rules made
thereunder;
(xliv) ―tax fraction‖ means the amount worked out in accordance with the following
formula—
R
100 + R

where ―R‖ is the rate of tax specified in section ‎9(3);

(xlv) ―tax fraud‖ includes evasion of tax and obtaining of undue refund;

(xlvi) ―tax invoice‖ means a document required to be issued under section ‎49;

(xlvii) ―tax period‖ means the calendar month or such other period as the Federal
Government may, by notification in the official Gazette, specify;

(xlviii) ―tax return‖ means any return required to be furnished under this Act;

(xlix) ―taxable import‖ means an import of goods, other than an exempt import;

(l) ―taxable supply‖ means a taxable supply as defined in section ‎7;

(li) ―time of supply‖ means–

(a) in relation to a supply of goods, other than under hire purchase

agreement: the time at which the goods are delivered or made available
to the recipient of the supply;

(b) in relation to a supply of goods under a hire purchase agreement, the

time at which the agreement is entered into; and

(c) in relation to a supply of services, the time at which the services are
rendered, provided, or performed;

(lii) ―trust‖, means an obligation annexed to the ownership of property and arising
out of the confidence reposed in and accepted by the owner, or declared and
accepted by the owner for the benefit of another, or of another and the owner,
and includes a unit trust;

(liii) ―unit trust‖, means any trust under which beneficial interests are divided into
units such that the entitlements of the beneficiaries to income or capital are
determined by the number of units held;

(liv) ―value‖—

(a) in relation to an import of goods: has the meaning given in section ‎14;

(b) in relation to a supply of goods or services: has the meaning given in

section 18;

(lv) ―zero-rated,‖ in relation to a supply or import, has the meaning given in

section ‎12;
3. Associated persons.— (1) For the purpose of this Act two persons are ―associated
persons‖ if the relationship between them is such that one can reasonably be expected to act
in accordance with the intentions of the other, or both can reasonably be expected to act in
accordance with the intentions of a third person.

(2) The following are presumed to be ―associated persons‖—

(a) an individual and a relative of the individual; and

(b) the members of an association of persons,

unless the Board is satisfied that neither person can reasonably be expected to act in
accordance with the intentions of the other.

(3) Whether or not sub-section (1) applies, the following are ―associated persons‖—

(a) a member of an association of persons and the association, if the member, either
alone or together with an associate or associates under another application of this
section, controls fifty per cent or more of the rights to income or capital of the
association;

(b) a trust and any person who benefits or may benefit under the trust;

(c) a shareholder in a company and the company, if the shareholder, either alone or
together with an associate or associates under another application of this section,
controls either directly or through one or more interposed persons—

(i) fifty per cent or more of the voting power in the company;

(ii) fifty per cent or more of the rights to dividends; or

(iii) fifty per cent or more of the rights to capital;

(d) two companies, where a person, either alone or together with an associate or
associates under another application of this section, controls either directly or
through one or more interposed persons –

(i) fifty per cent or more of the voting power in both companies;

(ii) fifty per cent or more of the rights to dividends in both companies; or

(iii) fifty per cent or more of the rights to capital in both companies.

(4) ―relative‖ in relation to an individual, means—

(a) an ancestor, a descendant of any of the grandparents, or an adopted child, of the

individual;

(b) an ancestor, a descendant of any of the grandparents, or an adopted child, of a

spouse of the individual; or

(c) a spouse of the individual or of any person specified in sub-paragraph (a) or (b).
(5) Two persons are not associated persons solely because one of them is an employee of
the other or both are employees of a third person.

4. Consideration.— (1) For the purpose of this Act ―Consideration‖, in relation to a

supply, means the total of the following amounts, namely:-

(a) the amount in money paid or payable by any person, whether directly or
indirectly, in respect of, in response to, or for the inducement of the supply; and

(b) the open market price of anything paid or payable in kind, whether directly or
indirectly, by any person in respect of, in response to, or for the inducement of
the supply,

reduced by any price discounts or rebates allowed and accounted for at the time of supply or,
for a taxable supply, at or before the time the tax becomes payable under section ‎19.

(2) For the avoidance of doubt, the expression ―consideration‖ includes amounts paid to
reimburse the supplier for any Federal duties, levies, fees, charges, and taxes (including
Federal VAT, as applicable) paid or payable by the supplier on, or by reason of, the supply.

(3) The supplier shall bear the burden of proving that the consideration for a particular
supply of goods or services is not less than the price at which the supplier ordinarily supplies
those goods and services.

5. Economic activity.— (1) For the purposes of this Act the expression ―economic
activity‖ means any activity carried on continuously or regularly by a person that involves or
is intended to involve the supply of goods, services to another person and includes—

(a) an activity carried on in the form of a business, including a profession, calling,

trade, manufacture or undertaking of any kind, whether or not the activity is
undertaken for profit;

(b) the supply of movable property by way of lease, licence or similar arrangement;
and

(c) a one-off adventure or concern in the nature of a trade.

(2) Anything done or undertaken during the commencement or termination of an

economic activity is part of the economic activity.

(3) An ―economic activity‖ does not include—

(a) the activities of an employee providing services in that capacity to an employer;

(b) a private recreational pursuit or hobby of an individual;

(c) an activity of a person other than an individual, which is essentially carried on as

a private recreational pursuit or hobby of a member, owner, or associate of the
person;

(d) an activity carried on without a reasonable expectation of profit by an individual

or an association of person, all of the members of which are individuals.
6. Open market price.— (1) For the purpose of this Act, the expression ―open market
price‖ of a supply of goods or services, including anything provided as in-kind consideration
for another supply, is-

(a) the consideration the supply would fetch in an open market transaction freely
made between unrelated persons; or

(b) if it is not possible to determine an amount under paragraph (a), the

consideration a similar supply would fetch in an open market transaction freely
made between unrelated persons, adjusted to take account of the differences
between such supply and the actual supply,

determined on the basis of the market conditions, including the registration status of the
supplier, prevailing at the time and place of the actual supply.

(2) For the purpose of clause (b) of sub-section (1), one supply is similar to another if it is
the same as, or closely resembles, the other supply in character, quality, quantity,
functionality, materials, and reputation.

(3) If the open market price of a supply cannot be determined under sub-section (1), it may
be determined using any method approved by the Board for calculating an objective
approximation of the consideration the supply would fetch in an open market transaction
freely made between unrelated persons.

(4) If a provision of this Act requires the fair market price to be determined for particular
goods or services, or for a particular asset, that value is worked out under this section by
reference to the value that a supply of those goods or services, or that asset, would fetch in a
transaction freely made under normal market conditions.

(5) For the avoidance of doubt, the market to which reference is made in applying this
section is the market in which the transaction takes place.

7. Taxable supply.—(1) Except to the extent that it is an exempt supply, a supply of

goods or a supply of Federal list services is a taxable supply if it is made—

(a) in Pakistan;

(b) by a registered person; and

(c) in the course of an economic activity, including in the commencement or

termination of the activity.

(2) Where a person makes a supply that is not a taxable supply and issues a tax invoice,
sales receipt, or other document to the recipient representing that the supply is a taxable
supply:—

(a) the supply is deemed to be a taxable supply; and

(b) the rate of tax applicable to the supply is deemed to be the rate stated on the face
of the document, or implied from what is stated thereon.
 Chapter-II
INTEGRATION WITH PROVINCIAL VALUE ADDED TAX LAWS

8. Collection of Provincial VAT.— (1) Where a Provincial Value Added Tax law
provides for the Provincial VAT to be collected under this Act, the Board shall collect that
tax and shall apply all provisions of this Act necessary to ensure that the Provincial VAT and
the Federal VAT operate together as an integrated tax regime.

(2) The provisions of this Act relating to penalties, offences, and default surcharges shall
apply irrespective of whether the tax payable, or the adjustments allowable, relate to supplies
of services or to supplies of goods and services.

Chapter-III
IMPOSITION OF TAX

Part A – Tax Payable and Person Liable

9. Imposition of tax.— (1) There shall be charged, levied, paid and collected a tax
known as value added tax (VAT) under this Act on —

(a) taxable supplies; and

(b) taxable imports.

(2) The rate of tax applicable to a taxable supply or import shall be,-

(a) if the supply or import is zero-rated, the rate of tax shall be zero percent;

(b) in all other cases, fifteen per cent of the value of supply;

(3) The amount of tax shall be computed by applying the rate specified in sub-section (2)
to the value of the supply or import.

(4) Where there is a change in the rate of tax, the rate to be applied shall be,—

(a) for an import of goods: the rate applicable at the time the tax becomes payable
under sub-section (1) of section 15; and

(b) for a supply of goods or services: the rate applicable at the time of supply.

10. Person liable to pay tax.— (1) The person liable to pay the tax imposed under section
9 is—

(a) in the case of a taxable import: the person importing the goods;

(b) in the case of a taxable supply: the supplier; and

(c) in exceptional circumstances, as may be notified by the Federal Government,

the recipient of a supply
(2) Sub-section (1) does not prevent the collection of tax from a different person if that
person is made separately, or jointly and severally, liable for this tax under another provision
of this Act.

11. Exemptions.— A supply or import shall be an ―exempt‖ supply or import if 

(a) it is specified as an exempt supply or import in the First Schedule of this Act or it
is a supply of a right or option to receive a supply that will be an exempt supply;

(b) it is specified as an exempt supply under a Provincial Value Added Tax law.

12. Zero-rated supplies.— A supply or import is a ―zero-rated‖ supply or import if 

(a) it is specified as a zero-rated supply or import in the Second Schedule of this Act
or it is a supply of a right or option to receive a supply that will be a zero-rated
supply; or

(b) it is specified as a zero-rated supply under a Provincial Value Added Tax law.

13. Exemption and zero-rating only as provided by law.— (1) No supply, class of
supplies, import, or class of imports shall be treated as exempt or zero-rated under this Act
except as expressly provided in this Act.

(2) No person or class of persons is exempt from the payment of tax under this Act except
as provided by this Act.

(3) No promise or commitment made, or understanding given, whether in writing or

otherwise, by any person or any government department or authority shall over-ride sub-
sections (1) and (2).

Part B – Basic Rules Relating to Imports

14. Value of imported goods.— (1) Unless otherwise specified, the value of imported
goods shall be the sum of 

(a) the value of the goods determined for the purposes of customs duty determined
under section 25 of the Customs Act, whether or not duty is payable on the
import;

(b) to the extent not included under clause (a) -

(i) the cost of insurance and freight incurred in bringing the goods into
Pakistan; and

(ii) the cost of services that have been treated as part of the import of the goods
because of a provision of a Provincial Value Added Tax law; and

(c) the amounts, if any, of customs duties, Federal excise duties, or other taxes,
levies, or fiscal charges (other than the tax imposed under this Act) payable on
the import of the goods.
(2) Where goods are re-imported after being exported for the purpose of undergoing repair,
renovation, or improvement, the value of the re-imported goods shall be the amount of the
increase in their value that is attributable to the repair, renovation, or improvement process,
so long as the form or character of the goods has not been changed by the repair, renovation,
or improvement.

15. Payment of tax on taxable imports.— (1) The tax payable on taxable imports shall
be paid at the same time and place, and in the same manner, as if it were a duty of customs
paid under the Customs Act.

(2) For the purposes of collection and enforcement of the tax payable on taxable imports
under this Act, all provisions of the Customs Act, as amended from time to time, relating to
the collection, payment and enforcement of taxes and duties shall apply.

Part C – Basic Principles Relating to Supplies

16. Progressive or periodic supply.— (1) Each progressive or periodic part of a

progressive or periodic supply shall be treated as a series of separate supplies.

(2) If the progressive or periodic parts of a progressive or periodic supply are not readily
identifiable, the supply shall be treated as a series of separate supplies each corresponding to
the proportion of the supply to which each separate part of the consideration relates.

(3) A supply of goods under hire purchase agreement shall not be treated as a progressive
or periodic supply.

17. Ancillary or incidental supplies.— (1) Where a supply consists of more than one
element, the following criteria shall be taken into account to determine how the supply is to
be treated, namely:-

(a) every supply shall normally be regarded as distinct and independent;

(b) a supply that comprises a single supply from an economic point of view should
not be artificially split;

(c) the essential features of the transaction shall be ascertained in order to determine
whether the customer is being supplied with several distinct principal supplies or
with a single supply;

(d) there is a single supply if one or more elements constitute the principal supply, in
which case the other elements (―the ancillary or incidental supplies‖) shall be
treated as part of the principal supply; and

(e) a supply must be regarded as ancillary or incidental to a principal supply if it

does not constitute for customers an aim in itself, but is merely a means of better
enjoying the principal thing supplied.

(2) A supply of services that is ancillary or incidental to an import of goods shall be

treated as part of the import of goods.
18. Value of supply.— (1) The value of a taxable supply shall be the consideration for the
supply, reduced by an amount equal to the consideration multiplied by the tax fraction.

(2) The value of a supply that is not a taxable supply shall be the consideration for the
supply.

(3) If—

(a) a registered person makes a taxable supply to an associated person for no

consideration, or for a consideration that is lower than the open market price; and

(b) the associated person would not be entitled to a full input tax credit for the
purchase of the goods or services,

the value of the supply is the open market price of the supply, reduced by the tax fraction of
that price.

19. When tax becomes payable on supplies.— (1) Tax shall become payable on a
taxable supply of goods or services at the earliest of

(a) the time of supply;

(b) the time when an invoice for the supply is issued by the supplier; or

(c) the time when any part of the consideration for the supply is paid.

(2) Where a progressive or periodic supply is treated as a series of separate supplies, each
such supply is treated as being made on the earliest of, -

(a) if separate invoices are issued for each such supply, the date on which the
applicable invoice is issued;

(b) the date on which the payment corresponding to the supply is due;

(c) the date on which any part of the payment corresponding to the supply is
received;

(d) the first day of the period, if any, to which the progressive or periodic payment
relates; or

(e) the first day on which the recipient is able to use or enjoy that supply.

Part D – Special Rules

20. Purchase of economic activity as a going concern.— (1) This section applies in
respect of that part of a sale or transfer of an economic activity as a going concern that—

(a) is a supply of goods or a supply of Federal list services; and

(b) is zero-rated under the Second Schedule to this Act.

(2) Where this section applies, the recipient of the supply must make an increasing
adjustment in a tax period if the economic activity was not purchased for a creditable
purpose.

(3) The amount of the increasing adjustment is the tax rate specified in section ‎9(2)(b)
multiplied by that part of the consideration for the sale or transfer of the economic activity
that is a supply of goods or of Federal list services.

21. Second-hand goods purchased for on-sale.— (1) A registered person shall be
treated as having incurred an amount of input tax on second-hand goods purchased for the
purposes of sale or exchange (but not for manufacture) in the ordinary course of trade or
business of selling second-hand goods, if all of the following conditions are met, namely

(a) the goods are purchased from an unregistered person;

(b) the supply of the goods to the person would not have been zero-rated or exempt
if the supplier had been a registered person;

(c) the goods are not imported by the person;

(d) the on-supply of the goods is a taxable supply; and

(e) the person has kept such books and records relating to the purchase and on-sale
as are prescribed by the Board.

(2) The amount of the input tax shall be the tax fraction of the price for which the
registered person purchased the second-hand goods, calculated using the tax rate applicable
to the on-sale of the goods by the person.

(3) The input tax shall be accounted for in the tax period in which the registered person
sells the goods.

(4) Where second–hand goods are given by an unregistered person as part payment for
new goods of a similar kind, the open market price of the traded-in goods used to determine
the consideration for the new goods must be the same as the price referred to in sub-
section (2).

Part E – Place of Taxation Rules

22. Supply of goods and services made in Pakistan.— (1) A supply of goods shall be
made in Pakistan if:—

(a) the supplier is a resident of Pakistan;

(b) the goods are delivered or made available in Pakistan; or

(c) the supplier installs or assembles the goods in Pakistan.

(2) A supply of services shall be made in Pakistan if—

(a) the supplier is a resident of Pakistan;

 (b) the supplier is a non-resident with a permanent establishment in Pakistan and the
supply is made through that permanent establishment; or

(c) the services are performed in Pakistan by any person who is in Pakistan at the
time they are performed and the recipient is not a registered person.

(3) Where a progressive or periodic supply is deemed to be a series of separate supplies,

the place where each such supply takes place shall be determined separately.

(4) A non-resident who makes a supply of goods or services in Pakistan and does not have
a permanent establishment in Pakistan shall—

(a) appoint a VAT representative in Pakistan; and

(b) furnish such security

as may be prescribed by the Board.

23. Export of goods.— (1) A sale of goods shall be zero-rated if-

(a) the supplier has entered the goods for export under the customs laws and the
goods have been exported;

(b) a supply of goods is made to a tourist or visitor, if the supplier is a licensed duty-
free vendor who holds documentary evidence, and collected at the time of the
supply, which establishes that the goods are to be removed from Pakistan
without being effectively used or enjoyed in Pakistan.

(2) Subject to sub-section (1), supply of goods shall be zero-rated if it is made in the
course of repairing, maintaining, cleaning, renovating, modifying, treating, or otherwise
physically affecting other goods that are-

(a) temporarily imported into Pakistan under a special regime for temporary imports
specified in the Customs Act or any other provision of the customs laws dealing
with temporary imports; or

(b) brought temporarily into Pakistan for the purpose of receiving the services, so
long as the goods are removed from Pakistan after the services have been
performed and have not been used in Pakistan for any purpose other than to
enable the services to be performed:

Provided that the goods supplied are attached to or become part of those other goods, or
become unusable or worthless as a direct result of being used to repair, renovate, modify or
treat the other goods.

(3) A supply of goods shall be zero-rated if it relates to the repair or replacement of goods
under warranty and—

(a) the supply is provided under an agreement with, and for consideration given by,
the warrantor, who is a non-resident and is not a registered person; and

(b) the goods under warranty were previously subject to tax when imported.
(4) A supply shall not be zero-rated under this section if it is exported to a country
specified by the Federal Government by notification in the official Gazette.

(5) The burden of proving that a taxable supply of goods is zero-rated under this section
shall be on the supplier.

Chapter-IV
CALCULATION OF TAX PAYABLE ON SUPPLIES

Part A - Calculation of net tax payable for a tax period

24. Payment of tax payable on supplies.― (1) The output tax payable by a registered
person shall be accounted for and paid, in such manner and mode as prescribed, at the time
of filing the return for the tax period during which it became payable.

(2) The amount payable under sub-section (1) shall be increased or decreased by
adjustments allowed or required in relation to the tax period, whether or not such adjustment
is listed in the sub-sections below.

(3) The liability to pay an amount of tax arises by operation of this section and does not
depend on the making an assessment of the tax due.

(4) Except as otherwise provided, the amount to be paid by a registered person under sub-
section (1) shall be increased by all or any of the following, namely:—

(a) an increasing adjustment required under section ‎29 for an adjustment event;

(b) an increasing adjustment required under section ‎30 for a bad debt;

(c) an increasing adjustment required under section ‎31 for goods applied to a private
purpose;

(d) an increasing adjustment required under section ‎33 on cancellation of

registration;

(e) an increasing adjustment required under section 36 for the tax that has been
withheld

(f) an increasing adjustment required under section ‎34 where there is a change in the
tax rate;

(g) a default surcharge, fine, penalty, fee, or other sum imposed and payable under
this Act.

(5) The amount to be paid by a registered person under sub-section (1) shall be reduced
first by all or any of the following, namely:—

(a) the amount of an advance payment of tax made by the person in accordance with
section ‎35; and
 (b) an amount withheld from a payment to the person in accordance with section ‎36:

Provided that if the result of the subtraction is a negative amount, that amount shall be
refundable without carry forward.

(6) Except as otherwise provided, after taking into account any decreasing adjustments
required under sub-section (5), the amount to be paid by a registered person under sub-
section (1) shall be further reduced by all or any of the following, namely:-

(a) an amount equal to the input tax that may be accounted for and deducted in that
tax period;

(b) a decreasing adjustment allowable under section ‎29 for an adjustment event;

(c) a decreasing adjustment allowable under section ‎30 for a bad debt;

(d) a decreasing adjustment allowable under section ‎33 on becoming registered; or

(e) a decreasing adjustment allowable for a negative amount carried forward from a
previous tax period in accordance with section ‎37.

Part B – Adjustments

25. Deductions for input tax.― (1) A registered person may deduct input tax only if, and
to the extent that, the goods or services on which the input tax was imposed:

(a) were supplied to or imported by the person; and

(b) were purchased or imported by the person

for a creditable purpose.

(2) Goods or services are purchased or imported by a registered person for a creditable
purpose if and only if—

(a) they are purchased or imported in the course of the person’s economic activity;
and

(b) for the purpose of taxable supplies made, or to be made by, the person.

(3) Where an approved non-profit charitable organization purchases goods or services, or

imports goods, for a purpose other than exempt supplies made or to be made by such
organization, the Board may, subject to such conditions, limitations, or restrictions as it
determines, treat the goods or services as having been purchased or imported for the purpose
of making taxable supplies.

26. Restrictions on input tax deductions.― (1) No deduction for input tax is allowed
unless, at the time of filing the return in which the input tax is deducted, the person making
the deduction holds,—

(a) in the case of goods imported by the person, a bill of entry or goods declaration
bearing the name and active registration number of the importer, and duly
cleared by the customs under section 79 or section 103 of the Customs Act;
 (b) in the case of a supply of goods to the person: a valid tax invoice issued by the
supplier;

(c) in the case of a supply of services to the person, if the supply is made in
Pakistan, a valid tax invoice issued by the supplier.

(2) Despite sub-section (1), the Board may allow a person to provide alternative evidence
that it has incurred input tax for which a deduction is sought.

(3) Where a supply of services that is not made in Pakistan is a taxable supply under a
Provincial Value Added Tax law, the recipient of the supply may not deduct the input tax for
that supply unless the recipient has also paid the output tax imposed on the supply.

(4) No deduction for input tax is allowed for a taxable supply the price of which exceeds
rupees fifty thousand, including tax, unless payment for the supply is made through
verifiable banking instrument, including on-line or credit card payment showing transfer of
money from a bank account of the recipient to a bank account of the seller.

(5) No deduction for input tax incurred on a purchase or import is allowed if, or to the
extent that

(a) the purchase or import is of a passenger vehicle, or of spare parts or repair and
maintenance services for such vehicle, unless the person’s economic activity
involves dealing in or hiring out such vehicles and the vehicle was purchased for
that purpose;

(b) the purchase or import is used to provide entertainment, to the extent of that use,
unless the person’s economic activity involves providing entertainment and the
entertainment is provided in the ordinary course of that economic activity and is
not supplied to a related person or employee; or

(c) the purchase is of a membership or right or entry for any person in a club,
association, or society of a sporting, social, or recreational nature.

27. Apportionment of input tax.— (1) Where a registered person—

(a) purchases goods or services or imports goods only partly for a creditable
purpose; or

(b) a restriction on deducting the input tax only partly applies,

the person may deduct only such proportion of the input tax as shall be prescribed by the
Board.

28. When input tax is deductible.— The tax period in which the input tax may be
accounted for and deducted is the later of,—

(a) the tax period in which the input tax became payable; or

(b) if the person did not deduct the input tax in that period, any one of the six
succeeding tax periods.
29. Post-supply adjustments for adjustment events.— (1) For the purpose of this Act,
an adjustment event occurs in relation to a supply of goods or services if

(a) the supply is cancelled;

(b) the consideration for the supply is altered;

(c) the goods or services (or part thereof) are returned to the supplier; or

(d) the nature of a supply is fundamentally varied or altered in a such a way that the
supply becomes, or ceases to be, a taxable supply.

(2) If an adjustment event occurs and the tax previously accounted for by the supplier is
less than the tax properly payable on the supply, the supplier shall—

(a) make an increasing adjustment, equal to the amount of the difference, in the tax
period in which the adjustment event occurs; and

(b) issue a valid debit note to the recipient of the supply.

(3) If the recipient is a registered person, the recipient may make a decreasing adjustment
in the tax period in which the debit note is received, equal to the amount of the difference,
reduced in accordance with section ‎27 and any other rules restricting the person’s
entitlement to an input tax credit for the goods or services supplied.

(4) If an adjustment event occurs and the tax actually accounted for by the supplier
exceeds tax properly payable on the supply, the supplier—

(a) shall issue a valid credit note to the recipient of the supply; and

(b) subject to sub-section (5), may make a decreasing adjustment, equal to the
amount of the difference, in the tax period in which the adjustment event occurs
or, if the person did not make the decreasing adjustment in that period, any one
of the six succeeding tax periods.

(5) A decreasing adjustment is not allowed unless,—

(a) if the recipient is a registered person, the supplier holds evidence that the
recipient received the credit note; or

(b) if the recipient is not a registered person, the supplier has repaid the excess tax to
the recipient, whether in cash or as a credit against any amount owing to the
supplier by the recipient.

(6) If the recipient is a registered person—

(a) the recipient shall make an increasing adjustment in the earlier of the tax period
in which the adjustment event occurs or the tax period in which the credit note is
received; and

(b) the amount of the increasing adjustment is,—

 (a) if the recipient was entitled to deduct all of the input tax on the original
purchase, the amount of the difference;

(b) if the recipient was entitled to deduct only a proportion of the input tax on
the original purchase, an appropriate proportion of the amount of the
difference; or

(c) if the recipient was not entitled to a credit for the input tax on the original
purchase, nil.

(7) For the purposes of clause (b) of sub-section (5)—

(a) if a supplier refunds part or all of the price paid because of an adjustment event
covered by clauses (a) to (c) of sub-section (1), unless there is evidence to the
contrary, the amount refunded should be presumed to include an amount of tax
equal to the tax fraction of the amount refunded;

(b) if a supplier refunds an amount because of an adjustment event covered by

clause (d) of sub-section (1), unless there is evidence to the contrary, the amount
refunded should be presumed to be the amount of tax that is no longer payable.

30. Post supply adjustments for bad debts.— (1) This section applies if all or part of the
consideration for a taxable supply has not been paid to the supplier.

(2) If all or part of the consideration for a supply is not paid to the supplier and the
supplier has, in its books of account, written off the amount unpaid as a bad debt, the
supplier may make a decreasing adjustment under section ‎29 as if there had been an
adjustment event altering the consideration for the supply.

(3) The adjustment is allowable in the tax period in which the debt is written off as bad.

(4) Whether or not the supplier has written off the amount unpaid as a bad debt, if the
amount has been overdue for more than six months the recipient shall make an increasing
adjustment under section ‎29 as if there had been an adjustment event altering the
consideration for the supply for the supply.

(5) The recipient is not required to make an increasing adjustment under sub-section (4) if,
and to the extent that the person,—

(a) was not entitled to claim a deduction for the input tax in relation to the supply; or

(b) has previously made an increasing adjustment in relation to the supply under
section.

(6) If, after a supplier has made an adjustment for a bad debt, or a recipient has made an
adjustment for an overdue debt, the recipient pays to the supplier part or all of the previously
unpaid amount, further adjustments may be made in order to ensure that,—

(a) for the supplier, the output tax paid is equal to the tax fraction of the
consideration actually paid; and
 (b) for the recipient, the input tax deductible is the appropriate proportion to the tax
fraction of the consideration actually paid.

(7) The burden of proving that an amount was not paid and that the debt is bad shall be on
the supplier.

(8) A supplier is not required to give a recipient a credit note in relation to a bad or
overdue debt and a recipient’s obligation to make an increasing adjustment does not require
a credit note to have been issued.

31. Adjustments for goods applied to a private purpose.— (1) A registered person has
an increasing adjustment if the person,—

(a) is or has been allowed an adjustment for input tax in respect of part or all of the
input tax incurred on a purchase of goods, or on an import of goods, and the
person; and

(b) applies those goods wholly to a private use from a particular time onwards.

(2) The amount of the increasing adjustment is the tax fraction of the open market value of
goods at the time they are first applied to the private purpose.

(3) If the person was only allowed an adjustment for part of the input tax relating to the
purchase or import of the goods or services, the increasing adjustment is reduced to reflect
the extent to which no input tax credit was allowed.

(4) If a registered person applies to a private use goods produced by the person, the person
has an increasing adjustment if the supply of those goods by the person would have been a
taxable supply.

(5) For the purposes of this section, goods shall be considered to have been applied to a
private use if fifty per cent or more of the use to which the person will put the goods will not
be for the purpose of the person’s economic activity.

32. Adjustments on cancellation of registration.— (1) A person whose registration is

cancelled has an increasing adjustment in relation to assets on hand at the time the
registration is cancelled if the person was allowed an input tax credit in respect of the
purchase or import of those assets, or for goods or services which have been subsumed into
those assets.

(2) The amount of the adjustment is equal to the tax fraction of the open market price of
the assets on the day immediately preceding the cancellation.

(3) The adjustment shall be accounted for in the tax return for the final tax period.

33. Adjustments on becoming registered.— A person shall be entitled to make

decreasing adjustment, if the person holds verifiable quantities of goods supplied by a
registered person during a period of thirty days prior to applying for registration.

34. Adjustments when rate changes.— (1) A registered person shall make an increasing
adjustment if, because of sub-section (4) of section 9 and clauses (a) and (c) of sub-section
19, a registered person has accounted for tax in relation to a particular supply at a rate lower
than the rate actually applicable to the supply.

(2) The amount of the increasing adjustment is the difference between the amount of tax
actually accounted for and the amount of tax that is correctly payable in relation to the
supply.

Part C - Withholding and advance payments

35. Advance payment of tax on import of goods.- The Board may require any person or
class of persons to make advance payment of tax not exceeding twenty five percent of the
rate specified in section 9 for prospective value addition of any goods or class of goods
imported by such person or class of persons.

36. Withholding by Government and Large Taxpayers.- The Federal Government may
specify any person or class of persons as withholding agent for the purpose of deduction and
deposit of tax on the purchase of goods at the rate not exceeding twenty five percent of the
rate specified in section 9.

Chapter-V
REFUNDS

37. Carry forward and refund of negative net amount for a tax period.- If, in any tax
period, the amount payable under section 24 would be a negative amount because the sum of
all the decreasing adjustments allowed in the tax period exceeds the sum of all the amounts
of output tax and increasing adjustments for the tax period, the excess shall be carried
forward and may be deducted in the following six tax periods in accordance with this
section.

(2) A registered person shall be allowed a decreasing adjustment for an excess amount
carried forward from a particular tax period (―the relevant tax period‖) as follows,—

(a) in the following tax period: if, after taking account of all other decreasing
adjustments, including decreasing adjustments carried forward from earlier tax
periods, there remains an amount of tax payable, the person shall be allowed a
decreasing adjustment for such part of the excess amount carried forward from
the relevant tax period as would reduce the amount payable to nil; and

(b) the process described in paragraph (a) is continued until either—

(i) all of the excess amount carried forward has been deducted; or

(ii) part or all of the excess amount has been carried forward for six tax
periods.

(3) If part or all of the excess amount has been carried forward for six tax periods without
being deducted

(a) and the amount does not exceed Rupees one thousand, the amount shall
continue to be carried forward until it is reduced to nil; or
 (b) in any other case, the Board shall refund the amount, on application in the
form and manner prescribed by the Board, within forty-five days of such
application.

38. Refunds without carry forward.- (1) Notwithstanding section 37, a registered person
shall be entitled to a refund of a negative amount payable under section 24 if the Board is
satisfied that,—

(a) fifty per cent or more of the person’s turnover is or will be from supplies that are
zero-rated exports;

(b) fifty per cent or more of the person’s expenditure on inputs is from purchases or
imports that relate to making supplies that are zero-rated exports; or

(c) in any other case, the Board is satisfied that the nature of the person’s business
regularly results in excess input tax credits:

Provided that the Board may require a negative amount of one thousand rupees to be
carried forward in accordance with section ‎37.

(2) On application in the form and manner prescribed for a refund by the Board, within
forty-five days of such application.

39. Application and payment of refunds.- (1) No refund is payable to a person under
section 37 or 38 unless and until the applicant has filed all tax returns up to the current tax
period.

(2) If a refund is payable to a person, the Board may apply the refund first in reduction of
any outstanding tax liability of the person under this Act, or against payment of any other
taxes, levies, or duties collected by the Board, including any unpaid amounts under repealed
tax laws.

(3) If the amount remaining after applying sub-section (2) does not exceed one thousand,
the Board may choose not to refund the amount and may instead require the registered
person to treat the amount as a decreasing adjustment in a tax period specified by the Board.

40. Refunds to diplomats, non-profit bodies, and other international bodies.- (1) The
Board may authorize the granting of a refund of part or all of the input tax incurred in
relation to a purchase or import by-

(a) a public international organization, foreign government, or any other person

prescribed by the Federal Government to the extent the organization,
government, or person is entitled to exemption from tax under an international
assistance agreement;

(b) a person to the extent that the person is entitled to exemption for tax under the
Vienna Convention on Diplomatic Relations, or under another international
treaty or convention having force of law in Pakistan or to which Pakistan is a
signatory, or under recognized principles of international law; or
 (c) a diplomatic or consular mission of a foreign country established in Pakistan,
relating to transactions concluded for the official purposes of such mission.

(2) A claim for a refund under sub-section (1) shall be made in the form and manner, and
at the time prescribed by the Board, and must be accompanied by such supporting
documentation as the Board may require.

(3) The Board shall, within two months after the date on which an application for a refund
is made under this section,

(a) make a decision in relation to the application and give the applicant notice of the
decision, stating the amount refundable and providing reasons for any difference
between that amount and the amount for which a refund was requested; and

(b) pay the amount refundable to the applicant.

Chapter-VI
REGISTRATION

41. Requirement to register.— (1) A person is required to be registered under this Act
from a particular day in any month if the person exceeds the registration threshold in the
period of twelve months ending at the end of that month;

(2) A person exceeds the registration threshold in a particular period if the total value of
supplies made, or to be made, by the person in the course of an economic activity during that
period is equal to or greater than Rupees seventy five hundred thousand.

(3) For the purpose of this section:—

(a) the following shall not be counted in the total value of a person’s supplies,
namely:—

(i) the value of a supply that is not taxable, or would not be taxable if the
person were registered;

(ii) the value of a sale of a capital asset of the person;

(iii) the value of a supply made solely as a consequence of selling an economic

activity or part of that economic activity as a going concern; or

(iv) the value of supplies made solely as a consequence of permanently ceasing

to carry on an economic activity;

(b) the value of supplies made by an associated person shall be counted in the total
value of a person’s supplies if the Board is satisfied that it is appropriate to
include such supplies due to the nature of the activities carried out by the
associated person, the connections between the persons or between the economic
activities carried on by them, and any other relevant factors

Provided that the Board must give the person notice of the requirement to include the
value of the associated person’s supplies and an opportunity to be heard.
42. Voluntary registration.— (1) A person who carries on an economic activity but is not
required to be registered may apply for voluntary registration at any time.

(2) If a person is not required to be registered and applies for voluntary registration, the
Board may register the person if the Board is satisfied that

(a) the person is making, or will make, supplies that would be taxable if the person
were registered;

(b) the person has a fixed place at which the person’s economic activity is carried
on;

(c) there are reasonable grounds to believe that the person will keep proper records
and file regular and reliable returns; and

(d) if the person has commenced carrying on an economic activity, the person has

(i) kept proper records in relation to his economic activity; and

(ii) complied with his obligations under other taxation laws, including the
customs laws.

43. Compulsory registration.— (1) If the Board is satisfied that a person is required to be
registered and that person has not applied for registration, the Board shall register the person
and shall, no later than fifteen days before the day on which the registration takes effect,
notify the person of the registration, the day on which it takes effect, and the registration
number issued to the person.

(2) No person may be registered compulsorily without being given advance notice and an
opportunity of being heard.

44. Application for registration.— (1) A person who is required to be registered

shall apply for registration in such manner and mode as may be specified by the Board no
later than fifteen days before the day on which the person becomes required to be registered.

(2) If the Board is satisfied that the person is required to be registered, the Board shall,
within fifteen days of receiving the application―

(a) register the person; and

(b) notify the person of the registration, the day on which it takes effect, and the
registration number issued to the person.

(3) Where a person who is not required to be registered applies for registration the Board
shall, within fifteen days of receiving the application, notify the person of the decision on the
application, and if -

(a) the Board registers the person, the notice shall state the day on which the
registration takes effect and the registration number issued to the person; or
 (b) the Board rejects the application, notify the applicant, stating the reasons for the
decision and outlining the person’s rights to object and appeal against the
decision.

(4) The Board shall issue every registered person with a registration number for the
purposes of this Act.

(5) A person shall have only one registration and only one registration number, which
shall cover all economic activities carried on by the person without distinction.

(6) A person who is required to be registered shall not be treated as a registered person if,
the Board has failed to process an application submitted in accordance with sub-section (1).

45. Change in registration.— A registered person shall, within fifteen days of the change
occurring, notify the Board of a change in the name (including business name or other
trading name), address, place or places of business, the nature of the economic activity
carried on by the person, or any other information prescribed by the Board.

46. Cancellation of registration.— (1) A registered person shall, within fifteen days of
the date on which the person ceases making taxable supplies, apply to the Board to cancel its
registration.

(2) The Board may, by notice, cancel the registration of a person who has applied for
cancellation under sub-section (1) if the Board is satisfied that the person has ceased or will
cease making taxable supplies.

(3) A registered person who is no longer required to be registered but continues to make
taxable supplies may apply to the Board to cancel its registration.

(4) The Board may, by notice, cancel the registration of a person who has applied for
cancellation under sub-section (3) if the Board is satisfied that the person does not exceed
the registration threshold, provided that the Board may require a person who has applied for
voluntary registration to remain registered for at least twelve months from the day on which
the registration commenced, except where the person has ceased its economic activity.

(5) The Board may, by notice, cancel the registration of a person if the Board is satisfied
that—

(a) the person does not have a fixed place at which the person’s economic activity is
carried on;

(b) the person has not kept proper records of its business;

(c) the person has not filed regular and reliable returns; or

(d) the person has not complied with its obligations under other taxation laws,
including the customs laws, and there are reasonable grounds to believe that the
person will not keep proper records or file regular and reliable returns.

(6) The Board shall, by notice, cancel the registration of a person who has not applied for
cancellation if the Board is satisfied that the person is not carrying on an economic activity.
(7) The cancellation of a person’s registration shall take effect from the day set out in the
notice of cancellation.

(8) A person whose registration is cancelled shall—

(a) immediately cease to hold out in any way that the person is a registered person;

(b) immediately cease to use or issue any documents (including tax invoices,
receipts, credit notes, and debit notes) that identify the person as a registered
person; and

(c) within fifteen days after the date of cancellation of the person’s registration, file
a final return and pay all tax due.

47. Suspension of registration.— (1) Subject to sub-section (3), –

(a) the Board may suspend the registration of a person if it believes that the person

(i) is not entitled to be registered; or

(ii) has failed to comply with its obligations under this Act; and

(b) the suspension of registration shall be effected by removing the name of the
person from the list of registered persons published on the Board’s web site.

(2) The Board shall give notice to a registered person stating the reasons for the
suspension and the remedial actions required to be taken by the person in such time as
may be specified in the notice.

(3) In case the Board is not satisfied with the response of the person or does not receive
any response in the specified time, the Board may suspend registration.

(4) Where, after sixty days, the suspension has not been withdrawn, the Board shall

(a) institute proceedings against the person in respect of the alleged non-compliance
under this Act;

(b) reinstate the person’s registration; or

(c) if neither of actions in clasues (a) and (b) is done, cancel the person’s registration
in accordance with sub-section (4) of section 46.

48. List of persons registered for VAT (1) It shall not be reasonable for a person to
believe that another person is registered for VAT if that other person is not on the list placed
on the website of the Board.

(2) It shall be reasonable for a person to believe that another person is registered for VAT
if that other person is on the list placed on the website of the Board.
 CHAPTER-VII
RECORDS, ACCOUNTS, INVOICING AND AUDITS

49. Tax invoices. — (1) A registered person who makes a taxable supply to another
registered person shall issue a serially numbered true and correct tax invoice for the supply.

(2) A tax invoice shall contain the information prescribed by the Board, including but not
limited to

(a) the date on which it is issued;

(b) the name , address and registration number of the supplier;

(c) the name, address and registration number or national tax number (NTN) or
Computerized National Identity Cart Number (CNIC);

(d) description, quantity and other relevant specifications of the goods or services
supplied;

(e) the total amount payable for the supply;

(f) the rate of tax applicable to the supply; and

(g) the amount of tax payable.

50. Sales receipts.— (1) A registered person who makes a taxable supply of a value not
more than twenty-five thousand rupees to a person who is not required to be registered, may
issue a sales receipt for the price of the supply.

(2) A sales receipt must contain the information prescribed by the Board, including but not
limited to

(a) the date on which it is issued;

(b) the name and registration numbers of the supplier;

(c) a description of the goods or services supplied;

(d) the total amount payable for the supply; and

(e) an indication that tax is included in the amount paid.

51. Credit and debit notes.— A debit or credit note issued in accordance with section 29
shall contain the information prescribed by the Board, which shall be sufficient to identify
the amount of any increasing or decreasing adjustments required or allowed under that
section.

52. Documentation issued by or to agents.— (1) If a taxable supply is made by an agent

on behalf of a principal and both the agent and principal are registered, any documentation
required to be issued by the principal, including a tax invoice, or a credit or debit note, may
be issued by the agent, using the name, address, and registration number of the agent.

(2) An agent who issues a tax invoice, or a credit or debit note, in accordance with sub-
section (1) shall be treated for all purposes as if the agent were the supplier

(3) If a taxable supply is made to an agent acting on behalf of a principal and both the
agent and principal are registered, any documentation required to be issued to the principal,
including a tax invoice, or a credit or debit note, may be issued to the agent, using the name,
address, and registration number of the agent.

(4) An invoice, or a credit or debit note, issued to an agent in accordance with sub-
section (3) shall be treated as being in the name of the principal for the purposes of section
‎26.
53. Prohibitions.— (1) Only one original tax invoice may be issued for a taxable supply
but the person who issued the original may provide a copy clearly marked as such to a
registered recipient who claims to have lost the original.

(2) Only one original credit or debit note may be issued for a particular adjustment event
in relation to a supply, but the person who issued the original may provide a copy clearly
marked as such to a registered recipient who claims to have lost the original.

54. Records and accounts.— (1) A registered person shall keep such accounts,
documents, and other records prescribed by the Board as are necessary to permit ready
ascertainment of the person’s tax liability and other obligations under this Act, and shall
retain those records for

(a) at least six years from the end of the tax period to which they relate; or

(b) until the final decision is made in any audit, recovery proceedings, dispute,
prosecution, or other proceedings under this Act relating to that tax period.

(2) Without limiting sub-section (1), the records kept shall include copies of

(a) all tax invoices, credit notes, and debit notes issued and received by the person;
and

(b) all customs documentation relating to imports and exports of goods by the
person.
 Chapter-VIII
RETURNS AND DECLARATIONS

55. Tax returns.— (1) A registered person shall file a tax return for each tax period no
later than fifteen days after the end of the period.

(2) A tax return shall 

(a) be filed with the Board;

(b) be in the form prescribed by the Board, which may include electronic filing; and

(c) contain the information specified by the Board.

(3) On application by a registered person, the Board may grant a person permission to file
a tax return after the date specified in sub-section (1).

(4) A permission granted under sub-section (3) does not alter the due date for payment of
tax due for the tax period.

56. Amended tax returns.— (1) If a registered person who has filed a tax return requests
the Board to amend the return to correct any genuine omission or incorrect declaration made
therein, the Board may allow the person to amend the original tax return and accept filing of
the amended tax return.

(2) The request shall be in writing, specifying in detail the grounds on which it is made,
and must be made within three years after the end of the tax period to which the tax return
relates.

(3) Where before the receipt of notice for audit a request for an amendment to a tax return
is filed by a registered person and any unpaid amount of tax is paid, along with the
applicable default surcharge, no penalty shall apply.

57. Minor corrections.— (1) Subject to such conditions and limitations as it

prescribes, the Board may allow a registered person to correct minor errors in a return for a
tax period by making the relevant increasing or decreasing adjustment in the tax return for
the subsequent tax period, without the imposition of any interest, default surcharge, or
penalty.

(2) Such adjustments shall not be allowed if the amount of additional tax payable exceeds
one thousand.
58. Additional tax returns.— The Board may, by notice, require a person, whether on
that person’s own behalf or as agent or trustee of another person, to file, within such time as
the Board considers appropriate, such Additional tax return for a tax period as the Board
requires..

Chapter-IX
AMINISTRATION AND RELATED MATTERS

59. Functions and powers.— (1) Notwithstanding anything to the contrary contained in
any law, the Board shall perform all such functions and exercise all such powers as are
imposed or conferred upon the Board under this Act and a Provincial Value Added Tax law.

(2) The Board may, by name or designation, delegate or assign any function or power to
an officer of the Inland Revenue, whether conditionally or otherwise, and subject to such
limitations as the Board may, by notification in the official Gazette, specify.

(3) Except as otherwise specified by the Board, no officer of the Inland Revenue shall
further delegate or assign any of the functions or powers delegated or assigned to such
officer by the Board.

(4) The functions and powers, delegated or assigned by the Board to an officer of the
Inland Revenue may, by notification in the official Gazette, be modified or withdrawn by the
Board at any time.

60. Directorates General.— (1) The Board may constitute such directorates as may be
necessary to accomplish the objectives of this Act, consisting of Director General and as
many Directors, Additional Directors, Deputy Directors and Assistant Directors and such
other officers or officials as the Board may appoint.

(2) The duties, functions, jurisdiction and powers of the Directorates General stated in
sub-section (1) and their officers shall be specified, varied and regulated by the Board in
such manner or mode as may be deemed proper.

Chapter-X
RECOVERY OR PAYMENT OF TAX

61. Recovery of arrears of tax.— (1) Where any amount of tax is due from any person,
the officer of Inland Revenue authorized by the Board or Commissioner in this behalf, may
take all or any of the following actions to recover such amount, namely:-

(a) deduct the amount from any money owing to defaulter at his disposal or under
his control or under the control of any other officer of Customs or Inland
Revenue;

(b) require any person who holds or may subsequently hold any money for or on
account of the defaulter to pay the amount;
 (c) stop removal of any goods from the business premises of the defaulter or the
associated person till such time the recoverable amount is paid or recovered in
full;

(d) require any person to stop clearance of imported goods or manufactured goods;

(e) attach bank accounts of the defaulter or his associated person;

(f) seal the business premises of the defaulter till such time the recoverable amount
is paid or recovered in full;

(g) attach and sell or sell without attachment any moveable or immoveable property
including taxation goods of the defaulter; or

(h) recover such amount by attachment and sale of any moveable or immoveable
property including taxable goods of the guarantor, person, company, bank or
financial institution where a guarantor or any other person, company, bank or
financial institution fails to make payment under such guarantee, bond or
instrument.

(2) All requisitions or orders under sub-section (1) shall be issued in writing giving all
relevant particulars of the defaulter.

(3) For the purpose of attachment under this section, the concerned moveable property
including taxable goods may be seized and dealt with in such manner, including auction, as
may be specified by the Board.

62. Officer of Inland Revenue to act as Court in recovery matters.— For the purpose
of recovery of unpaid amounts of tax recoverable under this Act or the rules made
thereunder, the officer of Inland Revenue shall have the same powers which a Civil Court
has for the purpose of recovery of an amount due under a decree under the Code of Civil
Procedure, 1908 (V of 1908), provided that in case of any matter, if there is conflict or
variance in the Code and this Act or rules made thereunder, the latter shall prevail.

63. Change in jurisdiction for recovery.— Where any defaulter resides or his property is
situated in the jurisdiction of another Commissioner Inland Revenue, the Commissioner in
whose jurisdiction arrears are due may authorize such other Commissioner to make recovery
of any or whole amount of such arrears as if these are due in his jurisdiction provided that
once recovered, the amount shall be transferred to the Commissioner in whose jurisdiction
the arrears were due.

(2) Nothing in sub-section (1) shall prohibit any defaulter to pay his arrears to the
Commissioner in whose jurisdiction these were due at any stage of the process or
proceedings for recovery by the other Commissioner.
64. Estate in bankruptcy.— If any registered person is declared bankrupt, his
outstanding tax liability shall pass on to the estate in bankruptcy whether or not it continues
to operate as a business.

65. Recovery through a liquidator.— (1) Every person (hereinafter referred to as a

―liquidator‖) who is -

(a) a liquidator of a company;

(b) a receiver appointed by a court or appointed out of court;

(c) a trustee for a bankrupt; or

(d) a mortgagee in possession,

shall, within fourteen days of being appointed and taking possession of an asset in Pakistan,
whichever occurs first, give written notice thereof to the Commissioner Inland Revenue
concerned.

(2) The Commissioner shall within three months of receipt of notice inform the liquidator,
of the amount sufficient to provide for any tax which is or will become payable by the
person whose assets are in the possession of the liquidator.

(3) Subject to the order of any court of law, the liquidator shall not, -

(a) without prior leave of the Commissioner, part with any asset held as liquidator;

(b) set aside out of the proceeds of sale of any asset, the amount informed earlier or
subsequently agreed by the Commissioner;

(c) be liable to the extent of the amount set aside for the tax liability of the person
who owned the asset;

(d) be personally liable to the extent of any amount required to discharge tax liability
under this section unless sale proceeds are less than liability; and

(e) be personally responsible to comply with Commissioner’s instructions issued

under this Act or rules made thereunder

66. Tax liability in case of private companies or business.— Where any private
company or business is wound up and any tax chargeable on the company or business,
whether before or in the course or after its liquidation, in respect of any tax period or periods
cannot be recovered from the company or business, every person who was the owner of, or
partner in or director of the company or business during the relevant period or periods shall,
jointly and severally, be liable for the payment of such tax.

67. Condonation of time-limit or conditions.— The Board may conditionally or

otherwise condone any time, period or condition specified under any of the provisions of the
Act or rules made thereunder or empower generally or otherwise any Commissioner to
condone any of such time, period or condition.

68. Instalments of arrears.— The Board or the Commissioner may grant permission to
any defaulter to pay his arrears in suitable instalments along with default surcharge as and if
payable and cancel any such permission in case of default in payment of any instalment.

Chapter-XI
AUDIT AND ENFORCEMENT

69. Audit by officer of Inland Revenue.— (1) The officer of Inland Revenue,
authorized in this behalf by the Board may conduct audit, including forensic audit, of any
registered person on giving advance notice provided that such notice may be dispensed with
by the Commissioner where tax fraud is suspected.

(2) Each of the audit observations of the officer of Inland Revenue shall be conveyed to
the concerned registered person and finalized on examining the viewpoint of such registered
person, to be furnished within such period as may be specified by the said officer.

(3) If no viewpoint is received from a registered person during the specified period, any
contravention specified in the audit observation shall be adjudicated.

(4) The show cause notice shall stand abated where a person has before the finalization of
adjudication, deposited the unpaid amount of tax along with default surcharge and penalty
due under this Act.

70. Special audit.— (1) The Board may on such terms and conditions as may be agreed
upon with the accountant, appoint an accountant for conducting a special audit, including
forensic audit, of records or refund claims of any registered person or class of registered
persons whether or not such registered person or class of registered persons has been audited
earlier by any officer of Inland Revenue, or other department.

(2) The accountant appointed under sub-section (1), shall have such powers of an officer
of Inland Revenue as may be specified by the Board.

71. No multiple departmental audits in normal circumstances - (1) No registered

person shall be audited by the officers of any LTU, or as the case may be, RTO twice for the
same period unless the Commissioner has any reliable information or otherwise believes
about any tax fraud by any registered person during the said audited period and specifically
orders for re-audit.

(2) The audit by the Inland Revenue or as the case may be, special audit shall be in
addition to the audit conducted by any other government department or agency.

72. Arrest and prosecution.–— (1) An officer of Inland Revenue not below the rank of
an Assistant Commissioner Inland Revenue after taking prior permission from the Board
may arrest for prosecution, any person suspected or believed to have committed tax fraud or
other offence liable to prosecution in accordance with the relevant provisions of the Code of
Criminal Procedure, 1898 (Act V of 1898)

(2) Where a person suspected or believed to have committed a tax fraud is a company,
every director or officer of such company, suspected or believed to have been personally
responsible for the commission of such tax fraud may be arrested and such arrest shall not
absolve the company from any tax liability or other obligations under this Act and rules
made thereunder;

73. Procedure for arrest.–— (1) The arrest of each person shall be made in accordance
with the provisions of the Code of Criminal Procedure, 1898 (Act V of 1898).

(2) A proper ―Register of Arrests‖ shall be maintained in each LTU, or as the case may be,
RTO and produced before the Special Judge on demand.

74. Compounding of offences.– (1) Where any person has committed a tax fraud or
other offence liable to prosecution, the Commissioner may either before or after the
commencement of any proceedings or action towards the determination or recovery of tax
liability or prosecution, conditionally or otherwise compound the offence if such person pays
the amount of tax due along with default surcharge and penalty as specified by the
Commissioner.

(2) Trial for tax fraud shall be conducted by a Special Judge.

(3) Where a trial has commenced before the Special Judge, compounding of offence under
sub-section (1) shall be undertaken with the permission of the Court.

75. Power to call for information or documents and access to records and premises.—
(1) An officer of Inland Revenue duly authorized in this behalf by the Board may, for the
purposes of this Act, -

(a) enter any premises or place where any stocks, records, accounts or documents
required under this Act and rules made thereunder are kept or maintained;

(b) inspect stocks, records, accounts, documents including those which are required
to be maintained under any of the Federal, Provincial or local laws;

(c) take into his control such records, accounts or documents or any part thereof, in
original or copies thereof in any form against a signed receipt;

(d) require any person to answer any question or furnish such explanation or
information including the information regarding sources of funds or assets with
which any business is funded as may be necessary; and

(e) call for any information or assistance from any Federal Government or a
Provincial Government department, local bodies, autonomous bodies,
corporations, associations or trade bodies or similar other organizations or
institutions.
(2) An officer of Inland Revenue may require any person to furnish such information or
such statement or document as is required in connection with any investigation, enquiry,
audit or verification under this Act and rules made thereunder.

(3) The Board may require any person, association, trade body, department, company or
organization, to provide any information or data held by that person, association, trade body,
department, company or organization, which, in its opinion is required for the purposes of
formulating policy, taking any decision or administering the relevant laws under its
jurisdiction.

Chapter-XII
ADJUDICATIONS, APPEALS AND REFERENCES ETC.

76. Powers of adjudication in case of imported goods.- In the case of imports, all
powers and processes of adjudication, appeal, reference to High Court and all allied matters
shall be exercised or conducted under the Customs Act and, for this purpose, the relevant
provisions of the Customs Act shall mutatis mutandis apply, including the jurisdiction and
powers of the adjudicating authorities under the Customs Act.

77. Powers of adjudication.– (1) Cases involving assessment of tax and determination
of tax liability, including those

(a) detected through audit; and

(b) inadmissible refund,

shall be adjudicated by such officer of Inland Revenue not below the rank of Assistant
Commissioner in the LTU or, as the case may be, RTO as may be authorized by the
Commissioner through a general or special order.

(2) Cases of non-filing or late-filing of returns or short-payment of tax may be adjudicated

upon by such officer of Inland Revenue as may be authorized by the Commissioner.

(3) Cases involving rejection of refund shall be adjudicated by the officer of Inland
Revenue authorized to sanction refund.

(4) The Commissioner may assume power to adjudicate any case falling under the
jurisdiction of any officer of Inland Revenue subordinate to him.

(5) The Board may change the jurisdiction or powers of any officer of Inland Revenue or
class of such officers

Explanation- In this sub-section, the expression ―tax‖ means the principal amount of tax other than default
surcharge and in case where only default surcharge is involved, the amount of default
surcharge.

(6) The provisions of sub-section (3) of section 91 shall apply to the cases adjudicated
under this section.
78. Powers of the Board and Commissioner Inland Revenue to reopen cases.— (1)
The Board or Commissioner may on its or his own or otherwise examine the record of any
case or proceedings for the purpose of satisfying itself or himself as to the legality or
propriety of any decision or order passed therein by any subordinate officer of Inland
Revenue and pass such order as it or he may think fit:

Provided that -

(a) no order imposing or enhancing any penalty or fine or requiring payment of a

greater amount of tax than originally determined shall be passed unless the
affected person has been given an opportunity of showing cause and of being
heard; and

(b) no case shall be so examined where an appeal is pending before the Appellate
Tribunal.

(2) No order shall be made under this section after the expiry of five years from the date of
the original decision or order.

79. Appeal to Commissioner Inland Revenue (Appeals).— (1) Any person, other
than the Inland Revenue, aggrieved by any adjudication order passed by an officer of Inland
Revenue up to the rank of Additional Commissioner may, within thirty days of the date of
receipt of such order, prefer an appeal to the Commissioner (Appeals).

Provided that an appeal preferred after the expiry of thirty days may be admitted by the
Commissioner (Appeals) if he is satisfied that the appellant has sufficient cause for not
preferring the appeal within the specified period.

(2) The appeal shall be accompanied by a fee of one thousand rupees to be paid in a
manner specified by the Board.

(3) The Commissioner (Appeals) may after hearing the parties to the appeal, pass such
order as he thinks fit, confirming, varying, altering, setting aside or annulling the order
appealed against; provided that he shall not remand the case for outright de novo
consideration at original stage.

(4) An order under sub-section (4) shall be passed not later than ninety days from the date
of filing of appeal, which period may be extended further for ninety days by the
Commissioner (Appeals) for reasons to be recorded in writing.

(5) In deciding an appeal, the Commissioner (Appeals) may make or cause to be made
such further audit, enquiry or verification as may be necessary.

80. Appeal to Appellate Tribunal.— (1) Any person including the officer of Inland
Revenue not below the rank of an Additional Commissioner authorized by the
Commissioner in this behalf, aggrieved by -

(a) an adjudication order or decision passed or made by the Commissioner

(Appeals);
 (b) any such order or decision passed or made by the Commissioner under assumed
jurisdiction of his subordinate officer; and

(c) an order or decision passed or made by the Board or the Commissioner under
section 78,

may, within sixty days of the receipt of such decision or order, prefer an appeal to the
Appellate Tribunal.

(2) The Tribunal may admit an appeal preferred after the expiry of sixty days if it is
satisfied that there was sufficient cause for not presenting it within the specified period

(3) The appeal, other than an appeal filed by the Additional Commissioner, shall be
accompanied by a fee of one thousand rupees paid in a manner specified by the Board.

(4) The Tribunal, after hearing the parties to the appeal, may pass such order in relation to
the matter before it as it thinks fit.

(5) Any interim order of the Appellate Tribunal staying recovery of tax, shall cease to
have effect on the expiry of a period of six months following the day on which it was made
unless the case is finally decided, or the interim order is withdrawn by the Tribunal earlier.

(6) In no case, any order staying recovery of tax shall be extended or revalidated by the
Appellate Tribunal on any ground after the expiry of a period of six months.

(7) The Appellate Tribunal shall send a copy of its order disposing the appeal to the
appellant and to the concerned Commissioner of Inland Revenue of LTU, or as the case may
be, RTO.

(8) An order disposing of an appeal under this section shall be passed within six months of
filing of appeal.

(9) The Appellate Tribunal shall have power to regulate its own procedure and the
procedure of its benches in all matters arising out of the exercise of its powers or of the
discharge of its functions, including the places at which the benches shall hold their sittings.

(10) The Chairman or any other member of the Appellate Tribunal authorized in this behalf
by the Chairman may, sitting singly, dispose of any case which has been allocated to the
bench of which he is member where -

(a) in any disputed case, other than a case where the determination of any question
having a relation to the rate of tax or to the value of taxable supply for the
purposes of assessment is in issue or is one of the points in issue, the difference
in tax involved or the tax involved does not exceed two million rupees; or

(b) the amount of fine or penalty involved does not exceed two million rupees.

81. Reference to the High Court.— (1) Within ninety days of the communication of the
order of the Appellate Tribunal, the aggrieved person or the officer of Inland Revenue not
below the rank of an Additional Commissioner authorized by the Commissioner in this
behalf may prefer an application in the prescribed form along with a statement of the case to
the High Court, stating any question of law arising out of such order.

(2) The statement to the High Court referred to in sub-section (1), shall set out the facts,
the determination of the Appellate Tribunal and the question of law, which arises out of its
order.

(3) Where, on an application made under sub-section (1), the High Court is satisfied that a
question of law arises out of the order referred to in sub-section (1), it may proceed to hear
the case.

(4) A reference to the High Court under this section shall be heard by a bench of not less
than two judges of the High Court and, in respect of the reference, the provisions of section
98 of the Code of Civil Procedure, 1908 (Act V of 1908) shall apply, so far as may be,
notwithstanding anything contained in any other law for the time being in force.

(5) The High Court upon hearing a reference under this section shall examine the question
of law raised by the reference and deliver judgment thereon specifying the grounds on which
such judgment is based and the order of the Appellate Tribunal shall stand modified
accordingly.

(6) The Court shall send a copy of its judgment under the seal of the Court to the
Appellate Tribunal.

(7) The cost of any reference to the High Court shall be in the discretion of the High
Court.

(8) Where recovery of tax has been stayed by the High Court by an order, such order shall
cease to have effect on the expiry of a period of six months following the day on which it is
made unless the reference is decided, or such order is withdrawn by the High Court earlier.

(9) Section 5 of the Limitation Act, 1908 (IX of 1908), shall apply to an application made
to the High Court under sub-section (1).

(10) An application under sub-section (1) by a person other than the Additional
Commissioner authorized by the Commissioner shall be accompanied by a fee of one
hundred rupees.

82. Bar on payment of refund etc.— Where an officer of Inland Revenue suspects or
believes that any claim for adjustment, refund, repayment or drawback of tax has been made
on the basis of any document suspected not to be genuine, true or correct, he may reject such
claim through the process of adjudication without prejudice to any other action which may
be taken against the claimant under the law.

83. Alternative dispute resolution.– (1) Notwithstanding any other provisions of this Act
any registered person aggrieved in connection with any dispute pertaining to–

(a) the liability of tax against the registered person, or admissibility of refunds, as
the case may be;
 (b) the extent of waiver of default surcharge and penalty;

(c) the quantum of input tax adjustment admissible under this Act;

(d) relaxation of any procedural or technical irregularities and condonation of any

prescribed time limitation; and

(e) any other specific relief required to resolve the dispute,

may apply to the Board for the appointment of a committee for the resolution of any
hardship or dispute mentioned in detail in the application, which is under litigation in any
Court or an Appellate authority, except in cases where First Information Reports (FIRs) have
been filed under the Act or criminal proceedings have been initiated or where an
interpretation of a question of law having larger revenue impact is, in the opinion of the
Board, involved.

(2) The Board may, after examination of the application of a registered person, appoint a
Committee within thirty days of receipt of such application in the Board, consisting of an
officer of Inland Revenue not below the rank of an Additional Commissioner and two
persons from the panel as may be notified by the Board consisting of retired District and
Sessions Judge, chartered or cost accountants, advocates, representatives of trade bodies or
associations, or any other reputable taxpayers, for the resolution of the dispute.

(3) The Committee constituted under sub-section (2) shall examine the issue and may if it
deems fit, conduct inquiry, seek expert opinion, direct an officer of Inland Revenue or any
other person to conduct an audit and make recommendations within ninety days of its
constitution in respect of the dispute. If the Committee fails to make recommendations
within the said period, the Board may dissolve the Committee and constitute a new
Committee which shall decide the matter within a further period of ninety days. If after the
expiry of that period the dispute is not resolved, the matter shall be taken up by the
appropriate forum for decision.

(4) The Board may, on the recommendations of the Committee, pass such order, as it may
deem appropriate within forty-five days of the receipt of the recommendations of the
Committee.

(5) Notwithstanding anything contained in sub-section (4), the Chairman of the Board may
on the application of an aggrieved person, for reasons to be recorded in writing, and on being
satisfied that there is an error in the order or decision, pass such order as may be deemed just
and equitable.

(6) The registered person may make payment of tax as determined by the Board in its
order under sub-section (4) or by the Chairman under sub-section (5), and such order of the
Board or the Chairman shall be submitted before the forum, Tribunal or the Court where the
matter is sub-judice for disposal thereof.

(7) The Board shall prescribe the procedure for carrying out the purposes of this section.

84. Appearance by authorized representative.— A registered person required to appear

before the Appellate Tribunal or any officer of Inland Revenue in connection with any
proceedings under this Act and the rules made thereunder may, in writing, authorize any
person having such qualification or qualifications as may be prescribed by the Board to
represent him or appear on his behalf.

85. Correction of clerical errors, etc.— Clerical or arithmetical errors or other bona fide
mistakes in any notice, assessment or adjudication order or decision may, at any time, be
corrected by the officer of Inland Revenue who issued or made such notice, order or decision
or by his successor in office after giving a notice to the person affected by such correction.

86. Issuance of certificate or duplicate documents.— A certificate or a duplicate of any

certificate or relevant official document may on request and on payment of a fee of twenty
five rupees, be furnished to the registered person applying for the same to the Commissioner
provided that the Commissioner.

87. Bar of suits, prosecution and other legal proceedings.— (1) No suit shall be
brought in any Court including the High Court in its original civil jurisdiction to set aside or
modify any order passed, any assessment made, any tax levied, any penalty imposed or
collection of any tax made, audit, enquiry or investigation conducted under this Act or rules
made thereunder or against any action taken by an officer of Inland Revenue in connection
with such matters.

(2) No suit, prosecution, or other legal proceeding shall lie against the Board, Federal
government or against any officer of Inland Revenue in respect of any order passed or action
taken in good faith under this Act or rules made thereunder.

(3) Under no law for the time being in force, any investigation or inquiry shall be
undertaken or initiated by any governmental agency against any officer of Inland Revenue or
official for anything done in his official capacity under this Act, rules, orders, instructions or
directions made or issued thereunder unless prior written approval is taken from the Board
and for reasons to be recorded, the Board may decline to give any such approval in any case
or class of cases.

Chapter-XIII
OFFENCES AND PENALTIES

88. Default surcharge.— (1) In addition to the tax payable under this Act, a person shall,
in respect of a particular tax period, pay simple default surcharge at the rates specified in
sub-section (2) if the person has underpaid an amount of tax or over-claimed an amount of a
refund under this Act, whether because the person—

(a) failed to account for or pay an amount of output tax payable under this Act;

(b) failed to make an increasing adjustment as required under this Act;

(c) claimed a decreasing adjustment not allowable under this Act;

 (d) been granted permission for late payment or permission to pay tax by
installments; or

(e) for any other reason underpaid or over-claimed an amount under this Act.

(2) The following rates of default surcharge shall be payable on the amount of principal
tax that should have been paid but was not paid for the tax period, or the amount of the
refund that was claimed but should not have been claimed for the tax period,—

(a) in case of tax fraud, two percent per month till such time as the principal tax
liability is discharged; or

(b) in any other case one percent per month for the first six months and thereafter
one and a half percent per month until such time the principal tax liability is
discharged.

(3) The period for calculating default surcharge shall commence from,—

(a) in case of an amount refunded to the person, the day on which the refund was
paid; or

(b) in the case of an amount not paid by the person, the day following the day on
which the amount should have been paid.

89. Offences and penalties.— (1) A person who commits an offence described in column
(2) of the Third Schedule of this Act shall, in addition to and not in derogation of any
punishment to which the person may be liable under any other law, be liable to pay the
penalty mentioned against that offence in column (3) thereof

(2) Imposition of any penalty or fine under this section shall not affect the liability for tax
or default surcharge, of a person on whom such penalty or fine has been imposed.

(3) The question as to whether any penalty or fine including extent thereof, is to be
imposed in any case under sub-section (1) shall be in the discretion of the adjudicating
officer, tribunal or court concerned provided that penalty or fine shall not be completely
forgone where commission of a contravention or an offence has been proved.

90. Recovery of tax not charged, levied or paid or inadmissible adjustment or

refund.— (1) Unless any person otherwise voluntarily pays all his tax liabilities including
default surcharge and penalties, no amount of tax not charged, levied or paid including
inadmissible adjustment, or refund of tax, shall be determined before recovery without
issuance of show cause notice within six years in case involving any collusion or deliberate
act and within three years in case of bonfire inadvertence, error or misconstruction from the
relevant date.

(2) In case other than inadmissible adjustment or refund or deliberate non-payment of due
tax, where actual amount shall be recovered along with other dues like default surcharge and
penalty, the tax shall be recovered as tax fraction of the value of supply besides other like
dues.
(3) The process of adjudication shall be completed within a period of ninety days which
may be extended for another period of ninety days and no adjournment shall be granted to
the registered person except on just cause shown.

Explanation. - The expression ―relevant date‖ shall mean the day,-

(a) immediately after the due date for payment of tax; and

(b) on which inadmissible adjustment or refund was taken

Chapter-XIV
MISCELLANEOUS

91. Use of computerized system. - (1) The Board may generally or otherwise specify the
computerized system for use to carry out the purposes of this Act and rules made thereunder,
including the receipt of applications for registration, returns or other declarations, statements
or information required in this behalf, from such date and for such registered person or class
of registered persons as may be specified.

(2) The Board may make rules on any matter or matters necessary to regulate the conduct
and transactions of business in relation to the submission of returns or other information to
the Board or the Commissioner by the persons required to transmit or receive any
information through computerized system, including their authorization, de-authorization
and security of information and data.

92. Appointment and authorization of e-intermediaries.— (1) The Board may

conditionally or otherwise appoint a person to electronically file any returns, declarations or
statements and other specified documents prescribed from time to time on behalf of a
registered person or class of registered persons.

(2) Any registered person can authorize such an e-intermediary to electronically file his
returns or documents etc and all such returns and documents shall be deemed to have been
filed by such registered person.

(3) Where this Act requires anything to be done by a registered person and if such thing is
done by an e-intermediary authorized by him, unless the contrary is proved, it shall be
deemed to have done with the knowledge and consent of such registered person and he shall
be liable and accountable accordingly.

(4) Where an e-intermediary authorized by a registered person on his behalf, knowingly or

willfully submits a false or incorrect return, document, declaration, statement or information
with an intent to avoid payment of tax due or any part thereof or to claim any adjustment or
refund of tax or other entitlement that is not due to the registered person, such e-intermediary
shall be jointly and severally responsible for recovery of the amount of tax short paid or the
amount adjusted or refunded in excess as a result of such fake, false or incorrect submission
without prejudice to any other action as may be taken against him under the law.

93. Compensation for delayed refunds.— Where a refund due is not made within the
time specified therefore, there shall be paid to the claimant in addition to the amount of
refund due to him, a compensation at the per annum KIBOR of the amount of refund due,
from the date following the expiry of the specified time provided that no such compensation
shall be paid for the period during which refund remained disputed in adjudication, litigation
or otherwise or under investigation, enquiry, audit or verification for any official reason.

94. Powers to make rules, issue instructions and orders etc. - (1) The Board may,
through a notification in the official Gazette, make rules covering all allied and ancillary
matters necessary for the implementation and enforcement of the provisions of this Act,
including-

(a) registration and deregistration;

(b) filing of returns, declarations, summaries and statements;

(c) record-keeping, accounts, and related documentation;

(d) tax invoices, credit and debit notes;

(e) refunds and repayments;

(e) audit and alternate dispute resolution;

(f) charging of fees for processing, documentation and proceedings for any official
act;

(g) recovery of arrears, including compounding of offences; and

(h) application of information technology including appointment and management

of e-intermediaries;

(2) The rules made under this Act during any financial year shall be placed before the
National Assembly along with the annual budget.

(3) The Board may specify any officer of Inland Revenue to be an appropriate or
competent or authorized or designated or nominated officer for the purpose of any of the
provisions of this Act or rules made thereunder.

(4) The Board may issue standing orders, public notices or other instructions to ensure
smooth and efficient functioning of the work under this Act or the rules made thereunder.

Chapter-XV
TRANSITION

95. Repeal and savings.- (1) The Sales Tax Act, 1990 and the Sales Tax Act, 1951 (III of
1951) are hereby repealed.

(2) Any appointment, notification, order, scheme, rule, form or bye-law made or issued
under the repealed Act or Regulation, shall, so far as it is not inconsistent with the provisions
re-enacted, continue in force, and be deemed to have been made or issued under the
provisions so re-enacted, unless and until it is superseded by any appointment, notification],
order, scheme, rule, form or bye-law made or issued under the provisions so re-enacted.
(3) For the purposes of deciding matters covered under or carried over from the repealed
Act or rules made thereunder any reference to Collector, Additional Collector, Deputy
Collector, Assistant Collector, Superintendent, Senior Auditor and an officer of Sales Tax
wherever occurring in the repealed Act and the rules, notifications, clarifications, general
orders or orders made or issued thereunder, shall be construed as reference to Commissioner,
Additional Commissioner, Deputy Commissioner, Assistant Commissioner, Superintendent,
Senior Auditor and an officer of Inland Revenue, respectively.

(4) Where, on the day immediately preceding the day on which this Act comes into force,
a person is registered under the Sales Tax Act, 1990,—

(a) the registration of that person under that Act shall be deemed to have been
effected under this Act;

(b) the registered office of the person under that Act shall be deemed to be the
registered office of the person under this Act;

(c) the person shall be deemed to be registered—

(i) if the person exceeds the registration threshold: under section ‎41; or

(iii) if the person does not exceed the registration threshold: under section ‎42.

(5) A person who becomes registered under section ‎42, as a result of sub-section (1), may
apply for cancellation of registration and if the Board is satisfied that the person does not
exceed the registration threshold, the Board shall cancel the person’s registration.

(6) The Board shall, on the day this Act comes into force, publish a list of persons
registered for VAT in accordance with section ‎48.

96. Adjustment for input tax (1) Where, on the day this Act comes into force, a person
who was registered under the Sales Tax Act, 1990 becomes registered under this Act, the
person may claim a decreasing adjustment in relation to any amounts that were input tax as
defined under that Act, if—

(a) the input tax was incurred on goods or services purchased or imported by the
person no more than twelve months prior to the day on which this Act comes
into force;

(b) the person has not previously deducted that input tax, or part of that input tax;

(c) the person acquired the goods or services on which the input tax was incurred for
what would have been a creditable purpose had this Act been in force at the time
of the acquisition; and

(d) the person’s registration is not suspended under this Act.

(2) A decreasing adjustment allowed under sub-section (1) is in addition to those listed in
section ‎24.
(3) A registered person wishing to claim one of more decreasing adjustments allowed
under sub-section (1) shall,—

(a) claim all such adjustments only in one tax period, which must be one of the first
six tax periods ending after the day on which this Act comes into force;

(b) must be supported by the documentation that would have been required to
support a deduction under the Sales Tax Act, 1990; and

(c) may be disallowed by the Board if the Board is not satisfied that the person is
entitled to the adjustment.

97. Removal of difficulties.- If any difficulty arises in giving effect to the provisions of
this Act, the Board may issue such order not inconsistent with provisions of the Act, as may
appear necessary to remove the difficulty.

THE FIRST SCHEDULE

(see section 11)

Exempt supplies and imports

Serial Description
No.

(1) (2)

1 Unprocessed peas, wheat and wheat flour.

2 Ice and waters excluding those for sale under brand names or trademarks.

3 Table salt including iodized salt excluding salt sold in retail packing bearing brand
names and trademarks.

4 Books (including brochures, leaflets and similar printed matter, children's picture,
drawing or colouring books, music printed or in manuscript form, maps and
hydrographic or similar charts), newspapers and periodicals, other than material
wholly or predominantly devoted to advertising.

5 The Holy Quran in whatever form or on whatever media.

6 Diapers for adults (patients).

7 Ambulances and fire-fighting trucks.

8 Dextrose and saline infusion giving sets along with empty non-toxic bags for
infusion solution, and dextrose and saline infusion giving sets.
 9 Artificial parts of the body.

10 Intra-ocular lenses and glucose testing equipment.

11 Contraceptives and accessories thereof.

12 Precious metal, other than a first supply of precious metal after refinement that is
zero-rated under the Third Schedule.

13 Personal wearing apparel and bona fide baggage imported by overseas Pakistanis
and tourists exempt from customs duties under the Customs Act.

14 Import of goods chargeable to zero-rate of customs duty under relevant headings

specified in headings 99.01, 99.02, 99.03, 99.05, 99.06, 99.07, 99.08, 99.09, 99.10,
99.11, 99.12, 99.13, 99.14, 99.15, 99.16, 99.18, 99.19, 99.20, 99.21, 99.22, 99.24,
99.25 and 99.38 of the Pakistan Customs Tariff.

For the purpose of this Schedule, the term ―unprocessed‖ shall include low value added
activity such as sorting, drying, or bulk packaging, provided the value added does not exceed
5% of the total value of the import or the supply.

THE SECOND SCHEDULE

(see section 12)

Zero rated supplies

Serial No. Description

(1) (2)

1 To the extent that it consists of a supply of goods or a supply of Federal list

services that would otherwise be taxable under this Act, the sale or transfer of
an economic activity, or part thereof, as a going concern by a registered person
to another registered person is zero-rated.

2 A supply of stores and provisions for consumption aboard a conveyance

proceeding to a destination outside Pakistan, as specified in section 24 of the
Customs Act, 1969 (IV of 1969).

3 Such basic pharmaceutical and medical supplies as are specified by the Board.

4 A supply of precious metals, if—

(a) it is the first supply of that precious metal after its refining by, or on behalf
of, the supplier; and
 (b) the person who refined the precious metal is a refiner of precious metal; and

(c) the purchaser of the supply is a dealer in precious metal.

5 A supply of international transport services.

THIRD SCHEDULE

[ see section 89 (1) ]

Offen ce Pen alties

S#
(1) (2) (3)
1 Failure to obtain registration or non- Ten thousand rupees or five percent of the tax
compliance of compulsory registration. involved whichever is higher provided that in
case of non-compliance of compulsory
registration, the minimum penalty shall be
one hundred thousand rupees.

2 Late filing or non filing of return. Five thousand rupees provided that if a return
is not filed within fifteen days of the due date,
a penalty of one hundred rupees for each day
of default shall be paid.

3 Failure to issue tax invoice. Five thousand rupees or three percent of the
amount of tax involved, whichever is higher.

4 Failure to notify changes of address or Five thousand rupees.

increase in business capacity of material
nature in the particulars of registration.

5 Failure to deposit tax. Ten thousand rupees or five percent of the

amount of tax involved, whichever is higher
provided that :
i) if the amount of tax or any part thereof is
paid within fifteen days from the due date,
penalty of five hundred rupees for each day
of default shall be paid;
ii) if the amount of tax due is not paid even
after the expiry of a period of sixty days of
issuance of the notice for such a payment
 by a competent officer of Inland Revenue,
the defaulter shall, further be liable, upon
conviction by a Special Judge, to
imprisonment for a term which may extend
to three years, or with fine not exceeding
the amount of tax involved, or with both.
iii) no penalty shall be payable if any
miscalculation is made for the first time
during a year:

6 Non-maintenance or defective Ten thousand rupees or five percent of the

maintenance of records. amount of tax involved, whichever is higher.

7 Where a registered person without any

reasonable cause fails to produce
records, -
(a) five thousand rupees;
a) on receipt of first notice;
(b) ten thousand rupees; and
b) on receipt of second notice; and
c) on receipt of third notice.
(c) fifty thousand rupees.

8 Failure to furnish any information Ten thousand rupees.

required under this Act or the rules
made thereunder.

9 Any person who, - Twenty five thousand rupees or one hundred

percent of the amount of tax involved,
a) submits a false or forged document to
whichever is higher provided that such person
Board; or
shall further be liable, upon conviction by a
b) destroys, alters, mutilates or falsifies Special Judge, to imprisonment for a term
the records including a tax invoice; or which may extend to five years, or with fine
not exceeding the loss of tax involved, or with
c) makes false statements, false both.
declaration, false representation, false
personification, gives any false
information or issues or uses a
document which is forged or false.

10 Denying or obstructing the access of Twenty five thousand rupees or one hundred
any officer of Inland Revenue to the percent of the amount of tax involved,
business premises, registered office or whichever is higher provided that such person
to any other place where records are shall further be liable, upon conviction by a
kept, or otherwise refusing access to the Special Judge, to imprisonment for a term
stocks, accounts or records or fails to which may extend to three years, or with fine
present the same when required by such not exceeding the amount of tax involved, or
officer. with both.
11 Committing, causing to commit or Five hundred thousand rupees or one hundred
attempting to commit tax fraud, or percent of the amount of tax involved,
abetting or conniving in committing of whichever is higher provided that such person
tax fraud. shall further be liable, upon conviction by a
Special Judge, to imprisonment for a term
which may extend to five years, or with fine
not exceeding the loss of tax involved, or with
both.

12 Violation of any embargo placed on Twenty five thousand rupees or ten percent of
removal of goods in connection with the amount of tax involved, whichever is
recovery of tax. higher provided that such person shall further
be liable, upon conviction by a Special Judge,
to imprisonment for a term which may extend
to one year, or with fine not exceeding the
loss of tax involved, or with both.

13 Obstructing the officer of Inland Twenty five thousand rupees or one hundred
Revenue in the performance of his percent of the amount of tax involved,
official duties. whichever is higher, provided that such
person shall further be liable upon conviction
by a Special Judge to imprisonment for a term
which may extend to one year or with fine not
exceeding rupees fifty thousand or with both.

14 Failure to fulfill any of the conditions, Five thousand rupees or three percent of the
limitations or restrictions specified or amount of tax involved, whichever is higher.
prescribed in a notification issued under
any of the provisions of this Act .

15 Obtaining repayment, drawback, Fifty thousand rupees or fifty percent of the

adjustment or refund on the basis of amount of tax involved provided that such
fake, untrue or incorrect documents. person shall further be liable, upon conviction
by a Special Judge, to imprisonment which
may extend to five years or with fine not
exceeding rupees one hundred thousand or
with both.

16 Contravention of any of the provisions Ten thousand rupees or three percent of the
of this Act for which no specific penalty amount of tax involved, whichever is higher
has been provided in this Act.

17 Repetition of an offence for which a Twice the amount of penalty provided under
penalty is provided under this Act. the Act for such offence.