Holding

Sections 489A‑E IPC are applicable to any currency note, including foreign notes, making the counterfeiting of US dollar notes an offence under Indian law.

Summary

The State of Kerala prosecuted six accused for forging and counterfeiting US dollar notes, alleging offences under Sections 120B, 489A, 489B, 489C, 420, 511 and 34 of the Indian Penal Code. The accused argued that Sections 489A and 489C apply only to Indian currency notes, relying on the definition of "currency note" in the Indian Paper Currency Act, 1822, and obtained discharge from the Sessions Court, which was affirmed by the Kerala High Court. On appeal, the Supreme Court examined the language of Sections 489A‑E and held that the term "currency note" is intended to cover any note issued by any sovereign power, not merely Indian notes, and that the definition in the 1822 Act cannot be imported into the IPC. Consequently, counterfeiting or possessing counterfeit foreign currency, such as US dollars, constitutes an offence under the IPC. The High Court’s order of discharge was set aside and the appeal was allowed, with the matter remitted to the trial court for further proceedings.

Issues considered

Whether Sections 489A‑E of the Indian Penal Code apply to foreign currency notes such as US dollar notes.
Whether the definition of "currency note" in the Indian Paper Currency Act, 1822 can be imported into the IPC provisions.
Whether counterfeiting or possession of counterfeit foreign currency is punishable under Indian law.

Legislation cited

Foreign Exchange Regulation Acts. 13(1), s. 6(1), s. 7(1)
Indian Paper Currency Act, 1822s. 2
Indian Penal Code, 1860s. 120B, s. 34, s. 420, s. 489A, s. 489B, s. 489C, s. 489E, s. 511

Subjects

counterfeitingforeign currencyIndian Penal Codecurrency notestatutory interpretationcriminal lawsection 489A

Judgment

STA,-i:E OF KERALA
•V.
A

y MATHAI VERGHESE & ORS.

.NOVEMBER 19, 1986

[M.P. THAKKAR ANDS. NATARAJAN, JJ.] B

Indian Penal Code, ss.489A to 489£-Whetherapplicab/e to"currency
':' notes" other than "Indian Currency Notes"-Counterfeiting of or possession
of counterfeit dollar bills or dollar notes- Whether offence under Indian Law.

Indian Paper Currency Act 1822, s.2-'Currency Note'-Definition-
c
---~
Whether can be imported into ss.489A-489E, l.P.C.

Words & Phrases-'Currency note'-Meaning of
.... The respondents were charged with offences punishable under s.120B,
489A, 489C and s420 read with ss.511 and 34 IPC for forging and D
counterfeiting American dollar notes of 20 dollar denomination, by printing
2000 such notes. Respondents l and 2 were further alleged to have been in
possession of 148 forged currency notes knowing the same to be forged, with
intent to use these forged notes as genuine.

The accused-respondents contended before the Sessions Court that a E
charge node.-.. 489A and 489C of the IPC could be lawfully levelled only in
.:,- the case of counterfeiting of 'Indian' currency notes and not in the case of
counterfeiting of 'foreign' current-y notes. The Sessions Court upheld the
aforesaid contention and discharged the accused-respondents. The High
Court also confirmed the aforesaid order of discharge.
F

l
Allowing the appeal by appellant-State and remanding the case to ,the
trial court,

HELD: I. The High Court was wrong in holding that ss. 489A to 489E
are not applicable to currency notes other than Indian currency notes and that
counterfeiting of or possessing of counterfeit dollar bills or dollar notes is not G
an offence under the Indian Law. Th~refore, the judgment and order of
discharge rendered by the High Court are reversed and set aside. The matter
will now go back to the trial court for proceeding further in accordance with
law. [325 F-326 CJ
r 2.1 An analysis of s. 489A reveals that: (i) counterfeiting 'any' currency H

317
318 SUPREME COURT REPORTS [1987] l S.C.R.

A note or .bank-note is an offence; (ii) knowingly performing any part of the
process of counterfeiting any currency note or bank-note is also an offence;
and (iii) the prohibition against counter-feiting or performing such process
applies to currency notes as also to bank-notes as defined by the explanation
to s. 489A. And inasmuch as the aforesaid expression interalia means any
engagement for the payment of money to the bearer issued by or under the
B authority of any State or Sovereign 11ower provided it is intended to be used as
equivalent to or substitute for money the prohibition also extends to counter-
feiting etc. of currency notes of ani other soverign power. [321 D-G]

2.2 The expression 'currency note' under s. 489A is large enough in its
amplitude to cover the currency notes of 'any' country. When the legislature
does not speak of currency notes of India the court interpreting the relevant
c provision of law cannot substitute the expression 'Indian currency note' in
place of the expression 'currency note'. When the expression 'currency note' is
interpreted to mean only 'lndian.curicency note', the width of the expression is
being narrowed down or cut down. [322 A-q

D 2.3 The court can merely inter?ret the section, it cannot re-write, recast
or redesign the section. In interpreting the provision the exercise undertaken
by the court is to make explicit the intention of the legislature which enacted
the legislature. It is not for the court to reframe the legislation for the very good
reason that the powers to 'legislate' have not been conferred on the court.
When the court shrinks the content oJ the expression 'currency note', to make i
E it referable to only 'Indian currency note', it is defeating the intention of the

t
legislature partly inasmuch as the court makes it lawful to counterfeit notes
other than Indian currency notes. The manifest purpose of the provision is
that the citizens should be protecte1I from being deceived or cheated. The '
citizens deal with and transact business with each other through the medium of
currency. It is inconceivable why the legislature should be anxious to protect
F citizens from being deceived or cheated only in respect of Indian currency .
notes and not in respect of currency notes issued by other soverign powers.
[322 B-322 F]

2.4 To read the expression 'any currency note' to mean and referonly to
'Indian currency note' is to misread the expression by doing violence both to
G the letter and spirit thereof unmindful of the fact that the former expression in
its plentitude covers the currency note" issued by any and every country of the
world whereas the latter is applicable t 1 only one of the countries in the world. .J
[325 DJ

3. The expression 'bank note' employed in ss. 489A to 489E ofIPC takes
H within its sweep an engagement ro;
the payment of money issued by or under
STATE OF KERALA v. MATHAI VERGHESE [THAKKAR, J.] 319

the authority of any State or Sovereign power as is evident from the analysis of A
s. 489A. It would therefore cover a dollar bill or dollar note as well. A dollar
bill issued by the Soverign Government of United States of America would
ipsofacto be covered by the expression 'banknote'. And as revealed by the
analysis made earlier, the prohibition would apply to the counterfeiting of a
Bank-note or being in possession of a counterfeit Bank-note as well. It would,
therefore; in any case, be an offence to counterfeit a dollar bill or to be. in B
)•.
possession of a countefeit dollar bill. (323 C-D]

4. The definition contained in s. 2 of the Indian Paper Currency .Act is
_ ·'¥ only for the purpose of that particular Act and it cannot be imported into
-"' · s. 489A to 489E of the Indian Penal Code. (325 E] ·
c
CRIMINAL APPELLATE JURISDICTION: Criminal Appeal No.26
,. of 1978

From the Judgement and Order dated 17.l l.1976 of the Kerala High
· Court in Criminal Revision Petition No. 263 of 1975.
D
Chettur Sankaran Nair and E.M.S. Anam for the Appellant.
~
Nemo for the Respondents.

The Judgment of the C~urt was delivered by
E

THAKKAR, J. Counterfeiters all over the world must be singing in
ecstasy: "iftli.ere is heaven on earth, it is here, here, here', for, according to the
Kerala High Court', Indian law does not make counterfeiting of currency
notes of any country in the world, other than that 'of India, an offence. ,
F
The High Court has persuaded itself by a process of judicial activism in
reverse gear, that making of such counterfeit notes is not an offence under
Section 489A of the Indian Penal Code (l.P.C.) and that having in possession
such counterfeit currency notes is not an offence under Section 489C of the
I.P.C. Such a view has been taken even though there is nothing in the language
of these sections .to warrant such an interpretation as will become evident G
presently.

1. Judgment and Order rendered by the Kerala High Court in Cr.R.P. 263 of 1975 on
November 17, 197(), giving rise to the present appeal by certificate of fitness under Article
134(1Xc) of the Constitution of India. H
320 SUPREME COURT REPORTS [1987] I S.C.R.

A Facts. The six respondents herein were charged with offences punishable
undef Sections 120B, 489A, 489B and Section 420 read with Sections 511 and
34 .JPC. The prosecution case against them was that in furtherance of a
·conspiracy entered into by accuse<[ nos. 1 to 4 to forge and counterfeit
American dollar notes of 20 dollar denomination, they indulged in
counterfeiting by printing 2000 such notes. Respondents 1 and 2 were further
B alleged to have been in possession of 148 forged currency notes knowing the
same to be forged, with intent to use these forged notes as genuine. The
respondents were committed by t)le Magistrate .to stand their trial before the
Sessions Court, for offences. under Sections 120-B, 487 A and 489C read with
Sections 511 and 34 IPC. It was cont,nded by the respondents-accused before j:.
the Sessions Court that a charge under Sections 489 A and 489C of the IPC '
C could be lawfully levelled only in the case of counterfeiting of'Indian' currency
notes and not in the case of countrrleiting of 'foreign' currency notes.The
contention was upheld by the Sessions Couit at the threshold of the trial and the
accused were discharged. Aggrieved by the order of the Sessions Court
discharging the respondents, the petitioner (State of Kerala) filed a Revision
Petition before the High Court of Kerala. The High Court by its order under
D appeal confirmed the order of discharge renderred by the Sessions Court
holding that "in the absence of an expl mation similar to that in the case of bank
notes; Section 489A and the Sections that follow which relate to counterfeiting
of currency notes do not. apply to ca>es of counterfeiting of dollar bills." The
petitioner thereupon filed an application under Article 134 (l)(c) of the
Constitution of India for leave to appeal to the Supreme Court. By its order
E under appeal, the. High Court certified it as a fit case for appeal to the Supreme
Court as "the case involves considembly important questions of law as to
whether counterfeit American dollar notes will fall within the purview of

.·~
Sections 489 A and 489C of the Indian 'Penal Code." That is how the matter has
come up before this Court.

F Relevant provisions:-The anatomy of the relevant provisions requires
to be X-rayed at the outset. The ccncerned provisions may therefore be
screened:-

"489A. Whoever counterfeits, or knowingly performs any part
of the process of counterfeiting, any currency note or ank note,
G shall be punished with (imprisonment for life), or with
imprisonment of either description for a term which may extend ·-1.
to ten years, and shall be liable to fine.

Explanation:- F.x the purposes of this section and of
sections 489B, '(489C, ''890 and 489E) the expression "bank
H note" means a promisso::y note or engagement for the payment
STATE OF KERALA v. MATHAI VERGHESE [THAKKAR, J.] 321

of moµey to bearer on demand issued by any person earrying on ' A
the business of banking in any part of the world, or issued by or
under the authority of any State or Sovereign Power, and
intended to be used as equivalent to, or as a substitute for
money.

3. Subs. by Act 26 of 1955, s. 117 and.sch. for "transpor- B
ta ti on for life" (w. e. f. ·l-1-1956).

4. Subs. by Act 35 of 1950, s. 3 and Sch. II for "489C and
4890".

"489C. Whoever has in his possession any forged or dounterfeit
currency-note or bank-note, knowing or having reason to
c
believe the same to be forged or counterfeit and intending to use
the ·same as genuine or that it may be used as genuine, shall be ·
punished with imprisonment of either description for a term
which may extend to seven years, or with fine,' or with both."
D
Analysis: An analysis of Section 489A reveais that:-

(i) counterfeiting 'any' currency note or bank-note is an
offence;

(ii) knowingly performing any part of the process of E
coUnterfeiting any currency note or bank-note is also an offence;
and
(iii) the prohibition against counterfeiting or performing
such process applies to currency notes as also to bank-notes as
defined by the explanation to Section 489A. And inasmuch as
( the aforesaid expression interalia means any engagement' for F
• the payment of money to the bearer issued by or under the
authority of any State or Sovereign power provided it is
intended to be used as equivalent to or substitute for money the ·
prohibition also extends to counterfeiting etc. of currency notes
of any other sovereign power.
G
Outcome: This analysis reveals that the legislative embargo against
counterfeiting envelops and takes within its sweep 'currency notes' of all
countries. The embargo is not restricted to 'Indian' currency notes. The
legislature could have, but has not, employed the expression 'Indian currency

I. A piomise, obligation or other condition ·that binds. (See Collins Dictionary) H
322 SUPREME COURT REPORTS [1987] I S.C.R.

A note'. If the legislative intent was to restrict the parameters of prohibition to
'Indian currency' only, the legislatur., could have said so unhesitatingly. The
expression 'currency note' is large enough in its amplitude to cover the currency
notes of 'any' country. When the legis ature does not speak ofcurrency notes of
India the Court interpreting the relevant provision of law cannot substitute the
expression 'Indian currency note' in place of the expression 'currency note' as
B has been done by the High Court. Th' High Court cannot do so for, the Court
can merely interpret the section; it cannot re-write, recast or redesign the
section. In interpreiing the provision 1he exercise undertaken by the Court is to
make explicit the intention of the legi•fature which enacted the legislation. In is
not for the Court to reframe the legislation for the very good reason that the
powers to 'legislate' have not been conferred on the Court. When the expression
)
I
c 'currency note' is inte,Preted to mean 'Indian currency note', the width of the
expression is being narrowed down or cut down. Apart from the fact that the
Court does not possess any such power, what is the purpose to be achieved by
doing so? A Court can make a purposeful interpretation so as to'effectuate'the
intention of the legislature and not a purposeless one in order to 'defeat' the
intention of the legislators wholly or in part. When the Court (apparently in the
D course of an exercise in interpretatio o) shrinks the content of the expression
'currency note', to make it referable to only'Indian currency note', it is defeating
the intention of the legislature partly inasmuch as the Court makes it lawful to
counterfeit notes other than Indian cu :rency notes. The manifest purpose of the
provision is that the citizens should be protected from being deceived or
cheated. The citizens deal with and transact business with each other through
E the medium of currency', (which expression includes coins as also paper
currency that is to say currency note>:). It is inconceivable why the legislature
should be anxious to protect citizens from being deceived or cheated only in
respect of Indian currency notes and not in respect of currency notes issued by
other sovereign powers. The purpose of the legislation appears to be to ensure
that a person accepting a currency note is given a genuine currency which can be
F exchanged for goods or services and not a worthless piece of paper which will
bring him nothing in return, it being a counterfeit or a forged currency note.
Would the legislature in its wisdom and anxiety to protect the unwary citizens
extend immunity from bcirrg cheated in relation to Indian currency notes but
show total unconcern in regard to th 'ir being cheated in respect of currency
notes issued by any foreign State or sovereign power'? In the modem age a
G tourist from a foreign country may )ring from his own country into India
currency to the extent permissible under the law in India. So also he may obtain
foreign currency in exchange of Indian currency whilst in India provided he
does so to the extent permissible by the Foreign Exchange Regulation Act,

1. Currency n. I. a metal or paper medium of exchange that is in current use. (Collins English
H Dictionary}.
STATE OF KERALA v. MATHAI VERGHESE [THAKKAR, J.] 323

(
1973' and operates through an authorised ,person' known as money changer3•
A
Would it be reasonable to assume that the legislature was totally oblivious of
the need to protect them from being deceived and defrauded? It would be
unwise to do so in the face of the internal evidence which provides a clue to the
legislative anxiety on this score. In fact the framers of the Code were so anxious
to protect the general public from fraudulant acts of counterfeiters that not only
have they defined the word "counterfeit" in very wide terms in the Indian Penal B
Code, but they have also prescribed a rule of evidence in Explanation 2 so as to
draw an adverse presumption against the maker of the counterfeit article, as is
evident from the definition of the term "Counterfeit" read with the
Explanations in Section 28 of the Indian Penal Code. 1
What is more, the expression 'bank note' employed in sections 489A to
489E ofl.P.C. takes within its sweep an engagement for the payment of money
issued by or under the authority of any State or Sovereign power as is evident
from the analysis of the Section made hereinabove. And it wotlld therefore
cover a Dollar Bill or Dollar Note as well. A dollar'hill issued by the Sovereign
Government of United States of America would ipsofacto be covered by the
expression 'bank-note'. ·And as revealed by the analysis made earlier, the
prohibition would apply to the counterfeiting of a Bank-note or being in D
possession of a counterfeit Bank-note as well. It would, therefore, in any case,
be an offence to counterfeit a dollar bill or to be in possession of counterfeit
dollar bill. ·
I.., SectiorJ 13(1): The-Central Government may, by notification in the official Gazette, order
. that, subject to such exemption, if any, as may be specified in the iiotification, RO person shall
E
except with the general or specid permission of the Reserve Bank and on payment of the fee,
if any, prescribed, bring or send into India any gold or silver or any foreign exchange or any
Indian currency. Explanation: For the purposes of this sub-section; the bringing or sending
into any port or place in India of any such article as aforesaid intended to be taken out of
India without being removed from the ship or conveyance in which it is being carried shall
nonetheless be deemed to be a bringing, or, as the case any gold or silver or any foreign
exchange or any Indian cui-rency. (2)No person shall, except with the general or special
permission of the Reserve Bank or the written permission of a person authorised in this F
behalf by the Reserve Bank, take or send out of India any gold; jewellery or precious stones
or Indian currency oi foreign exchange other than foreign exchange obtained by him from
an authorised dealer or from a money-changer.
2. Sec. 6(1). The Reserve Bank may, on an application made to it in this behalf, authorise any
person to deal in foreign exchange.
· (2) An authorisation under,this'Section shall be in writing and-
(i) may authorise dealings in all foreign currencies or may be restricted to authorising G
dealings in specified foreign currencies only;
(ii) may authorise transactions of all descriptions in foreign currencies or may be
restricted to authorising specified 'transactions only;
(iii) may be granted to be effective for a specified period, or within specified amounts; '
(iv) may be granted subject to such conditions as may be specified therein.
(3) Any authorisation granted under sub-section (l) may be revoked by the Reserve Bank at
any time if the Reserve Bank is satisfied that-
H
•

324 SUPREME COURT REPORTS [1987] I S.C'.R.

A (foot note rontd.)

(i) it is in the public interest to do sD;_ or
(ii) the authorised dealer has .not complied with the conditions subject to which the
authorisation was granted or has contravered any of the provisions of this Act or of any rule,
notification, direction or order maCle thereunder:
ProVided that no such authorisation i;hall be revoked on the ground specified in clause
B (ii) unless the authorised dealer has been given a reasonable opportunity for making a
representation in the matter.
(4) An authorised dealer shall, in all his dedings in foreign ~xchange and in the exercise and
discharge of the powers and of the functions delegated to him under section 74. comply with
such general or special directions or instructions as the Reserve Bank may, from time to time,
think fit to give, and except ·with the previous permission of the Reserve Bank, an authorised '
dealer shall not engage in any transaction involving any foreign exchange which is not in -(
conformity with the terms of his authorisation under this section.
c
(5) An authorised dealer shall, before undr.rtaking any transaction in foreign exchange on
behalf of any person, require that person to make snch declarations and to give such
information as will reasonably satisfy him that the transaction will not involve, and is not
designed for the purpose of, any contravention or evasion of the provisions of this Act or of
any rule, notification, direction or order made thereunder, and where the said person refuses
to comply with any such requirement or makes only unsatisfactory compliance therewith,
D" the authorised dealer shall refuse to undertake the transaction and shall, if he has reason to
believe that any such contravention or eva~:ion as aforesaid is contemplated by the person,
report the matter to the Reserve Bank.
3. Sec. 7:(1) The Reserve Bank may, on an application made to it in this behalf, authorise any
person to deal in foreign currency.
(2) An authorisation under this section shall be in writing and-
(i) may authorise dealings in all foreig 1 currencies or may be restricted to authorising
E dealings in specified currencies only;
(ii) may authorise transactions of all descriptions in foreign currencies or may be
restricted to authorising specified transactions only;
(iii) may be granted with respect to a r'articular place where alone the money-changer
shall carry on his business;
(iv) may be gr'!-nted to be effective for i specified period, or within specified amounts;
(v) may be granted subject to such co 1ditions as may be specified therein.
F (3) Any authorisation granted under sub-section (I) may be revoked by the Reserve Bank at
any time if the Reserve Bank is satisfied that:-
(i) it is in the public interest to do so; or
(ii) the money-changer has not complied with the conditions subject to which the
authorisation was granted Or has contraven~d any of the provisions of this Act or of any rule,
notification, direction or order made thereunder:
Provided that no such authorisation shall be revoked on the ground specified in clause (ii)
G unless the money-changer has been given a reasonable opportunity for making a
representation in the matter.
(4) The provisions of sub-sections (4) and (5)"of Section 6 shall, in so far as they are
applicable, apply in relation to a money-changer as they apply in relation to an authorised
dealer,
(5) Explanation-In this section, "foreign money" means foreign currency in the form of
notes, coins or travellers' cheques and "deali:1g" means purchasing foreign currency in the
H form of notes, coins or traveller's cheques or ;elling foreign currency in the form of notes or
coins.
STATE OF KERALA v. MATHAI VERGHESE [THAKKAR, J.] 325.

Why then construe the expression 'currency note' as being applicable
only to an Indian currency note and not to a foreign currency note like a dollar A
bill? There is neither any compulsion of law nor of logic for indulging in the
exercise undertaken by the High Court which in the opening part of the
judgment has been adverted to as '.judicial activism in reverse gear'.·N~r was any
ideal to be attain by doing so. Why then stretch the unstretchable? It appears
that the High Court lost its way whilst groping in the dark by a possibly B
misconceived and ill-founded argument' built on the circumstance that whilst
the explanation to Section 489 A in terms refers to a bank note issued 'underthe
authority of any State or sovereign power' similar explanation is not added in
the context of the expression 'currency note'. The High Court overlooked the
fact that there was ne.ither any occasion, nor any reason, nor any need, for doing
so. For, the expression 'currency note' as it stood was wide and pervasive
enough to embrace the currency notes issued by India as also currency notes C
issued by any other country in the world. There was therefore no need to add a
similar explanation. It would have been futile to amplify that the expression
'currency note' which on a plain reading covers 'all' currency notes meant what
it said. To read the expression 'any currency note' to mean and refer to 'Indian
currency note' is to misread the expression by doing violance both to the letter D
and spirit thereof unmindful of the fact that the former expression in its
plentitude covers the currency notes issued by any and every country of the
world whereas the letter is applicable to only one of the countries in the world.
The High Court also fell in error in being influenced by the definition of
currency notes embodied in the Indian Paper Currency Act (Act XX of 1822).
The High Court has overlooked the obvious fact that the definition contained E
in Section 2 of the said Act is only for the purposes of that particular Act and it
cannot be imported into Section 489A to 489E of the Indian Penal Code, as has
been done by the High Court.

The High Court was thus wholly wrong in exerting itself unnecessarily
and bending backwards in order to hold that Sections 489A to 489E are not F

1. "28. A person is said to "counterfeit" who causes one think to resemble another thing,
intending by means of that resemblance to practise diception, or knowing it to be likely
that deception will thereby be practised.
Explanation 1-It is not essential to counterfeiting that the imitation should be exact.
Explanation 2.-When'a person causes one thing to resemble another thing, and the
resemblance is such that a person might be deceived thereby, it shall be presumed, until G
the contrary is proved, that the person so causing the one thing to resemble the other
thing intended by means ·of that resemblance to practise deception or knew it to be
likely that deception would thereby be practised."

1. Says the High Court: ..The omission of an explanation in Sec. 489A for the expression
"currency note.. similar to the one for 'bank note' thus assumes importance. The expression
could refer only to the currency notes issued by the Government of India." H
326 SUPREME COURT REPORTS [198?] I S.C.R.

A applicable to currency notes other than Indian currency notes. And in holding
that counterfeiting of or. possessing of counterfeit dollar bills or dollar notes is
not an offence under the Indian law, thereoy issuing a carte blanche to the
counterfeiters of the world to establish their headquarters within the State of
Kerala with a view to carry on their activities with impunity under the umbrella
unwittingly opened for them by the judgment of the High Court.
B
The view taken by the High Court i! !fus thoroughly unsustainable. The
judgment and order of discharge rendered by the High Court are therefore
reversed and set aside. The matter will not to go back to the trail court for
proceeding further in accordance with law in the light of the observations made
hereinabove. Appeal is accordingly allowed to this extent.
c
M.L.A. Appeal allowed.

D

E

F

G

1. Says the High Court:-
"The expression 'currency notes' is Section 489A to 1189BE shOuld naturally refer to currency
H notes as defined in Act XX of 1822."