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ENBANC
COMMISSIONER OF INTERNAL
REVENUE,
Petitioner, CTA EB CASE No . 683
(CTA Case No. 7468)
-versus- Present:
Acosta, £L
Castaneda, Jr.,
Bautista,
Uy,
Casanova,
Palanca-Enriquez,
Fa bon-Victorino,
Mindaro-Grulla, and
Cotangco-Manalastas, Jl
DECISION
COTANGCO-MANALASTAS, J_:
Before this Court is a Petition for R eview1 flled by the Commissioner o f Internal
Revenue on September 17, 2010, pursuant to S ec/ion 18 of RepublicAd (R.A.) No. 1125, as
amended ly Section 11 ~( R../1 . No. 9282, and S ection 3(b), Rule 8 of the 2005 Ret;ised Rules of the
Court ofTax Appeals (RJZCJA), with a prayer that the portion o f the Decision2 enunciated
by the Special First Division o f this Court on March 16, 2010 granting the refund or
issuance o f a tax credit certificate (TCC) in favor o f Panay Power Company in the
amount o f P14,526,563.3 1 be set aside and a new one be entered denying the claim in its
entirety. V
1 Rollo, pp. 1-3 3.
2 Division Dotket, pp. 43 1-45 1.
D ECISION
CT.-\ EB C -\SE No. 683 (CT.-\ Case No. 7468)
Commissioner of internal Revenue vs. Panqy Power Compmry Page 2 of 14
ANTECEDENT FACTS
The Court in Division affirmed that respondent is registered with and authorized
by the E nergy Regulatory Commission (E RC) to o perate fa cilities used in the generation
respond ent generated sales from power generation services for the four quarters o f
taxable year 2004 in the am ount o f P9 57,5 12,701. 53, which was reported in its quarterly
Value-Added T ax 01 AT) returns for the same period. A fter careful scrutiny, the Court a
quo learned that respondent's o fficial receipts showed however a to tal o f P900,262,414.58
only. Thus, respondent's declared zero-rated sales are only 94.02% substantiated,
computed as follows:
report to be in order, where the ICP A declared that only P1 7 ,233,508.29 is pro perly
substantiated out o f the to tal claim o f P28,280,542.87. H owever, after verification, the
Court a quo furth er decreased the claimed input VAT by P1 ,624,111.16. T hus, according
to the Court a quo respondent's valid creditable input tax is P14,526,5 63.31, computed as
follows:
Also, the Court in Division ruled out the possibility o f the input VAT having
been utilized in the succeeding taxable quarters; this is in view o f the fact that respondent,
in its original and amended qu arterly Vi\ T returns for taxable year 2005, deduc ted the
amount P59,533,378.83, o f which the valid input VAT o f P1 4,526,563.31 forms part, as
"A ny VAT Refund / TCC Claimed" from the total available input tax o f P68,350,27 5.57.
Finally, the Court a quo affirmed that both the administrative claim for refund
filed on D ecember 21, 2005 and the Petition for Review filed on April 24, 2006 fell
Both parues sought the partial reco nsideration of the Court a quo's Decision
promulgated on March 16, 2010. In a Resolution' dated August 27, 2010, the Court a
quo pronounced that it found no cogent reason to disturb, reverse or modify aforesaid
Detision, thus, Panay Power Company's Mo tion for Partial Reconsideration (of D ecision
dated 16 March 201 0) and the Commissioner of Internal Revenue's Mo tion for Partial
Panay Power Company to file its comment within ten (10) days from receipt o f
resolution. Respond ent's Comment O n Petitioners Petitio n for Review was received by
O n November 17, 2010, the parties were ordered to submit their res pective
Memoranda within a non-extendible period of thirty (30) days from receipt thereof./,--
Respo ndent submitted its Mem orandum 1' o n D ecember 22, 2010, whereas petitio ner's
Mem orandum 7 was received by this Court o n February 2, 2011. T he case was submitted
ISSUES
Whether the Court a quo erred in partially granting respo ndent's claim for refund
or issuance o f a tax credit certifica te o f its unutilized inpu t VAT for taxable year 2004 o n
the following ground s, to wit: [i] respondent's failure to submit with the petitio ner all the
necessary documents relevant to its claim during the administrative stage o f its claim for
refund or tax credit; and [ii] respo nd ent's failure to prove compliance with the invoicing
requiremen ts m entioned in Sectio ns 110 and 113 o f the Na tio nal Internal Revenue Code
Argumen ts of P e ti tion er
P etitio ner submits that respondent is not entitled to refund or tax creclit even in
input tax because it failed to submit with petitio ner all the necessary and relevant
Accorcling to petitioner, respo ndent failed to prove before this Court during trial
that it complied with or submitted all necessary and evidentiary documents to support its
administrative applicatio n for refund or tax creclit o f excess input VAT before resorting
to juclicial review o f its claim for refund or tax creclit. While it is true that respo ndent
filed an administrative claim for refund, the same is co nsidered m erely pro forma as it
be submitted in claims for VAT refund pursuant to Revenue Memorandum Order No.
53-98.
Further, petitioner avers that respondent failed to prove that it has complied with
the invoicing requirements mentioned in Sections 110 and 113 of the NIRC of 1997, as
Arguments ofRespondent
allegations, ?Jiz : [1] a new issue cannot be raised for the first time on appeal; and [2]
respondent was constrained to ftle the Petition for Review due to petitioner's inaction to
f'z'rst, respondent points out that the Joint Stipulation of Facts and Issues
approved on October 25, 2006, does not contain the issue being raised by petitioner in
this petition; and that petitioner has not even mentioned the issue on mpondent'sfailure to
submit with the BIR documents to sttpport its admimstrati?Je claim in her Answer filed on June 1,
2006. Citing Rizal Commercial Banking Corporation IJJ. CJR, G.R No. 168498, Apri/24, 2007,
respondent reasoned that said issue cannot anymore be raised as "points of law, theories,
issues and arguments not adequately brought to the attention of the lower court will not
be ordinarily considered by a reviewing court as they cannot be raised for the first time
on appeal, much more in a motion for reconsideration as in this case, because this would
be offensive to the basic rules of fair play, justice and due process." Also, respondent
argues that petitioner has given only general allegations that respondent has submitted
insufficient evidence and did not comply with invoicing requirements; such allegations,
having been raised for the first time and without specification on the insufficiency of the V
DECISION
CTA E B CASE N o. 683 (CT,\ Case No. 7468)
Commtssioner ~/ Internal Revenue vJ. Panay Po/.ller Company Page 8 of 14
documents o f resp o ndent, are baseless claims which lack sa tisfa ctory explanatio n as to
Second, respo ndent asseverates that: it was co nstrained to file the instant petitio n
o n A pril 24, 2006, in accordance with Sectio n 11 2 o f the T ax Code and RMC 61 -2005,
due to petitioner's inaction o n its administrative claim; if respo nd ent indeed failed to
submit co mplete do cumentary evidence, petitioner could have easily rendered a decisio n
To buttress its defense, respo nd ent made reference to CIR IJS. Cebu Geothermal
Power Comparry, Inc. 9 where this Court ruled that 'while the submission o f complete
supporting do cuments is necessary for the granting o f a refund or tax credit certificate,
the afore-qu o ted provisio n does not state that the no n-submissio n o f the supp osed
complete documents m akes the administrative claim for refund o r tax credit certificate
invalid or pro forma, the effect of which makes the judicial appeal dismissible for lack o f
jurisdictio n'. Respo nd ent likewise cited the ruling o f this Court in the case o f CJR IJS. San
Roque Power Corporation 10 where We held tha t ' the alleged no n-submissio n of complete
do cuments at the administrative level will not bar this Court from receiving evidence,
evaluating and appreciating its m ateriality, relevancy, probative value and sufficiency
concerning the San Ro que P ower Corp oratio n' s claim for refund considering that the
C IR failed to state and identify what documents did San Roque P ower Corporation fail
to submit in o rder to warrant their denial. T he C IR ought to know that mere allega tion is
no t evidence. Thus, m ere allega tio n in the to tal absence o f evidence is just that - an
and judicial clairns for VAT refund or tax credit can proceed simultaneou sly under
Revenue Memorandum Circular No. 49 -03. T hus, petitioner may still evaluate and act
on respondent's administrative claim for refund or tax credit even if a Petition for
The groundwork o f the instant petition is principally lodged on the allegation that
respondent failed to prove before this Court that it complied with or submitted all
necessary and evidentiary documents to support its administrative application for refund
or tax credit of excess input VAT in the amount of P14,526,563.31 with petitioner before
resorting to judicial review pursuant to Section 112 (C) of the N IRC of 1997, as amended.
We quote:
In case of full or partial denial of the claim for tax refund or credit, or
the failure on the part of the Commissioner to act on the application within
period prescribed above, the taxpayer affected may, within thirty (30) days from
the receipt of the decision denying the claim or after the expiration of the one
hundred twenty-day period, appeal the decision or the unacted claim with the
Court of Tax Appeals. (Italics Supplied)
Pursuant to the aforequoted Section 112 (C) of the NIRC of 1997, as amended,
the Commissioner of Internal Revenue (CIR) has 120 days from the submission of the
complete supporting documents to decide the claim for refund. T hus, a taxpayer must l--
DECISION
CTA EB CASE o. 683 (CTA. Case No. 7468)
Commissioner of Internal Revenue vs. Panqy Power Company Page 10 of 14
first submit the complete supporting documents before the 120-day period should
co mmence.
A careful scruuny o f the records reveal that resp o nden t indeed submitted
necessary and evidentiary do cumen ts to support its administrative application for re fund
or tax credit o f excess input VAT. In the instan t case, respo ndent flied o n D ecember 21,
2005 its administrative claim for refund or issuance o f tax credit certificate, it is apparent
that respo ndent, up o n the filing o f its judicial claim, simultaneously submitted the
A fter going over the record s of this case, We find that there's nothing on record
which shows that petitio ner notified / required respo nden t to submit an y additio nal
documents other than those already submitted for considera tio n in the administrative
level. T hus, the running o f the 120-day perio d co mmenced and continued to run from
the date respo nden t flied its administrative applicatio n together with the supporting
documents, i.e., D ecember 21, 2005 up to April 20, 2006, as the running o f the said
To reiterate, the records o f this case belie petitio ner's allega tio ns as herein
respo nd ent was able to attach toge ther with its administrative applica tio n for refund or/.--
DECISION
CTA EB CASE N o. 683 (CTA. Ca se N o. 7468)
Commzssioner of Internal Revenue v.r. Panqy Po1.11er Company Page 11 of14
tax credit the relevant supp orting documents, i.e., Articles o f Incorporatio n, E RC
Registratio n and Co mpliance Certificate, VAT Registratio n Certifica te, Q uarterly VAT
Returns for 2004, Summary Input Tax Paym ents for 2004, supp orting VAT invoices and
o fficial receipts, Applica tio n for Zero Rate fo r the year 2004. Furth er, the instant
petitio n is in fac t dearth o f evidence which could prove / show that respo nd en t failed to
submit complete documents to support its administrative claim for refund / tax credit.
Considering that CIR failed to identify or point out and prove to this Court the specific
documents which were not submitted, petitioner's argumen ts clearly sta nd on mere
allegatio ns, which run counter to the evidence on record, petitioner prays for this Court
to reverse and se t aside the DedJion and ReJo!ution which were tedio usly evaluated and
prudently decided by the Special First D ivision. Such is a dangerous proposition, and
Settled is the rule in this jurisdiction that the alleged non-submission of complete
documents at the administrative level will not bar this Court fro m receiving evidence,
evaluating and appreciating its materiality, relevancy, probative value and sufficiency
concerning th e respo ndent's claim for refund co nsidering that the CIR failed to state and
identify w hat d ocuments respond ent failed to submit in order to warrant their denial.
T he CIR ough t to know that mere allegatio n is not evidence. T hus. m ere allegatio n in
the to tal absence of evidence is just that - an allega tion - underserving of credence. 11
Mere allegatio ns without adducing documentary evidence are no t sufficien t. A llega tio n is
11 Commissioner oj"Internal lvvenue vs. San Roque P01ver Corporation, CTA E B Case No. 523, ,\ pril 15, 2010 citing
l ndustn.a/ T ex tile Mamifacturing Co. oj"the Phils. Im·. vs. LPJ E nt. Inc, G .R. N o. 66 140; January 31, 1993, 217
SCRA 322.
12 E rnesto M artin VJ". H on. Court qfAppeals and Manila Eledric Company, G.R. N o. 82248, January 30, 1992.
DECISION
CTA EB C\SE No. 683 (CTA Case No. 7468)
Commissioner of Internal &venue vs. Panqy Power Company Page 12 of 14
In view of the foregoing, it would not be amiss to conclude that the reckoning of
the 120-day period under Section 112 (C) of the NIRC, as amended, commenced
simultaneously with the filing of petitioner's administrative claim on December 21, 2005.
Thus, respondent timely flied its appeal by way of a Petition for Review in CT A Case No.
7468 on April 24, 2006, as the same was flied well within the 30-day period after the
lapse of the 120-day period under Section 112 (C) of the NIRC, as amended.
'In a VAT refund case such as the prese nt case, the alleged non-submission of
complete documents at the administrative level is not fatal to a claim for refund in the
judicial level as held in several CTA En Bane cases, one of which is CommiSJioner if Internal
Revenue tJJ. CE Luzon Geothermal Power Compmry, Inc. It will not bar the CTA from
receiving, evaluating and appreciating evidence submitted before it. Once the claim for
refund has been elevated to the CTA, the admissibility, materiality, relevancy, probative
value and weight of evidence presented therein become subject to the Rules of Court.
The question of whether or not the evidence submitted by a party is sufficient to warrant
the granting of a claim for refund lies within the sound discretion and judgment of the
to prove compliance with the invoicing requirements mentioned in Sections 110 and 113
In the challenged Deasion and ReJolution, the Court a quo ruled that respondent
was able to present o fficial receipts and invoices which were reviewed and found to have£--
13 Commissioner of Internal &venue vs. Toledo Power Company, CT,-\ EB Case No . 589, January 12, 2011 citing
Consolidated Cases of CE Luzon Geothermal Power Company, Inc. vs. Commissioner of Internal &venue, CT A EB
No. 553 and Commissioner of Internal &venue vs. CE Luzon Geothermal POJJJer Company, Inc., CTA EB No. 554,
July 20, 2010, CommiJJioner of Internal &venue vs. San Roque Power Corporation, CTA EB No . 523, ,-\pril 15,
2010; CTA EB No . 474, September 1, 2009; Commis.rioner ~~Internal &venue vs. Visqyas Geothermal Power
Company, Inc., CTA EB Case No. 282 (CL\ Case Nos. 6790 & 6838), November 20, 2007, citing jiduo
Manifacturing Corporation vs. Commissioner of Internal Revenue, CT,-\ Case No. 6552, Sep tember 16, 2004.
DECISION
CTA EB CASE N o. 683 (CTA Case No. 7468)
Commissioner of Internal Revenue vs. Panqy Power Company Page 13 of 14
properly sub stantiated the am ount of claim gran ted in the subj ect DetiJion. Furth er, the
allegations in this Petition for Review concerning no n-co mpliance with the invoicing
requirem ents are m ere rehash of the allegatio ns in the Mo tio n for Reconsidera tio n which
were passed upo n, cliscussed and co nsidered in the assailed DetiJion and ReJolution. It is
significant to note that co nclusions and finclings of fact by the trial court are entitled to
great weigh t o n appeal and should no t be disturb ed unless for stro ng and cogent reasons
because the trial court is in a better position to examine real evidence, as well as to
observe the dem eanor o f the witnesses w hile tes tifying in the case. 14
In fin e, the Court E n Bane find s no cogent reaso n to clisturb the fmclings and
conclusio n in the assailed DetiJion and ReJolution of the Court' s Special Firs t Division,
DISMISSED for lac k o f merit. Accorclingly, the assailed DeciJion dated March 16, 2010
and ReJolution d ated A ugust 27, 2010 in CTA Case No. 7468 are hereby AFFIRMED.
,d4,/.~~
SO ORDERED.
AMELIA R. COTANGCO-MANALASTAS
Associate J ustice
WE CONCUR:
IL_x""' . a -..1'-
ERNEsro D. ACOSTA
Presicling Justice
Ck~ c .~ ,O.
JTfANITO C. CASTANEDA,1R.
Associate Justice
l .J Spouses Patricio and My rna Bernales v. I-/eirs ojj ulian Sambaan, eta/. , G. R No. 16327 1, January 15,2010.
D ECIS ION
CT:\ EB CASE No. 683 (CT.-\ Case No. 7468)
Commissioner of Internal Revenue vs. Pantry Power Compa1ry Page 14 of 14
~- ~
OLGA PALANCA-ENR~UEZ
Associate Justice
~ ~.M~~ .. G~
CIELITO N . MINDARO-GRULLA
Associate Justice
CERTIFICATION
Pursuan t to Sectio n 13, Article VIII o f the Constitution , it is hereby certified that
the conclusio ns in the above D ecision were reached in consultatio n with the m embers of
the Court En Bane be fo re the case was assigned to the writer o f the opinio n of the Court.
\...__...~ Q.......,.c-.
ERNESTO D. ACOSTA
Presiding J us tice