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You are here: BAILII >> Databases >> First-tier Tribunal (Tax) >> Applied Nutrition Ltd v Revenue and Customs (CUSTOMS DUTY AND VAT - strike out application by HMRC - importation of maltodextrin - HMRC decision to give it a commodity code under Ch 17 of the Tariff - appeal on grounds it contains no sugar and should be classified under Ch 19 - decision appealable - tribunal jurisdiction - reasonable prospect of success? - only if sugar content is less than 10% - appeal struck out but suspended pending chemical analysis - directions given) [2025] UKFTT 97 (TC) (03 February 2025) URL: http://www.bailii.org/uk/cases/UKFTT/TC/2025/TC09423.html Cite as: [2025] UKFTT 97 (TC) |
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Appeal reference: TC/2023/08792 |
TAX CHAMBER
Judgment Date: 3 February 2025 |
B e f o r e :
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APPLIED NUTRITION LIMITED |
Appellant |
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- and - |
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THE COMMISSIONERS FOR HIS MAJESTY'S REVENUE AND CUSTOMS |
Respondents |
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For the Appellant: Joe Pollard director of the Appellant
For the Respondents: Esther Hickey litigator of HM Revenue and Customs' Solicitor's Office
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Crown Copyright ©
CUSTOMS DUTY AND VAT – strike out application by HMRC – importation of maltodextrin – HMRC decision to give it a commodity code under Chapter 17 of the Tariff – appeal on grounds it contains no sugar and should be classified under Chapter 19 – decision appealable – tribunal jurisdiction? Yes – reasonable prospect of success? – only if sugar content is less than 10% – appeal struck out but suspended pending chemical analysis – directions given
INTRODUCTION
THE LAW
(1) For the purposes of determining the commodity codes within which goods most appropriately fall, the rules of interpretation contained in the following have effect—
(a) Part Two (Goods Classification Table Rules of Interpretation) of the Tariff of the United Kingdom; and
(b) notes to a section or chapter of the Goods Classification Table".
"For the purposes of heading 35 05, the term 'dextrins' means starch degradation products with a reducing sugar content, expressed as dextrose on the dry substance, not exceeding 10%. Such products with a reducing sugar content exceeding 10% fall in heading 1702".
"Malt extract; food preparations of flour, groats, meal, starch or malt extract, not containing cocoa or containing less than 40 % by weight of cocoa calculated on a totally defatted basis, not elsewhere specified or included; food preparations of goods of headings 0401 to 0404, not containing cocoa or containing less than 5 % by weight of cocoa calculated on a totally defatted basis, not elsewhere specified or included".
"Malto-dextrins (or dextri-maltoses), obtained by the same process as commercial glucose. They contain maltose and polysaccharides in variable proportions. However, they are less hydrolysed and therefore have a lower reducing sugar content than commercial glucose. The heading covers only such products with a reducing sugar content, expressed as dextrose on the dry substance, exceeding 10 % (but less than 20 %). Those with a reducing sugar content not exceeding 10 % fall in heading 35.05. Malto-dextrins are generally in the form of white powders, but they are also marketed in the form of a syrup (see Part (B)). They are used chiefly in the manufacture of baby food and low-calory dietetic foods, as extenders for flavouring substances or food colouring agents, and in the pharmaceutical industry as carriers".
THE EVIDENCE AND THE FACTS
(1) The appellant imported maltodextrin on 9 occasions between 5 May 2020 and 22 December 2022 under commodity code 17 02 90 95 00. This code has a duty rate of £0.3 per 100 kg/% saccharide. Prior to 1 January 2021 the rate was €0.4/100 kg/% saccharide.
(2) In February 2023, HMRC requested relevant paperwork to carry out post clearance checks on these imports. The appellant provided the relevant documentation.
(3) HMRC concluded, based on this information, that the imported product fell under commodity code 17 02 90 50 00 covering "maltodextrine and maltodextrine syrup".
(4) In a letter dated 14 April 2023, Grant Thornton LLP, acting on behalf of the appellant, said this:
"We have looked at the ATR decisions that you are provided, one of which is quoted as "Maltodextrin with High DE. The product is a scentless, white powder-polysaccharides, oligosaccharides. It has a dextrose equivalent minimum of 15% and maximum of 20%. The product is within bags made of Laminated polypropylene food grades".
Whilst we agree that the products fit into the correct dextrose equivalent range, our argument for the goods to be classified within 17 0290 9500 centres around the fact product is a dextrin and not a maltodextrin as described in the tariff….".
(5) On 3 May 2023 a decision letter was issued to the appellant as were the post clearance demands. In HMRC's view, the product should have been classified under code 17 02 90 50 00, and were therefore subject to a duty rate of £16/100 kg (pre-1 January 2021 this was €20/100kg. They assessed the appellant to customs duty and import VAT of £91,305.61.
(6) On 9 May 2023, Grant Thornton LLP, on behalf of the appellant, requested a statutory review.
(7) The statutory review upheld the decision that the product should have been classified under 17 02 90 50 00, and revised the amount due by reducing it by 8p.
(8) On 29 June 2023 the appellant filed a notice of appeal with the tribunal.
(9) In its grounds of appeal, the appellant states that:
"Maltodextrin should not fall under the 1702 heading, due to not being sugar and being a starch product. This is the reason why we initially opted for a commodity code within the same chapter as 1702905000 'Maltodextrin', but one which stated 'other' as we did not believe our product satisfied the conditions set out in the 1702 heading description.
After receiving the RTBH and further investigating this product, we now understand that the product should not have been classified within the 'sugar and sugar confectionery' heading at all.
Our argument is that specifically Maltodextrin should not fall into chapter 17 as it does not satisfy the 2 digit heading title in itself 'Sugar and sugar confectionery'.
We accept that we describe the product as 'Maltodextrin' or 'Sugar Free Maltodextrin' on our commercial documents, specifically on our invoices. This does not change the fact that our Maltodextrin does not fit into chapter 17, due to Maltodextrin having a low DE account and it should as such be classified as a starch (and not a sugar) …
Based on the above, we now understand that our product should not fall within the 1702 chapter and should be classified under commodity code 1901 1909 990 as it is a starch and not a sugar.
It does not make any logical sense for this product to fall into chapter 17 'Sugar and sugar confectionery' as it does not contain any sugar".
DISCUSSION
Submissions
(1) Maltodextrin is listed specifically in the subheading within Chapter 17 of the Tariff. Accordingly, in accordance with the interpretation provisions in the GIR's and the Explanatory Notes, the correct commodity code is that which HMRC have now confirmed to the appellant, namely 17 02 90 50 00.
(2) The Chapter notes to Chapter 35, which are legally binding, specifically state that products with a reducing sugar content exceeding 10%, fall within heading 1702. Grant Thornton, on behalf of the appellant, have admitted that the maltodextrin imported by the appellant had a sugar content exceeding 10%.
(3) Although there is nothing specifically excluding maltodextrin from being included within Chapter 19, it is evident there is no need for any specific exclusion given that maltodextrin is specifically identified within Chapter 17.
(4) Furthermore, the notes in Chapter 19 at 1901, which deal with starch or malt extract, are subject to the provision that they are "not elsewhere specified or included". And maltodextrin is specified or included within the Chapter notes in Chapter 35 and, more importantly, as a specific subheading in Chapter 17.
(5) In asking the tribunal to classify the maltodextrin under Chapter 19, the appellant is asking me to interpret primary legislation in a way which is contrary to the clear intention of Parliament and is tantamount to rewriting the legislation. I have no judicial review power, and if the appellant considers that the legislation is something which could be challenged by way of judicial review, then he must bring that challenge in the High Court.
(6) Furthermore, if the tribunal does have jurisdiction, then the appellant's challenge has no reasonable prospects of success in light of the admission by Grant Thornton that the maltodextrin had a sugar content (or dextrose equivalent ("DE")) of between 15% and 20%.
(1) Maltodextrin is a starch and not a sugar by any accepted standards. It is a polysaccharide. This is borne out by a considerable body of authoritative literature. It has a very low DE which justifies its categorisation as a starch.
(2) Chapter 17 and Chapter 35 both deal with sugars. Maltodextrin, not being sugar, cannot be categorised within either Chapter. This is notwithstanding that it is identified in Chapter 17, and the appellant describes the product as maltodextrin in its commercial documents, in particular invoices presented to the appellant by its supplier.
(3) Maltodextrin is most appropriately categorised in Chapter 19 which deals with starches. There is nothing in Chapter 19 which prohibits it being classified within that Chapter.
(4) It is not certain where the admission that the maltodextrin has a sugar content of between 15% and 20%, came from. If this matter was to further, he would have the product chemically analysed.
My view
DECISION AND DIRECTIONS
RIGHT TO APPLY FOR PERMISSION TO APPEAL
STRIKE OUT
The F-tT Rules
Rule 2(3) requires us to give effect to the over-riding objective when exercising any power under the Rules. The overriding objective, as set out in Rule 2(1), is as follows:
"The overriding objective of these Rules is to enable the Tribunal to deal with cases fairly and justly".
Rule 8 deals with strike out:
"8. Striking out a party's case
(1) …
(2) The Tribunal must strike out the whole or a part of the proceedings if the Tribunal—
(a) does not have jurisdiction in relation to the proceedings or that part of them;…
(3) The Tribunal may strike out the whole or a part of the proceedings if—
(a) the appellant has failed to comply with a direction which stated that failure by the appellant to comply with the direction could lead to the striking out of the proceedings or part of them;
(b) the appellant has failed to co-operate with the Tribunal to such an extent that the Tribunal cannot deal with the proceedings fairly and justly; or
(c) the Tribunal considers there is no reasonable prospect of the appellant's case, or part of it, succeeding.
(4) The Tribunal may not strike out the whole or a part of the proceedings under paragraphs (2) or (3)(b) or (c) without first giving the appellant an opportunity to make representations in relation to the proposed striking out…".
Case law
"Approach to applications to strike out - legal principles
31 At [30] of the decision, the judge applied the summary of principles set out by the Upper Tribunal in HMRC v Fairford Group plc [2014] UKUT 329; [2015] STC 156 ('Fairford Group plc'). The Upper Tribunal held (at [41]) that:
"In our judgment an application to strike out in the FTT under r 8(3)(c) should be considered in a similar way to an application under CPR 3.4 in civil proceedings (whilst recognising that there is no equivalent jurisdiction in the FTT Rules to summary judgment under Pt 24). The tribunal must consider whether there is a realistic, as opposed to a fanciful (in the sense of it being entirely without substance), prospect of succeeding on the issue at a full hearing, see Swain v Hillman [2001] 1 All ER 91 and Three Rivers [2000] 3 All ER 1 at [95], [2003] 2 AC 1 per Lord Hope of Craighead. A 'realistic' prospect of success is one that carries some degree of conviction and not one that is merely arguable, see ED & F Man Liquid Products Ltd v Patel [2003] EWCA Civ 472, [2003] 24 LS Gaz R 37. The tribunal must avoid conducting a 'mini-trial'. As Lord Hope observed in Three Rivers, the strike-out procedure is to deal with cases that are not fit for a full hearing at all".
32. It was common ground that the application should be considered in a similar way to an application under CPR 3.4 in civil proceedings (whilst recognising that there is no equivalent jurisdiction in the FTT Rules to summary judgment under Part 24).
33. Although the summary in Fairford Group Plc is very helpful, we prefer to apply the more detailed statement of principles in respect of application for summary judgment set out by Lewison J, as he then was, in Easyair Ltd (t/a Openair) v Opal Telecom Ltd [2009] EWHC 339 (Ch) at [15]. This was subsequently approved by the Court of Appeal in AC Ward & Sons v Caitlin Five Limited [2009] EWCA Civ 1098. The parties to this appeal did not suggest that any of these principles were inapplicable to strike out applications.
"i) The court must consider whether the claimant has a 'realistic' as opposed to a fanciful prospect of success: Swain v Hillman [2001] 1 All ER 9;
ii) A 'realistic' claim is one that carries some degree of conviction. This means a claim that is more than merely arguable: ED & F Man Liquid Products v Patel [2003] EWCA Civ 472 at [8];
iii) In reaching its conclusion the court must not conduct a 'mini-trial': Swain v Hillman;
iv) This does not mean that the court must take at face value and without analysis everything that a claimant says in his statements before the court. In some cases it may be clear that there is no real substance in factual assertions made, particularly if contradicted by contemporaneous documents: ED & F Man Liquid Products v Patel at [10];
v) However, in reaching its conclusion the court must take into account not only the evidence actually placed before it on the application for summary judgment, but also the evidence that can reasonably be expected to be available at trial: Royal Brompton Hospital NHS Trust v Hammond (No 5) [2001] EWCA Civ 550;
vi) Although a case may turn out at trial not to be really complicated, it does not follow that it should be decided without the fuller investigation into the facts at trial than is possible or permissible on summary judgment. Thus the court should hesitate about making a final decision without a trial, even where there is no obvious conflict of fact at the time of the application, where reasonable grounds exist for believing that a fuller investigation into the facts of the case would add to or alter the evidence available to a trial judge and so affect the outcome of the case: Doncaster Pharmaceuticals Group Ltd v Bolton Pharmaceutical Co 100 Ltd [2007] FSR 63;
vii) On the other hand it is not uncommon for an application under Part 24 to give rise to a short point of law or construction and, if the court is satisfied that it has before it all the evidence necessary for the proper determination of the question and that the parties have had an adequate opportunity to address it in argument, it should grasp the nettle and decide it. The reason is quite simple: if the respondent's case is bad in law, he will in truth have no real prospect of succeeding on his claim or successfully defending the claim against him, as the case may be. Similarly, if the applicant's case is bad in law, the sooner that is determined, the better. If it is possible to show by evidence that although material in the form of documents or oral evidence that would put the documents in another light is not currently before the court, such material is likely to exist and can be expected to be available at trial, it would be wrong to give summary judgment because there would be a real, as opposed to a fanciful, prospect of success. However, it is not enough simply to argue that the case should be allowed to go to trial because something may turn up which would have a bearing on the question of construction: ICI Chemicals & Polymers Ltd v TTE Training Ltd [2007] EWCA Civ 725"".