295 Mass. 489 | Mass. | 1936
This is an appeal by the assessors of the city of Boston from a decision of the board of tax appeals grant
The taxpayer on April 1, 1934, was the owner of real estate in the city of Boston and, in December, 1934, was assessed a tax thereon in the amount of $13,801.20. The tax has not been paid. The taxpayer on December 31, 1934, filed with the assessors a document referred to in the findings of fact as an “application for abatement,” and on March 6, 1935, “the assessors denied the application and gave the . . . [taxpayer] written notice of their decision.” The taxpayer seasonably appealed to the board of tax appeals. The board, after hearing, granted an abatement of the full amount of the tax assessed. From this decision the assessors appealed to this court.
The taxpayer contends that it was exempt from taxation on its real estate as a literary and educational institution under G. L. (Ter. Ed.) c. 59, § 5, cl. 3. The assessors, while contending that the taxpayer was not so exempt, make the preliminary contention that the board of tax appeals was without jurisdiction to grant the abatement because of the failure of the taxpayer to make an application for abatement as required by law. The taxpayer urges that this preliminary contention is not open on this record, but, if open, is without merit.
The assessors’ preliminary contention is open on this record and must be sustained.
The record on this appeal, in accordance with the provisions of G. L. (Ter. Ed.) c. 58A, § 13, in the amended form appearing in § 7 of St. 1933, c. 321, includes, with copies of other papers, copies of “the application for abatement or other petition filed . . . with the board of assessors and the decision or determination thereon, the petition upon appeal to the board, the answer to the petition . . . the report and findings of the board including any opinions filed . . . the claim of appeal to the.supreme judicial court” and a copy of the “official report of the proceedings before the board,” containing all the evidence before it. No “other
G. L. (Ter. Ed.) c. 59, § 59, in the amended form appearing in § 1 of St. 1933, c. 266, in force during the period in question, provided that "A person aggrieved by the taxes assessed upon him may . . . apply in writing to the assessors, on a form approved by the commissioner [that is, the commissioner of corporations and taxation] for an abatement thereof; and if they find him taxed at more than his just proportion, or upon an assessment of any of his property in excess of its fair cash value, they shall make a reasonable abatement.” G. L. (Ter. Ed.) c. 59, § 65, in the amended form appearing in § 1 of St. 1933, c. 167, provides that “A person aggrieved as aforesaid [that is "by the refusal of assessors to abate a tax,” see G. L. (Ter. Ed.) c. 59, § 64, as amended by St. 1933, c. 130, § 1] may, instead of pursuing the remedy provided in section sixty-four [an appeal to the county commissioners], but subject to the same conditions, appeal to the board of tax appeals by filing a petition with such board .... Such appeal shall be heard and determined by said board in the manner provided by chapter fifty-eight A.” See also G. L. (Ter. Ed.), c. 58A, § 6, as amended by St. 1933, c. 167, § 4.
Since the remedy by abatement is created by statute the board of tax appeals has no jurisdiction to entertain proceedings for relief by abatement begun at a later time or prosecfited in a different manner than is prescribed by the statute. International Paper Co. v. Commonwealth, 232 Mass. 7, 10. See also Wheatland v. Boston, 202 Mass. 258; Cheney v. Dover, 205 Mass. 501, 503. Bogigian v. Commissioner of Corporations & Taxation, 248 Mass. 545. And the board of tax appeals has no jurisdiction on appeal from the assessors to abate a tax which the assessors had no jurisdiction to abate. A person refused an abatement of a tax by assessors who were without jurisdiction to abate such tax is not a "person aggrieved” by such refusal. Otis Co. v. Ware, 8 Gray, 509, 510. Charlestown v. County Commissioners, 101 Mass. 87, 90. Central National Bank
The statutes in force before St. 1933, c. 266, § 1, took effect, though providing that an aggrieved taxpayer might “apply to the assessors for an abatement” of a tax within a fixed time, contained no express requirements that the application for abatement be in writing. See R. L. c. 12, § 73; G. L. (Ter. Ed.) c. 59, § 59. And it was decided that an oral application was sufficient. Page v. Melrose, 186 Mass. 361, 363-364. See also Shawmut Mills v. Board of Assessors, 271 Mass. 358, 360-361. It follows, however, from the terms of the governing statutes and the necessary implications of the decisions thereunder that a seasonable application in some form was essential to jurisdiction of the assessors and of appellate tribunals of a proceeding to abate a tax. Such an application was a constituent part of the statutory remedy by abatement, though obviously not essential to other remedies for illegal taxation. See Wynn v. Board of Assessors, 281 Mass. 245, 248-249. A limited grant of power to abate a tax is no less effective to exclude from the jurisdiction of the assessors and appellate tribunals a case not within the terms of the grant than is a positive prohibition against abatement such, for example, as is applicable where a list required by statute has not been brought in. See Sears v. Nahant, 205 Mass. 558; Tremont & Suffolk Mills v. Lowell, 271 Mass. 1, 7. Compare Dunham v. Lowell, 200 Mass. 468, 469; Bogigian v. Commissioner of Corporations & Taxation, 248 Mass. 545.
By St. 1933, c. 266, § 1, amending G. L. (Ter. Ed.) c. 59, § 59, by substituting a new section therefor, the form of application to assessors for abatement was prescribed. Clearly there was an intention to change the law. Apparently the change was for the purpose of correcting what the Legislature deemed to be a mischief in the less formal procedure previously prescribed. It is not for us to decide whether such change was advisable. Full effect must be given thereto. There is nothing in the statute to indicate that the new provision in respect to the form of applications
The question of jurisdiction of the board of tax appeals — which turns on the issue whether an application to the assessors for abatement was made as required by law — is open for our consideration. The board found that “An application for abatement, dated December 31, 1934, was filed with the assessors the same day,” and that the “application for abatement was typewritten on a plain sheet of
Consent or waiver by the parties cannot confer upon a court or administrative tribunal jurisdiction over a cause which is not vested therein by the law. It is the duty of an appellate court to consider on its own motion whether a cause was within the jurisdiction of the court or tribunal from which the appeal was taken. Santom v. Ballard, 133 Mass. 464. Levangie’s Case, 228 Mass. 213, 216-217. Eaton v. Eaton, 233 Mass. 351, 364, and cases cited. And the question of jurisdiction of a cause can be raised by the parties at any stage of the proceedings. Cheney v. Boston & Maine Railroad, 227 Mass. 336, 337-338. Morse v. O’Hara, 247 Mass. 183, 185. Lonergan v. American Railway Express Co. 250 Mass. 30, 40. These principles are applicable to the present case unless, as the taxpayer contends, consideration by this court of the question of juris
The burden of establishing facts essential to the jurisdiction of the board of tax appeals was on the taxpayer who took the appeal from the decision of the board of assessors. See Winnisimmet Co. v. Chelsea, 6 Cush. 477, 479, 481; Page v. Melrose, 186 Mass. 361, 363, 364; Central National Bank v. Lynn, 259 Mass. 1. The taxpayer has not established the fact, essential to jurisdiction, that it applied to the assessors for abatement of the tax in question “in writing ... on a form approved by . the commissioner.” The finding of the board that an “application for abatement . . . was filed with the assessors,” considered in connection with the subsidiary findings and the copy of the so called application included in the record, does not import that the so called application conformed to this requirement. We assume without decision that the document filed with the assessors was an application for
Furthermore, the taxpayer has not shown that the board of tax appeals had jurisdiction of this proceeding on the ground that the requirement of an application to the assessors “on a form approved by the commissioner” was waived or excused. The allegations of the taxpayer on these points in its petition to the board of tax appeals — which with other allegations are contained in paragraph 6 of the petition — are these: “No forms existing for exemption of said taxes it therefore applied by informal petition as specified by the said appellees and including a sufficient description of the particular real estate as to which abatements are requested.” As already stated, the assessors could not waive the requirement of an application “on a form approved by the commissioner” as a prerequisite to jurisdiction of the board of tax appeals. Consequently it is unnecessary to discuss the evidence bearing on the question of waiver. Moreover, there was no finding or evidence warranting a finding that no “form approved by the commissioner” was available to the taxpayer. Nor was there any admission to this effect by the assessors. Paragraph 6
The ground upon which this decision rests is that the Legislature by the enactment of the governing statute has restricted the authority of assessors to making abatements upon the terms there stated and upon those terms only. Authority is conferred on assessors to make a “reasonable abatement” if 'application therefor was made “in writing to the assessors on a form approved by the commissioner.” Neither expressly nor by fair implication is authority conferred on assessors or on the board of tax appeals to abate a tax if no such application was made. This court cannot enlarge the authority conferred by the Legislature on the assessors or on the board of tax appeals. In the opinion of a majority of the court, the requirement of an application for abatement in the prescribed form is jurisdictional and, since it does not appear that such an application was made by this taxpayer, its appeal to the board of tax appeals should have been dismissed by the board for want of jurisdiction. Such want of jurisdiction of the board, however, does not preclude this court from taking cognizance of this appeal from the board for the purpose of reviewing its action in taking jurisdiction of the proceeding. See Elder
The decision of the board of tax appeals is reversed and the appeal of the taxpayer to the board from the assessors is dismissed.
So ordered.