Holding

A finding of mens rea is a condition precedent for imposing penalty under Section 10(b) read with Section 10A of the Central Sales Tax Act, 1956.

Summary

The dealers, M/s Sanjiv Fabrics, were registered under the Central Sales Tax Act, 1956 and authorized to issue Form ‘C’ for importing cotton and cotton yarn. They used Form ‘C’ to import cotton waste, polythene, sutli and tat, which were not covered by their registration certificate. The revenue levied penalties under Section 10(b) read with Section 10A, alleging false representation. The dealers contended they acted in good faith, believing cotton included cotton waste and that the department had previously issued Form ‘C’ without objection. The Supreme Court examined whether mens rea is an essential ingredient for penalty under the cited provisions and held that the phrase “falsely represents” requires a deliberate, knowing misrepresentation; thus the burden lies on the revenue to prove mens rea. Consequently, the Court allowed the appeals, set aside the High Court judgments and remitted the matters to the adjudicating authority for fresh consideration of penalty, without ordering costs.

Issues considered

The requirement of mens rea as an essential element for levying penalty under Section 10(b) read with Section 10A of the Central Sales Tax Act, 1956.
Whether the dealers made a false representation knowingly or merely an erroneous belief, i.e., whether the expression “falsely represents” includes innocent mistakes.

Legislation cited

Central Sales Tax Act, 1956s. 10, s. 10A, s. 7(2)

Subjects

Central Sales TaxPenaltyMens reaFalse representationSection 10(b)Section 10AStatutory interpretationTax law

Judgment

(2010] 8 S.C.R. 627

COMMISSIONER OF SALES TAX, U.P. A
V.
M/S. SANJIV FABRICS
(Civil Appeal Nos.2344-2347 of 2004)
SEPTEMBER 10, 2010
B
[D.K. JAIN AND H.L. DATTU, JJ.]

Central Sales Tax Act, 1956: s. 1O(b) r. w. s. 1OA - Misuse
of registration certificate - Using Form 'C' for purchase of
commodities not covered by certificates of registration - Levy C
of penalty - Essential ingredient for - Held. Existence of
mens rea is an essential ingredient for the levy of penalty JJ/
s. 1O(b) r. w. s. 1OA - The use of the expression "falsely
represents" in s.10(b) indicates that the offence thereunder
comes into existence only if the dealer acts deliberately in D
defiance of law or is guilty of contumacious or dishonest
conduct - For levy of penalty u/s. 10A, burden is on the
revenue to prove the existence of circumstances constituting
the offence uls.10(b) - On facts, the explanation by dealers
that they were under bonafide belief that the commodities E
purchased were covered under the registration certificate
need consideration afresh - Matter remitted to adjudicating
authority - Interpretation of statutes.

Interpretation of statutes: Taxing statute - For
determining whether mens rea is an essential element of an F
offence created under a taxing statute, regard must be had
to the object and scheme of the statute, the language of the
section and the nature of penalty - Central Sales Tax Act,
1956 - s.10(b) r.w. s.10A.
G
The questions which have arisen for consideration
in the two sets of appeals are whether the requirement
of mens rea is an essential ingredient for the levy of
penalty under Section 10(b) r.w. Section 10A of the
627 H
628 SUPREME COURT REPORTS (2010] 11 S.C.R.

A Central Sales Tax Act, 1956 and whether the dealers are
guilty of false representation and, therefore, penalty is
imposable on them for using Form 'C' for the purchase
of the commodities not covered by their certificates of
registration. In the first set of appeals, the High Court set
B aside the levy of penalty on the dealers and in the second
set of appeals, the High Court reduced the penalty in
respect of earlier assessment years.

Allowing the appeals and remitting the matters to the
C adjudicating authority, the Court

HELD: 1.1. Section 10 of the Central Sales Tax Act,
1956 not only enumerates seven types of violations of the
provisions of the Act which constitute an "offence", it
also makes them punishable by prosecution and
D punishment, which ranges from simple imprisonment for
a period, which may extend to six months, or fine or both
and in a case of continuous offence, the Section provides
for a daily fine. Section 1OA of the Act provides for the
imposition of penalty in lieu of prosecution. It provides
E that if any person purchasing goods is guilty of an
offence under clause (b) or clause (c) or clause (d) of
Section 10 of the Act, a penalty of fine may be imposed.
Therefore, it is to be seen whether the words "falsely
represents" appearing in clause (b} of Section 10 would
F cover mere incorrect representation or would embraces
only such representations which are made knowingly,
wilfully and intentionally. [Para 10-11] [640-H; 641-A-D]

1.2. The question whether an offence can be said to
have been committed without the necessary mens rea is
G a vexed one. However, the broad principle applied by the
courts to answer the said question is that there is a
presumption that mens rea is an essential ingredient in
every offence but the presumption is liable to be
displaced either by the words of the statute creating the
H
COMMISSIONER OF SALES TAX, U.P. v. SANJIV 629
FABRICS
offence or by the subject matter with which it deals and A
both must be considered. While examining whether mens
rea is an essential element of an offence created under a
taxing statute, regard must be had to the following
factors: (i) the object and scheme of the statute; (ii) the
language of the section and; (iii) the nature of penalty. It B
is true that the object of Section 10(b) of the Act is to
prevent any misuse of the registration certificate but the
legislature has, in the said Section, used the expression
"falsely represents" in contradistinction to "wrongly
represents." The use of the expression "falsely c
represents" is indicative of the fact that the offence under
Section 10(b) of the Act comes into existence only where
a dealer acts deliberately in defiance of law or is guilty of
contumacious or dishonest conduct. Therefore, in
proceedings fo_r levy. of penalty under Section 1OA of the D
Act, burden would be on the revenue to prove the
existence of circumstances constituting the said offence.
Furthermore, it is evident from the heading of Section 10A
of the Act that for breach of any provision of the Act,
constituting an offence under Section 10 of the Act, the E
··ordinary remedy is prosecution which may entail a
sentence of imprisonment and the penalty under Section
10A of the Act is only in lieu r:f prosecution. In the light
of the language employed in the Section and the nature
of penalty contemplated therein, it cannot be said that all
types of omissions or commissions in the use of Form F
'C' will be embraced in the expression "false
representation". Therefore, a finding of mens rea is a·
condition precedent for levying penalty under Section
1O(b) read with Section 1OA of the Act. IParas 12, 17, 18,
22] [641-E-F; 644-C-E; 646-C-F] G

Nathulal v. State of Madhya Pradesh AIR 1966 SC 43;
Union of India & Ors. v. Dharamendra Textile Processors &
Ors. (2008) 13 SCC 369; Union of India v. Rajasthan Spinning
& Weaving Mills (2009) 13 SCC 448; Mis Gujarat Travancore H
630 SUPREME COURT REPORTS [2010] 11 S.C.R.

A Agency, Cochin v. Commissioner of Income Tax, Kera/a
Ernakulam (1989) 3 SCC 52; State of Maharashtra v. Mayer
Hans George AIR 1965 SC 722; Cement Marketing Co. of
India Ltd. v. Assistant Commissioner of Sa/es Tax, Indore &
Ors. (1980) 1 sec 71 - relied on.
8
Commissioner of Sa/es Tax, U.P. v. Kumaon Tractors &
Motors (2002) 9 SCC 379; R. S. Joshi, Sales Tax Officer,
Gujarat & Ors. v. Ajit Mills Ltd. & Anr. (1974) UPTC 566 (All);
Dyer Meakins Breweries Ltd. v. UP. (1991) 82 STC 268
(Mad.); CST v. MIS Rama & Sons (1999) UPTC 425 (All);
C Vijaya Electricals v. State of Tamil Nadu (1991) 82 STC 268
(Mad.) and Integrated Enter:prises v. State of Kera/a (1980)
46 STC 03 (Ker.); Bharjatiya Steel Industries v.
Commissioner Sa/es Tax, Uttar Pradesh (2008) 11 SCC 617;
Commissioner of Sa/es Tax v. Govind Ram Bhagat Ram
D (1996) 7 SCC 92 - referred to.

Sherras v. De Rutzen (1895) 1 QB 918 - referred to.

Black's L'~w Dictionary 6th Edition; P. Ramanatha Aiyar
E in Advance Law Lexicon 3rd Edition, 2005 - referred to.

2. As regards the first set of appeals, the High Court
set aside the levy of penalty on the ground that apart from
the fact that on earlier occasions the department had not
raised any objection while issuing Form 'C' to the dealer,
F the dealer filed an application for amendment of the
registration certificate as soon as he learnt about his
fault. It is evident from the impugned judgment that the
High Court had lost sight of the fact that the dealer had
used Form 'C' to import items like sutli, tat; etc., in addition
G to the cotton waste. Assuming that the dealer was of the
bona fide belief that cotton included the cotton waste, it
is hard to believe that there was some confusion in the
mind of the dealer in-so far as other items were
concerned. Similarly, in the second set of appeals, it is
H
COMMISSIONER OF SALES TAX, U.P. v. SANJIV 631
FABRICS
evident from the impugned judgment that the High Court A
had not examined the explanation furnished by the
dealer that they were under a bona fide belief that they
were authorized to purchase oil seeds against Form 'C'
/'
issued to them regularly by tl).e department without any
objection. It is manifest that the High Court proceeded to · B
examine the/
case of the dealer on the premise that .
offence under Section 10(b) oJthe Act was an absolute
offence. Under the given circumstances, the explanations
furnished by the de_alers in both the cases require a fresh .
look by the authority competent to levy penalty under C·
Section 1OA of the Act. [Paras 24-25] [646-H; 647-A-E]
Case Law Reference:
(2002) 9 sec 379 relied on Par~_.5
I
(1977) 4 sec 98 relied on Para 6/ D

(1974) UPTC 566 (All) relied on Para 6
(1999) UPTC 425 (All) relied on Para 6
/' (1991) 82 STC 268 (Mad.) relied on Para 6. E
(1980) 46 STC 103 (Ker.) relied on Para 6
(2008) 11 sec 617 reLd on Para 7
(1996) 1 sec 92 relied on Para 7
F
AIR 1965 SC 722 relied on Para 12
(1895) 1 QB 918~ referred to Para 12
~ H

AIR 1966 SC 43 relied on Para 13
G
(2008) 13 sec 369 relied on Para 14
(2009) 13 sec 448 relied on Para 15
(1989) 3 sec 52 relied on Para 16
H
632 SUPREME COURT REPORTS [2010] 11 S.C.R.

A (1980) 1 sec 11 relied on Para 21

CIVIL APPELLATE JURISDICTION : Civil Appeal No.
2344-2347 Of 2004.

From the Judgment & Order dated 21.08.2003 of the High
B Court of Judicature at Allahabad in STR Nos. 323, 324, 325 &
326 of 1991.

WITH

C C.A. No. 6382-6383 of 2004.

Dhruv Agarwal, Aarohi Bhalla, Gunna, Venkateswara Rao,
S.K. Dwivedi, Manoj Kumar Dwivedi, Vandana Mishra,
Ashutosh, Subodh S. Patil, Praveen Kumar, Punit Dutt Tyagi
for the appearing parties.
D
The Judgment of the Court was delivered by

O.K. JAIN, J. 1. These appeals, by special leave, are
directed against the judgments and orders delivered by the High
Court of Judicature at Allahabad, reversing the orders passed
E by the Sates Tax Tribunal, Meerut, (for short "the Tribunal"). In
the first set of appeals (No, 2344-2347/2004) the Tribunal had
affirmed the levy of penalties on the respondent, under Section
1O(b) read with Section 1OA of the Central Sales Tax Act, 1956
(for short "the Act") whereas in the second set (appeals No.
F 6382-6383/2004), the Tribunal had set aside the levy of
penalties under the said Section on the appellant. Since the
. appeals raise a common question of law, it would be
convenient to dispose them of by this single judgment.

G 2. Shorn of unnecessary details, the facts essential for the
adjudication of these appeals are:

C.A. Nos. 2344-2347 of 2004

The respondent (hereinafter referred to as "the dealer") is
H
COMMISSIONER OF SALES TAX, U.P. v. SANJIV 633
FABRICS [D.K. JAIN, J.)
registered under Section 7(2) of the Act and since the year A
1977-78 is engaged in the business of manufacture and sale
of Handloom fabrics.
The dealer was authorized to issue Form 'C' on the import
of cotton and cotton yarn as raw materials. It is not in dispute B
that the dealer had imported cotton waste, polythene, sutli and
tat against Form 'C' in order to avail the benefit of payment of
concessional rate of Central Sales Tax.

On 15th October 1985, the revenue issued a notice to the
dealer to show cause as to why penalty under Section 10(b) C
read with Section 1OA of the Act should not be imposed on
them for using Form 'C' for the purchase of items which were
not covered by their certificate of registration. Immediately on
the issuance of the said notice, dated 15th October 1985, the·
dealer applied for amendment of the certificate of registration D
for inclusion of "cotton waste" in the certificate. The said
amendment was granted on the same fay.
In reply to the show cause notice, the dealer pleaded that they
were under a brma fide belief that "cotton" included "cotton
waste", and thus there was no false representation on their E
part. However, not being convinced with the reply, sometime
in January 1986, the Assessing Authority imposed penalty on
the dealer under Section 10(b) read with Section 10A of the
Act amounting to Rs.18, 8401-; Rs. 63, 8221-; Rs. 55, 1111- and
Rs.51, 1411- for all the four assessment years in question, viz. F
1979-80, 1981-82. 1982-83 and 1983-84 respectively, for
making false representation in respect of purchase of tat, sutli,
polythene; cotton waste, and jute.

The first appeals preferred by the dealer were dismissed G
by the Assistant Commissioner (Judicial) by two separate
orders. Being aggrieved, the dealer filed four separate second
appeals before the Tribunal.

It appears that in the meanwhile, by an order dated 30th
April 1987, the Tribunal, in Second Appeal Nos. 243 of 1986 H
634 SUPREME COURT REPORTS [2010] 11 S.C.R. .

A for the assessment year 1977-78; 242 of 1986 for assessment
year 1978-79 and 550 of 1986 for assessment year 1980-81,
set aside the order of penalty on purchase of cotton waste on
the ground that no objection was raised by the revenue for the
previous years, and therefore, the issuance of Form 'C' for the
s purchase of said commodity was a bona fide error on the part
of the dealer and it did not involve false representation. In
relation to other commodities, the Tribunal remanded the
matters for re-fixation of penalty. However, when appeals for
the present assessment years were taken up, notwithstanding
C its earlier orders, the Tribunal vide order dated 22nd January
1991, affirmed the orders levying penalty, inter-alia observing
.that for the purposes of sales tax, cotton and cotton waste are
two different commodities and the fact that the dealer had
deliberately used Form 'C' to import items like cotton waste,
sutli, tat etc., established that the dealer had imported the goods
0
by making a false representation and had taken the benefit of
concessional rate of tax unauthorizedly. According to the
Tribunal, these circumstances proved the ma/a fide on the part
of the dealer. Finally, distinguishing its earlier orders on the
ground that in those cases, the matter was remanded and it
E remained unclear as to how the matter had proceeded further;
the Tribunal reduced the amount of penalty imposed.

Being dissatisfied with the order of the Tribunal, dated
22nd January 1991, the dealer filed Sales Tax Revisions before
F the High Court of Allahabad. The only dispute which was put in
issue in these revisions was with regard to the levy of penalty
for use of Form 'C' on the purchases of cotton waste.

As stated above, by the impugned judgment the High
G Court has allowed the revision petitions, inter a/ia, observing:

"Cotton" and "Cotton Waste" are two different commodities
known to Sales Tax Laws. However, there is not much
distinction from the point of view of ordinary people. The
applicant is a registered dealer since the assessment year
H 1977-78 and has been making purchases of "Cotton
COMMISSIONER OF SALES TAX, U.P. v. SANJIV 635
FABRICS [D.K. JAIN, J.]
waste" and issuing Form-C thereof since then. The A
department earlier than 15th October, 1985 raised no
objection. This as was submitted by the learned counsel
for the applicant is very relevant circumstance for
determination of the question "false representation"
occurring in Section 1O(b) of . the B
Act ...................................................... .

-
. .-·- ·-·· ............... _, ......... -... ·- ............. -................ ....................................................................

.When Tax Laws are so complex the administration should
proceed specially in the penalty matter from the view of C
ordinary citizen who is always willing to comply with the
conditions of law. The assessee as soon as it came to
know about its (sic) fault filed application for amendment
of registration certificate. Some. fault was on the part of the
department also for maintaining silence over the period of D
about eight years." '

C.A.Nos.6382-6383 of 2004

The appellant herein (hereinafter again referred to as ''the
dealer") was carrying on the business of manufacture and sale E
of oil and oil cakes and was registered under Section 7 of the
Act. It appears that during the assessment proceedings relating
. to the assessment years 1985-86 and 1986-87, the Assessing
Authority found that the dealer had issued Form 'C' for the
import of oil seeds from outside the State and had availed of F
the benefit of concessional rate of tax by issuing Form 'C' in
respect of the said item, which was not included in their
registration certificate. Accordingly, a notice was issued to the
dealer under Section 10(b) read with Section 10A of the Act
to show-cause as to why penalty under the said provisions G
should not be levied on them.

Not being satisfied with the reply furnished by the dealer,
the Assessing Authority levied penalty in the sum of
Rs.73298.60p. and Rs.2,08,064/- for the assessment years H
636 SUPREME COURT REPORTS [2010] 11 S.C.R.

A 1985-86 and 1986-87 respectively.

Dealer's first appeal to the Deputy Commissior:ier
(Appeals) pertaining to the assessment years 1985-86 was
partly allowed in 3S much as the quantum of penalty was
reduced to Rs.1075/- but on merits, appeals for both the
B · assessment years were rejected. Being aggrieved, the dealer
preferred two second appeals before the Tribunal. Inter alia,
observing that apart from the fact that in the application under
Section 7(1) and 7(2) of the Act in Form 'A', the word 'oil seed',
mentioned in an inappropriate column-16-GHA was deleted,
C the dealer was also under a bona fide belief that they were
authorized to purchase oil seeds against Form 'C' as the
department had been regularly issuing Form 'C' to them for the
purchase of oil seeds, the Tribunal set aside the penalty levied
on the dealer under Section 1O(b) of the Act.
D
Not being satisfied with the order passed by the Tribunal,
the revenue took the matter in revision to the High Court. As
afore-stated, the High Court came to the conclusion that the
order of the Tribunal deleting the penalty was erroneous.
E However, having regard to the facts and circumstances of the
case, the High Court held that since the revenue had been
regularly issuing Form 'C' in spite of details being furnished by
the dealer, penalty only to the extent of benefit availed by the
dealer i.e. @ 4% should be levied. Accordingly, the High Court
reduced the penalty to Rs.27,275/- and Rs.66,955/- in respect
F
of assessment years 1985-86 and 1986-87 respectively.

3. Hence both the revenue and the dealer are before us
in these appeals.

G 4. We have heard learned counsel for the parties.

5. Mr. Aarohi Bhalla, learned counsel appearing for the
revenue contended that the judgment of the High Court deleting
the penalty is erroneous in as much as the revisionary
H jurisdiction of the High Court under Section 11 of the UP Trade
COMMISSIONER OF SALES TAX, U.P. v. SANJIV 637
FABRICS [D.K. JAIN, J.]
Tax Act, 1948 is very limited and confined only to an examination A
of the question of law. Section 11 of the UP Trade Tax Act does
not contemplate re-evaluation of the evidence by the High Court
and, therefore, the High Court cannot interfere with a finding of
fact as has been done in the present case. In support of the
contention, learned counsel relied on the decision of this Court B
in Commissioner of Sales Tax, UP. Vs. Kumaon Tractors &
Motors 1•

6. Learned counsel also submitted that mens rea is not
an essential ingredient of the offence under Section 10(b) of C
the Act, as penalty under the said provision is in the nature. of
a civil liability. According to the learned counsel, it is only when
the prosecution is launched pursuant to a sanction under
Section 11 of the Act, the requirement of mens rea assumes
importance as the "offence" comes into existence only when a
sanction is received. To buttress his argument, learned counsel D
<commended us to the decision of this Court in R.S. Joshi,
Sales Tax Officer, Gujarat & Ors. Vs. Ajit Mills Ltd. & Anr. 2, in
particular to the following observation:

"The classical view that 'no mens rea, no crime' has long E
ago been eroded and several laws in India and abroad,
especially regarding economic crimes and departmental
penalties, have created severe punishments even where
the offences have been defined to exclude mens rea."

Reliance was also placed on the decisions of the High Courts
F
in Dyer Meakins Breweries Ltd. Vs. U.P. 3; CST Vs. MIS Rama
& Sons 4 ; Vijaya Electricals Vs. State of Tamil Nadu 5 and
Integrated Enterprises Vs. State of Kerala 6 in support of the

1. (2002) 9 sec 379. G
2. (1977) UPTC 566 (All)]
3. [1974] UPTC 566 (All)]
4. [1999] UPTC425 (All)]
5. [1991] 82 STC 268 (Mad.)
6. [1980] 46 STC 103 (Ker.)] H
638 SUPREME COURT REPORTS [2010] 11 S.C.R.

A same proposition. It was asserted that in the present cases the
items which were included in the Registration Certificate were
clearly different and distinct from the items for which Form 'C'
were issued and therefore, the dealers could not claim that it
was a bona fide omission on their part.
B
7. Mr. Dhruv Agarwal, learned senior counsel appearing
for the dealers in both the cases, on the other hand, submitted
that since under Section 1OA of the Act, in case of offence under
Section 1O(b) of the Act, discretion is conferred on the
C Assessing Authority to levy penalty in lieu of the prosecution of
the dealer, the requirement of mens rea would be sine qua non
for attracting the said penal provision. In support, learned
counsel relied on the decision of this Court in Bharjatiya Steel
Industries Vs. Commissioner, Sales Tax, Uttar Pradesh 7 .
Learned counsel argued that since in both the cases, the
D dealers had been issued Form 'C' in respect of the same very
items in the previous years regularly without any objection by
the revenue, the dealers entertained a bona fide belief that these
items were covered under the Registration Certificate, penalties
under the said provision were not leviable on the dealers.
E Relying on the decision of this Court in Commissioner of Sales
Tax Vs. Govind Ram Bhagat Ram 8, learned counsel submitted
that in the case of M/s Hari Oil & General Mills (C.A.Nos.6382-
6383 of 2004), the High Court should not have interfered with
the findings of fact recorded by the Tribunal to the effect that
F since Form 'C' were being issued regularly by the revenue for
the purchase of oil seeds without any objection for the last five
years and the accounts rendered in that behalf had been
verified and accepted by the Assessing Authority, it could not
be held that the dealer had made false representation while
G making purchases of oil seeds against the said forms.

8. Thus, the first and the foremost issue arising for our
consideration is whether the requirement of mens rea is an
1. (2008) 11 sec 617.
H 8. (1996) 1 sec 92.
COMMISSIONER OF SALES TAX, U.P. v. SANJIV 639
FABRICS [D.K. JAIN, J.]
essential ingredient for the levy of penalty under Section 10(b) A
read with Section 1OA of the Act?

9. In order to answer the point formulated for consideration,
it would be necessary to refer to the relevant provisions of the
Act. Section 10 of the Act deals with penalties. It reads as
8
under:

"10. Penalties.-lf any person-

(a) furnishes a declaration under sub-section (2)
of section 6 or sub-section (1) of section 6A c
or sub-section (4) or sub-section (8) of
section 8, which he knows, or has reason to
believe, to be false; or

(aa) fails to get himself registered as required by
section 7 or fails to comply with an order 0
under sub-section (3A) or with he
requirements of sub-section 3(C) or sub-
section (3E) of that section;

(b) being a registered dealer, falsely represents E
when purchasing any class of goods that
goods of such class are covered by his
certificate of registration; or

(c) not being a registered dealer, falsely F
represents when purchasing goods in the
course of inter-State trade or commerce that
he is a registered dealer; or

(d) after purchasing any goods for any of the
purposes specified in clause (b) or clause (c) G
or clause (d) of sub-section (3) or sub-section
(6) of section 8 fails, without reasonable
excuse, to make use of the goods for any
such purpose;
H
640 SUPREME COURT REPORTS [2010] 11 S.C.R.

A (e) has in his possession any form prescribed
for the purpose of sub-section (4) or sub-
section (8) of section 8 which has not been
obtained by him or by his principal or by his
agent in accordance with the provisions of
B this Act or any rules made thereunder;

(f) collects any amount by way of tax in
contravention of the provisions contained in
section 9A,

C he shall be punishable with simple imprisonment which
may extend to six months, or with fine or with both; and
when the offence is a continuing offence, with a daily fine
which may extend to fifty rupees for every day during which
the offence continues."
D
Section 1OA of the Act provides for the imposition of penalty
in lieu of prosecution. Sub-section (1) of the said Section,
relevant for our purpose, reads as follows:

"10A. Imposition of penalty in lieu of prosecution-
E (1) If any person purchasing goods is guilty of an offence
under clause (b) or clause (c) or clause (d) of section 10,
the authority who granted to him or, as the case may be,
is competent to grant to him a certificate of registration
under this Act may, after giving him a reasonable
F opportunity of being heard, by order in writing, impose
upon him by way of penalty a sum not exceeding one and
a half times the tax which would have been levied under
sub-section (2) of section 8 in respect of the sale to him
of the goods, if the sale had been a sale falling within that
G sub-section:

Provided that no prosecution for an offence under
section 10 shall be instituted in respect of the same facts
on which a penalty has been imposed under this section."

H 10. Section 10 of the Act not only enumerates seven types
COMMISSIONER OF SALES TAX, U.P. v. SANJIV 641
FABRICS [D.K. JAIN, J.]
of violations of the provisio~s of the Act which constitute an A
"offence", it also makes them punishable by prosecution and
punishment, which ranges from simple imprisonment for a
period, which may extend to six months, or fine or both and in
a case of continuous offence, the Section provides for a daily
fine. Section 1OA of the Act provides for the imposition of B
penalty in lieu of prosecution. It provides that if any person
purchasing goods is guilty of an offence under clause (b) or
clause (c) or clause (d) of Section 10 of the Act, a penalty of
fine may be imposed. Thus, the violations enumerated in clause
(b), clause (c) and clause (d) of Section 10 may not necessarily c
result in prosecution with the possible imposition of sentence
of imprisonment as an alternative is provided in respect of these
violations. ·

11. Therefore, what we are required to construe is whether
the words "falsely represents" would cover a mere incorrect D
representation or would embrace only such representations
which have been made knowingly, wilfully and intentionally.

12. Whether an offence can be said to have been
committed without the necessary mens rea is a vexed question. E
However, the broad principle applied by the courts to answer
the said question is that there is a presumption that mens rea
is an essential ingredient in every offence but the presumption
is liable to be displaced either by the words of the statute
creating the offence or by the subject matter with which it deals F
and both must be considered. (See: Sherras Vs. De Rutzen 9
and State of Maharashtra Vs. Mayer Hans George 10 ).

13. Although in relation to the taxing statutes, this Court has.
on various occasions, examined the requirement of mens rea
but it has not been possible to evolve an abstract principle of G
law which could be applied to determine the question. As
already stated, answer to the question depends on the object

9. [1895] 1 QB 918.
10. AIR 1965 SC 722. H

\
642 SUPREME COURT REPORTS [2010] 11 S.C.R.

A of the statute and the language employed in the provision of
the statute creating the offence. There is no gain saying that a
penal provision has to be strictly construed on its own language.
In Nathulal Vs. State of Madhya Pradesh 11 , while dealing with
the question whether to constitute an offence under Section 7
B of the Essential Commodities Act, 1955 which provides for levy
of penalty for contravention of any order made under Section
3 of the State Act mens rea is an essential ingredient, a three-
Judge Bench of this Court observed as follows:

"Mens rea is an essential ingredient of a criminal offence.
c Doubtless a statute may exclude the element of mens rea,
but it is a sound rule of construction adopted in England
and also accepted in India to construe a statutory provision
creating an offence in conformity with the common law
rather than against it unless the statute expressly or by
D necessary implication excluded mens rea. The mere fact
that the object of the statute is to promote welfare activities
or to eradicate a grave social evil is by itself not decisive
of the question whether the element of guilty mind is
excluded from the ingredients of an offence. Mens rea by
E necessary implication may be excluded from a statute only
where it is absolutely clear that the implementation of the
object of the statute would otherwise be defeated. The
nature of the mens rea that would be implied in a statute
creating an offence depends on the object of the Act and
F the provisions thereof."

14. In Union of India & Ors. Vs. Dharamendra Textile
Processors & Ors. 12, while examining the scope of Section 11-
AC of the of the Central Excise Act, 1944, a three judge Bench
G of this Court, observed that:
"A penalty imposed for a tax delinquency is a civil
obligation, remedial and coercive in its nature, and is far

11 AIR 1966 SC 43.
H 12. (2ooai 13 sec 369.
COMMISSIONER OF SALES TAX, U.P. v. SANJIV 643
FABRICS [D.K. JAIN, J.]
different from the penalty for a crime or a fine or forfeiture A
provided as punishment for the violation of criminal or
penal laws."
15. However, in Union of India Vs. Rajasthan Spinning
& Weaving Mi//s 13, this Court observed that:
B
"We fail to see how the decision in Dharamendra Textile
can be said to hold that Section 11-AC would apply to
every case of non-payment or short-payment of duty
regardless of the conditions expressly mentioned in the
section for its application ... The decision in Dharamendra G
Textile must, therefore, be understood to mean that though
the application of Section 11-AC would depend upon the
existence or otherwise of the conditions expressly stated
in the section."
(Emphasis supplied by us) D
16. In Mis Gujarat Travancore Agency, Cochin Vs.
Commissioner of Income Tax, Kera/a, Ernakulam 14 , the
question that arose for consideration was whether Section
271(1)(a) of the Income Tax Act, 1961 required the existence E
of mens rea. While holding that the said Section dealt merely
with a failure to file return, and hence no mens rea was required,
this Court observed thus:
"It is sufficient for us to refer to Section 271 (1 }(a), which
provides that a penalty may be imposed if the Income Tax F
Officer is satisfied that any person has without reasonable
cause failed to furnish the return of total income, and to
Section 276-C which provides that if a person wilfully fails
to furnish in due time the return of income required under
Section 139(1 ), he shall be punishable with rigorous G
imprisonment for a term which may extend to one year or
with fine. It is clear that in the former case what is intended

13. (2009) 13 sec 448.
14. (1989) 3 sec 52. H
644 SUPREME COURT REPORTS [2010) 11 S.C.R.

A is a civil obligation while in the latter what is imposed is a
criminal sentence. There can be no dispute that having
regard to the provisions of Section 276-C, which speaks
of wilful failure on the part of the defaulter and taking into
consideration the nature of the penalty, which is punitive,
B no sentence can be imposed under that provision unless
the element of mens rea is established."
(Emphasis supplied by us)
17. To put it succinctly, in examining whether mens rea is
C an essential element of an offence created under a taxing
statute, regard must be had to the following factors: (i) the object
and scheme of the statute; (ii) the language of the section and;
(iii) the nature of penalty.
18. It is true that the object of Section 1O(b) of the Act is
D to prevent any misuse of the registration certificate but the
legislature has, in the said Section, used the expression "falsely
represents" in contradistinction to "wrongly represents."
Therefore, what we are required to construe is whether the
words "falsely represents" would cover a mere incorrect
E representation or would embrace only such representations
which are knowingly, wilfully and intentionally false.
19. According to the Black's Law Dictionary (6th Edition),
the word "false" has two distinct and well-recognized meanings:
(1) intentionally or knowingly or negligently untrue; (2) untrue by
F
mistake ·or accident, or honestly after the exercise of
reasonable care. A thing is called "false" when it is done, or
made, with knowledge, actual or constructive, that it is untrue
or illegal, or is said to be done falsely when the meaning is that
G the party is in fault for its error.
20. Likewise, P. Ramanatha Aiyar in Advance Law
Lexicon (3rd Edition, 2005) explains the word "false" as:
"In the more important uses in jurisprudence the word
implies something more than a mere untruth; it is an
H
COMMISSIONER OF SALES TAX, U.P. v. SANJIV 645
FABRICS [D.K. JAIN, J.]
untruth coupled with a lying intent. .... or an intent to A
deceive or to perpetrate some treachery or fraud. The true
meaning of the term must, as in other instances, often be
determined by the context'."
21. In Cement Marketing Co. of India Ltd. Vs. Assistant
Commissioner of Sales Tax, Indore & Ors. 1 ~, a similar
8
question fell for consideration of this Court. In that case, a
penalty under Section 43 of the Madhya Pradesh General $ales
Tax Act, 1958 and Section 9(2) of the Act was imposed on the
dealer on the ground that he had furnished false returns by not
including the amount of freight in the taxable turnover disclosed C
in the returns. Allowing the appeal of the dealer, this Court had
observed as under:
"What Section 43 of the Madhya Pradesh General Sales
Tax Act, 1958 requires is that the assessee should have 0
filed a 'false' return and a return cannot be said to be 'false'
unless there is an element of deliberateness in it. It is
possible that even where the incorrectness of the return is
claimed to be due to want of care on the part of the
assessee and there is no reasonable explanation E
forthcoming from the assessee for such want of care, the
Court may, in a given case, infer deliberations and the
return may be liable to be b• nded as a false return. But
where the assessee does not include a particular item in
the taxable turnover under a bona fide belief that he is not
liable so to include it, it would not be right to condemn tbe F
return as a 'false' return inviting imposition of penalty."

The Court finally held that it was elementary that Section 43 of
the State Act which provided for imposition of penalty is penal
in character and unless the filing of an inaccurate return is G
accompanied by a guilty mind, the section cannot be invoked
for imposing penalty. It was emphasised that if the view
canvassed by the Revenue were to be accepted, the result

1s. (1980) 1 sec 11. H
646 SUPREME COURT REPORTS [2Q1Q] 11 S.C.R.

A would be that even if a dealer raises a bona fide contention
that a particular item was not liable to be included in the taxable
turnover, he will have to show it as forming part of the taxable
turnover in his return and pay taxes upon it on pain of being
held liable for penalty in case his contention is ultimately found
B by the Court to be not acceptable. That surely could never have
been the intention of the Legislature.
22. In view of the above, we are of the considered opinion
that the use of the expression "falsely represents" is indicative
of the fact that the offence under Section 1Q(b) of the Act comes
C into existence only where a dealer acts deliberately in defiance
of law or is guilty of contumacious or dishonest1conduct.
Therefore, in proceedings for levy of penalty under Section 1QA
of the Act, burden would be on the revenue to prove the
existence of circ~mstances constituting the said offence.
D Furthermore, it is evident from the heading of Section 1QA of
the Act that for breach of any provision of the Act, constituting
an offence under Section 1Q of the Act, ordinary remedy is
prosecution which may entail a sentence of imprisonment and
the penalty under Section 1QA of the Act is only in lieu of
E prosecution. In light of the language employed in the Section
and the nature of penalty contemplated therein, we find it difficult
to hold that all types of omissions or commissions in the use
of Form 'C' will be embraced in the expression "false
representation". In our opinion, therefore, a finding of mens rea
F is a condition precedent for levying penalty under Section 1Q(b)
read with Section 1QA of the Act.
23. That takes us to the next question viz. whether on the
facts of the two cases before us it could be said that the dealers
had purchased the goods in question and furnished Form 'C'
G in respect of those goods knowing that the said goods were
not covered by their certificates of registration and, therefore,
the requirement of mens rea was satisfied.
24. As regards, the first set of appeals, as afore-stated,
H the High Court has deleted the penalty on the ground that apart
COMMISSIONER OF SALES TAX, U.P. v. SANJIV 647
FABRICS [D.K. JAIN, J.]
from the fact that on earlier occasions the department had not A
raised any objection while issuing Form 'C' to the dealer, the
dealer filed an application for amendment of the registration
certificate as soon as he learnt about his fault. It is evident from
the impugned judgment that the High Court has lost sight of the
fact that the dealer had used Form 'C' to import items like sutli, B
tat, etc., in addition to the cotton waste. Assuming that the
dealer was of the bona fide belief that cotton included the cotton
waste, it is hard to believe that there was some confusion in
the mind of the dealer in so far as other items were concerned.
Similarly, in the second set of appeals, it is evident from the C
impugned judgment that the High Court has not examined the
explanation furnished by the dealer that they were under a bona
fide belief that they were authorized to purchase oil seeds
against Form 'C' issued to them regularly by the department
without any objection. It is manifest that the High Court
0
proceeded to examine the case of the dealer on the premise
that offence under Section 10(b) of the Act was an absolute
offence.
25. Under the given circumstances, we are of the opinion
that the explanations furnished by the dealers in both the cases E
require a fresh look by the authority competent to levy penalty
under Section 1OA of the Act, in light of the aforesaid
enunciation of law.
26. Resultantly, both the appeals are allowed; the
impugned judgments are set aside and all the appeals in both F
the cases are remitted back to the adjudicating authority for
fresh consideration as to whether on the facts and
circumstances of both the cases, penalties under Section 10(b)
read with Section 1OA of the Act are leviable. Needless to add
that the said authority shall take fresh decisions on the merits G
of each case untrammelled by any observation in the impugned
orders or by us in this judgment. There shall, however, be no
order as to costs.

D.G. Appeals allowed. H