Holding

Section 78(5) imposes a civil penalty for contravention of Section 78(2) irrespective of mens rea, and a blank but signed Form ST‑18A/18C constitutes such contravention.

Summary

The case concerned several civil appeals arising from the imposition of penalty under Section 78(5) of the Rajasthan Sales Tax Act, 1994 (in pari materia with Section 22A(7) of the Rajasthan Sales Tax Act, 1954) for carrying goods in movement with blank Form ST‑18A/18C that had been signed but left incomplete. The Supreme Court held that the penalty is a civil liability aimed at recovering loss of revenue and does not require proof of mens rea; the statutory language of Section 78(5) expressly excludes the need to establish a guilty mind. Consequently, the presence of an incomplete declaration form constitutes a contravention of Section 78(2) and attracts automatic penalty under Section 78(5). The Court affirmed the High Court’s order, remitted the matters to the Commissioner (Appeals) for disposal in accordance with this principle, and disposed of all the appeals without costs.

Issues considered

The applicability of Section 78(5) of the Rajasthan Sales Tax Act, 1994 to cases where goods are carried with a signed but blank declaration form.
Whether mens rea (guilty intention) is a necessary element for imposing penalty under Section 78(5).
The relationship between the statutory provision and common‑law presumption of mens rea.
The distinction between penalties for non‑compliance with Section 78(2) and penalties for false or forged documents.

Legislation cited

Rajasthan Sales Tax Act, 1954s. 22A(3), s. 22A(7)
Rajasthan Sales Tax Act, 1994s. 68, s. 78(2), s. 78(5)
Rajasthan Sales Tax Rules, 1955s. Rule 53, s. Rule 54, s. Rule 62A

Subjects

sales taxpenaltymens reastrict liabilitydeclaration formRajasthan Sales Tax ActSection 78Section 22Acivil liabilitytax evasion

Judgment

f.

MIS. GULJAG INDUSTRIES A
v.
COMMERCIAL TAXES OFFICER

AUGUST 3, 2007

[S.H. KAPADIA AND B. SUDERSHAN REDDY, Jl] B

Sales Tax:

Rajasthan Sales Tax Act, 1994-s. 78(5), (2)-Rajasthan Sales Tax Rules, C
1995-Rule 53~Goods in movement carried with incomplete/blank
declaration Form ST 18A though signed by the conslgnee~Penalty under
s. 78(5)-Held: Rightly imposed~ince entire forin was left blank, declaration
by consignee was meaningless-Penalty for tax delinquency is civil obligation,
and is different.from penalty for a crime hence existence of mens rea is not
essential for imposition-Rajasthan Sales Tax Act, 1954-s.22A(7)-Rajasthan D
Sales Tax Rules, 1955.

Rajasthan Sales Tax Act, 1994-s. 78(5)-0bject of~tated

Rajasthan Sales Tax Act, 1954-s.22A(7)-Rajasthan Sales Tax Rules,
1955-Rule 62A-Requisite documents not accompanying goods in E
movement-Imposition of penalty-Held: Question as to whether penalty is
imposable or not to be decided in the light of decision in D.P. Metals*-
Matter remitted to Commissioner (appeals)-Rajasthan Sales Tax Act, 1994-
s. 78(5), (2)-Rajasthan Sales Tax Rules, 1995-Rule 53.
F
In the first batch of appeals filed by assessees, the dispute was that on
checking of the vehicles at the check post, completely blank Form ST ISA
were found with the goods in movement though they were signed by the ·
consignee. The asses.sing officer held that this indicated an intention of
· assessee to evade the tax and herice attracted penalty under s. 78(5) of
Rajasthan Sales Tax Act, 1994 (s.22A(7) ofRajasthan Sales Tax Act, 1954). G
The Appellate Authority upheld the order of assessing officer. Tax Board
allowed the appeal of assessee holding that penalty could not be imposed without
establishing guilty mind (mens rea) on the part ofassessee. Aggrieved by the
decision of Board, Department filed revision before the High Court wherein
it was held that presence of mens rea was not a sine qua non for levying penalty H
793
794 SUPREME COURT REPORTS c20011 s s:c.R.

A in case of contravention of s. 78(2) of the Act. Aggrieved assessee filed these
appeals.

In another batch of appeals filed by department, the dispute was that on
verification of the vehicles, the goods were found to be more than the quantity
shown in the bill. The driver of the vehicle did not produce the documents at
B the time of checking and therefore assessee was held liable to penalty for
breach of Rule 62A of RST Rules, 1955. Appellate authority held that non-
production of the bill at the check post indicated guilty mind to evade tax.
However, Tribunal was of the view that penalty was automatic once the driver
on demand failed to produce the documents accompanied with the goods under
C s.22A(3) of RST Act, 1954. Assessee challenged the decision of Tribunal
before the High Court. High Court held that levy of penalty was not automatic
in case where goods in movement were found to be unaccompanied by requisite
documents. Aggrieved department filed appeal.s before this Court.

Disposing of the appeals of assessees and department, the Court
rJ
HELD: 1. Existence of mens rea is an essential ingredient of an offence.
However, it is a rule of construction. If there is a conflict between the common
law and the statute law, one has to construe a statute in conformity with the
common law. However, if it is plain from the statute that it intends to alter the
E course of the common law, then that plain meaning should be accepted.
Existence of mens rea is an essential ingredient in every offence; but that
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. A penalty imposed
for a tax delinquency is a civil obligation, remedial and coercive in its nature,
and is different from the penalty fot a crime. !Para 9) (802-B-C]
F
2.1. On the face of it, there was contravention of Section 78(2) of the
RST Act 1994. Under Rule 53 of the RST Rules 1995(Rule 25C of the RST
Rules 1955) every registered dealer who imports taxable goods, for sale within
the State, is required to furnish declaration Form 18A completely filled in,
G in all respects. Under Rule 53 of the said Rules the counterfoils of the
declaration has to be retained by such consignee and its portions marked as
'original' and 'duplicate' have to be carried with the goods in movement. Under
the said Rule 53(1)(c) the driver is required to produce the declaration form,
suo motu at the check-post at the time of inspection when the competent officer
is requil'ed to retain the original of the declaration form and return the
H duplicate portion to the driver. The competent officer shall thereafter forward
J
GUUAG INDUSTRIES v. COMMERCIAL TAXES OFFICER 795
the original portion of the declaration to the A.O. of the registered dealer or A
to the authority which has issued the declaration form to the consignee.
{Para 20] (826-G-H; 827-A-CJ

2.2. Under Rule 53(2) the registered dealer is required to submit a
statement of import of goods in Form ISA to the A.O. every quarter. Under
Rule 53(4) where a registered dealer fails to furnish such statement the A.O. B
or the authority who issued the declaration forms may impose penalty under
. Section 68 of the said Act. Form 18A, is in two parts. Part-A has to be filled
in by the consignee. Part-B has to be filled in by the consignor. The nature of
... the transaction as to whether it is by consignment or by depot transfer or by
interstate sale has to be indicated by the consignee. Similarly, the consignee C
has to indicate the description of the goods. Part-B has to be filled in by the
i consignor. Part-B requires the consignor to give the estimated value of goods.
' He has also to give invoice number and the date. The declaration form is
collected by the consignee from his A.O. in the State of Rajasthan. The
consignee gives an undertaking to get Part-B filled by the consignor.
Similarly, the consignee gives a declaration that facts stated in Part-A are D
true to his knowledge. In the present case, the entire form was left blank
though it had been signed by the consignee. Therefore, the declaration given
by the consignee is meaningless. There are no facts given in Part-A. There
is no identity of the goods transported. There is no description of the goods
in movement. [Para 20) [827-C-G)
E
2.3. Under Rule 53, the vriginal has to be placed before the A.O. by the
officer at the check-post. If the form which ultimately goes to the A.O. is blank
in all material respects then it is impossible for the A.O. to assess the dealer
and it is this practice which has resulted in loss of revenue in crores to the
State. Without description of the goods imported, it is easy to manipulate the
value. If material particulars are not submitted, one fails to understand how F
assessment could be finalized. Moreover, it has become a common practice to
circulate the same form again and again resulting in loss of revenue to the
State. It is for this reason that Rule 53 of the RST Rules 1995 contemplates
the form to be submitted duly filled in and duly completed. Since the goods in
movement were not supported by duly filled in Form No.18A/18C, there was G
contravention of Section 78(2) of the RST Act 1994.
(Para 20] (827-G-H; 827-A-BJ

3.1. There is dichotomy between contravention of Section 78(2) of the
said Act which invites strict civil liability on the assessee and the evasion of
tax. When a statement of import/export is not filed before the A.O., it results H
...
I

\___

796 SUPREME COURT REPORTS [2007] 8 S.C.R.

A in evasion of tax, however, when the goods in movement are carried without
the declaration Form No.18A/18C then strict liability comes in, in the form
of Section 78(5) of the said Act. Breach of Section 78(2) imposes strict liability .....
under Section 78(5) because goods in movement cannot be carried without
Form No.18A/18C. (Para 21) (828-C-D]

B 3.2. The object behind enactment of Section 78(5) is to emphasise loss
of revenue and to provide a remedy for such loss. It is not the object of the
said Section to punish the offender for having committed an economic offence
and to deter him from committing such offem:es. The penalty imposed under
the said Section 78(5) is a civil liability. Section 78(2) is a mandatory
provision. If the declaration Form 18A/18C does not support the goods in
c movement because it is left blank then in that event Section 78(5) provides
for imposition of monetary penalty for non-compliance. Default or failure to t
comply with Section 78(2) is the failure/default of statutory civil obligation
'=
and proceedings under Section 78(5) is neither criminal nor quasi-criminal
in nature. The penalty is for statutory offence. Therefore, there is no question
D of proving of intention or of mens rea as 'the same is excluded from the
category of essential element for imposing penalty. Penalty under Section
78(5) is attracted as soon as there is contravention of statutory obligations.
Intention of parties committing such violation is wholly irrelevant. ,,.-
'
(Para 21) (828-D-ll)

E 3.3.. The modusoperandi adopted by the assessees itself indicates mens
rea. This is not the case where goods in movement are carried without the
declaration forms. The goods in movement were carried with the declaration
forms. These forms were duly signed, however, material particulars were not
filled in. The explanation given by the assessees in most of the cases is that
they are not responsible for the misdeeds of the consignors. The other
F explanation given by the assessees is regarding the language. problem. There
is no merit in these defences. They are excuses. The declaration forms were
·"
unfilled so that they could be used again and again. The forms were collected
by the consignee from the said Department. The consignee undertakes to see
that the value of the goods is supplied by the consignor. It is not open to the
G consignee to keep the column in respect of the description of goods as bhmk.·
Even the column dealing with nature Of transaction is left blank. The consignee
is the buyer of the goods. He knows the descriptions of the go~ds which he is
supposed to buy. There is no reason for leaving that column blank. Therefore,
.there are no special circumstances in any case for waiver of penalty for
contravention of Section 78(2). The assessees were fully aware that the goods >-
H in movement had to be supported by Form ST 18A/18C. Therefore, they made
-A
_J

I
~
GUUAG INDUSTRIES v. COMMERCIAL TAXES OFFICER 797
the goods travelled with the forms. However, the said forms are left blank in A
... all material respects. Therefore, A.O. was right in drawing inference of mens
rea against the assessees. (Para 21) (829-A-E)

3.4. Section 78(2) requires the goods in movement to travel with the
declaration in Form 18A/18C duly filled in. It is Section 78(2)(a) which has
been contravened in the present case by the assessee.s by carrying the goods B
with blank forms though signed by the consignee. In fact, the assessees
resorted to the above modus operandi to hoodwink the competent officer at
the check-post. If the form is left incomplete and ifthe description of the goods
is not given then it is impossible for the assessing officer to assess the taxable
goods. The declaration Form 18A/18C is like a return under the Income-Tax
Act, 1961. The Assessing Officer completes the assessment on the basis of
c
Form 18A/18C. Jf that form is left blank in all material respects then it is
impossible for the A.O. to arrive at the taxable turnover of the assessee.
(Paras 21 and 25) (829-F~G; 832-C-D)

Chairman, SEBI v. Shriram Mutual Fund and Anr., (2006) 5 SCC 361, D
referred to.
~
3.5. The-Court has to go by the words used in the section to ascertain
whether the legislature has excluded the element of mens rea. Jt is the
statutory law enacted by\the competent legislature which can exclude the
presumption under common law. Section 78(5) excludes the presumption of E
· mens rea which is normally preva;ling in common law.
[Para 231 (831-C)

Sodhi Transport Co. & Anr. Etc. Etc.· v. State of UP. & Anr. Etc. Etc.,
(1986) 1SCR939 and State of Rajpsthan and Anr. v. D.P. Metals, (2002) 1
sec 279, held inapplicable. F
4. Appeals filed by the State (Department) are those cases where the
documents did not accompany the goods in movement, like, the bills of sale,
bills of transport etc. These appeals stand on a different footing. They have
nothing to do with incomplete forms travelling along with the goods in
movement. These civil appeals filed by the State (Department) shall be decided G
in the light of the judgment of this Court in D.P. Metals*.
!Para 26) (832-F-Gl

"' State of Rajasthan and Anr. v. D.P. Metals* (2002) 1 SCC 279, referred
to.
~ H
L
798 SUPREME COURT REPORTS [2007) 8 S.C.R.

A CIVIL APPELLATE JURISDICTION : Civil Appeal No. 5197 of2005.

From the Judgment & Order dated 14. I 0.2003 of the High Court of
Judicature for Rajasthan at Jodhpur in SB Sales Tax Revision No. I 023/2002.

WITH
B
Civil Appeal Nos. 5210-5224, 5226-5240, 5243-5250, 5260-5267, 5269, 5255-
5259, 4412, 5283, 5723, 4413-4423, 4425-4426, 4429-4437, 4439-4442, 5252 and
5253 of2005.

Civil Appeal Nos. 3419 & 3420 of2007.
c Civil Appeal Nos. 1927, 2243, 2392, 2393, 2952, 2953, 3195, 5273 of2006
& 1422, 1769, 2291 of2007.

Pallav Shishodia, D.N. Mishra, B.D. Sharma, Narottam Vyas, Deep Shikha
Bharati, Vikramjeet Sikand, Subhash Chandra Birla, Subrat Birla, Dr. Manish
D Singhvi, P.V. Yogeswaran, Sunil Kumar Jain, Arvind Kr. Sharma, Naresh Kumar,
Praveen Chaturvedi, H.K. Puri, N. Ganpathy, Satyendra Kumar, Gopal
·· Sankaranarayan, Vikas Mehta, Pun it Jain, Sushi I Kumar Jain, Christi Jain, H.D.
Thanvi and Sarad Singhania for the Appearing parties.

The Judgment of the Court was delivered by

KAPADIA, J. l. Leave granted in special leave petitions.

2. In this batch of civil appeals we are required to consider the scope
· of Section 78(5) of the Rajasthan Sales Tax Act, 1994 which is in pari materia
to Section 22A (7) of the Rajasthan Sales Tax Act, 1954.

3. For the sake of convenience we may mention the facts in Civil Appeal 7
No.5197 of 2005 - Mis. Gu/jag Industries v. Commercial Taxes Officer.

4. On 21.1.95 near the Bahar Road Check Post a vehicle was checked
·in which 47 barrel of chemicals were transported from Vishakapattanam. Along
. G whh the goods, outward gate pass No.4331 dated 16.9.95 of Andhra Petro-
Chemicals Ltd. and consignment No.920 dated 16.9.95 of M/s. AVR & Co.
were found in which the name of the consignor was shown as M/s. Andhra
Petro-Chemicals Ltd. Vishakapattanam and the name of the assessee was
mentioned as M/s. Guljag Industries (assessee - appellant herein). Along
H with the goods, Form ST I 8A No.236084 was also found in which the goods
_J

GUUAG INDUSTRIES,._ COMMERCIAL TAXES OFFICER [KAPADIA, J.] 799

transported was not declared though the same was duly signed. Under the A
....
_
above circumstances the A.O. came to the conclusion that there was a
contravention of the provisions of Section 22A(3) of the Rajasthan Sales Tai
Act, 1954 (for short, 'RST Act 1954') read with Rule 62A(3) of the Rajasthiln.
Sales Tax Rules, 1955 (for short, 'RST Rules 1955'). He accordingly issued
notice under Section 22A(7) of.the RST Act 1954 calling upon Mis. Guljag
Industries to show cause why penalty was not leviable for violation of. B
Section 22A(3) of the RST Act 1954. In response to the said notice Mis ..
Guljag Industries submitted that there was mistake in filing the declaration .
form and, therefore, there was no intention of tax evasion. It was further
submitted that the said declaration Form ST '1 sA (Form No. I SA) was supposed
_to be filled in by. the consignor but. due to lack of knowledge of Hindi C
language the same could not be filled in by the consignor. The AO did not
accept the Explanation given by Mis. Guljag Ind.ustries. The AO refused to
accept the unfilled forni as a dec.laration. Accordingly, he imposed the
penalty under Section 22A(7) of the RST Act 1954. Aggrieved by the
decision of the AO, Mis. Guljag Industries preferred Appeal No.771RSTIJUC/
95-96. By order dated 10.8.99, Dy. Commissioner (Appeals) came to the D ·
conclusion that under Rule 25(3) ofRST Rules 1955 the purchasing dealer was
required to give the reqqisite declaration in Form ST I SA to the selling dealer.
According ·to the appellate authority, the responsibility to fill the form was on
Mis. Guljag Industries. That,'Mls. Guljag Industries carried on business from
Rajasthan: It was familiar with Hindi ·language. Therefore, tbe unfilled Form E
No. I SA cannot be accepted as a declaration. The appeal was accordingly
dismissed. Aggrieved by the decision of Dy. Commissioner (Appeals), Mis.
Guljag Industries carried the matter in second appeal to Rajasthan Tax Board,
Ajmer beii1g Appeal No.13751991Jodhpur. By that time Rajasthan Sales Tax
Act 1994 (for short, 'RST Act 1994 ')came to replace RST Act 1954. However,
Section 7S(5) of RST Act 1994 was in pari niateria to Section 22A(7) of RST F
Act 1954. By order dated 27.2.2002 the Board came to the conclusion that
penalty could not be imposed_ without establishiqg guilty mind (mens rea) on
the part of Mis. Guljag Industries (assessee). The appeal was allowed.

5. Aggrieved by the decision of the- Board, the Department carried the
matter in revision to the RajasthanHigh Court, By order dated 14.10.03 the G
.single Judge held that presence of mens ren was not a siiie qua non for
levying penalty io case of contravention of Section 22A(3) or' th~ RST Act.
" 1954 (Section 7S(2) of the RST Actl994). By the said order the learned single .
Judge held that in the present case Form No. I SA was totally blank though
signed by the consignee; that it was the duty of the consignee or his agent -H
800 SUPREME COURT REPORTS [2007] 8 S.C.R ..

A to see that the fonn was returned to the transporter with complete details by
the consignor. It was further held that the filling up of the form was the duty .· ·
of the consignee/importer. The learned single Judge held that ·in the
circumstances since the consignee was from Rajasthan and since· the form
was unfilled it cannot be said that_ the error was accidental. That, moreover
in both the States, namely, Andhra Pradesh (Vishakapattanam) and Rajasthan,
B there are Hindi-speaking persons. In the circumstances, the learned single
Judge held that the fonn was deliberately not filled in which indicated an
intention of the assessee Mis. Guljag Industries to evade the tax. Accordingly,
the order of the Board was set aside. Aggrieved by the order passed in
revision by the single Judge the assessee (M/s. Guljag Industr'ies) has come
c to this Court by way of Civil Appeal No.5197 of 2005.

6. In Civil Appeal No.5240 of2005 -Assistant Commercial Taxes Officer
v. Mis. Gu/jag Industries ltd. preferred by the Department the facts are as
follows.

D 7. On 1.11.90 at Abu Road Check-Post, a vehicle was checked which
was carrying goods. On search the driver furnished GR No. I dated 31.J 0. 90
issued by Mis. Delhi Bombay Road Lines. The consignment was shown to
be Mis. Sumit--Marbles, Abu Road. There was Bill No.122 dated 31.10.90.
That Bill referred to 50.31 sq. meters of granite priced at Rs.34,494 and the
name of the recipient was shown Mis. Sri Parashwanath Granites. On
E . verification of the vehicle, the goods were found to be more than the quantity
shown in the bill. On searching the vehicle two envelopes were found one
of which was of Mis. Sri Parashwanath Granites and other was of Mis.
Hindustan Granites. Being suspicious of the evasion of tax, notice under Rule
54 of RST Rules 1995 was issued on 16.11.90. The representative of the
t
F assessee appeared. He deposited the disputed penalty amount and goods
were released. In reply to the show cause notice given to the assessee
proposing levy of penalty under Section 22A(7) of the RST Act 1954, it was
submitted by the assessee that he had delivered the relevant documents to
the transporter which were found to be in the vehicle at the time of the seizure
of the goods and, therefore, the assessee was not Hable to be penalized under
G the said Section. According to the assessee (M/s. Sri Parashwanath Granites),
the driver of the vehicle had made a mistake in not producing the documents •·,
which were with him at the time of checking and, therefore, the assessee was t
not liable to be penalized for breach of Rule 62A RST Rules 1955. This

H
explanation was not accepted.
'
J

GULJAG INDUSTRIES\'_ COMMERCIAL TAXES OFFICER (KAPADIA, J_J 80}

8. On appeal, the Dy. Commissioner (Appeals) confirmed the levy of A
_,._
_ penalty. The appellate authority held that non-production of the Bill at the
check-post indicated guilty mind of the assessee to evade tax. On further
appeal, the Rajasthan Sales Tax Tribunal vide order dated 31.3.93 took the
view that mere non-production of document by the driver at the check-post
cannot result in levy of penalty. Against the order of the Tribunal, a revision 'B
was filed before the single Judge of the High Court, however, on constitution
of Rajasthan Taxation Tribunal, It stood transferred. The Tribunal took the
view that it was obligatory on the part of tfie consignee or his agent to carry
with him the requisite documents and also to produce the documents at the
check-post on demand by the officer. The Tribunal took the view that
contravention of Section 22A of the RST Act 1954 cannot be obliterated by ~
producing subsequently the documents at_ the time of assessment. The
Tribunal took the view that Rules 62A and 63 of the RST Rules 1955 have
no application. The said rules applied at the stage of assessment Accordingly,
the Tribunal held that penalty was automatic once the driver on demand failed
to produce the document lying with him or ifhe fails to produce the documents
accompanied the goods under Section 22A(3) of the RST Act 1954. According D
to the Tribunal, once the offence is complete subsequent furnishing of the
documents even -if bona fide will not relieve the owner of the goods from
liability of penalty. This decision of the Tribunal was challenged by Mis. Sri
Parashwanath Granites. By judgment dated 2.6.2004, the High Court held that
the levy of penalty was not automatic in the case where the goods in E
movement are found to be unaccompanied by the required ·documents.
According to the High Court, the question of levy of penalty would arise only
before the goods are delivered to consignee and if it is found that the goods
are in movement unaccompanied with documents. On facts the High Court
found that if for some reason the driver failed to produce these documents
at the check-post which were subsequently produced and which were not f
-false or forged, it could not be said that there was intention to evade the tax.
The High Court held that merely because the driver had not shown the
documents given to him by the assessee, could not make the assessee guilty
of contravention. Cbnsequently, the High Court held that notwithstanding
the failure on the pait of the driver to show the bill accompanying the goods G
at the time of checking but in fact recovered from its possession later on ruled
out the possibility of the docur..ent being subsequently prepared, accordingly,
the order imposing penalty Was set aside. At this stage, we may state that
even in this ruling of the High Court in the case of Sri Parashwanath Granites,'
the High Court has clarified that the case of Sri Parashwanath Granites was ,
·not the case of the documents being incorrect. On the contrary, the High H
802 SUPREME COURT REPORTS (2007] 8 S.C.R.

A Court found that the document, namely, the bill accompanying the goods was
correct in all respects and, therefore, there was no tax evasion. Consequently,
the order imposing penalty was set aside. This decision ofthe High Court
· in Sri Parashwanath Granites has been followed by the High Court in the case
of Mis. Guljag Industries. Hence, aggrieved by the said decision, the
Department has come to this Court by way of Civil Appeal No.5240 of 2005.
B
9. Existence of mens rea is an essential ingredient of an offence.
However, it is a rule of construction. If there is a conflict between the
common law and the statute law, one has to construe a statute in conformity
with the common law. However, if it is plain from the statue that it intends
C to alter the course of the common law, then that plain meaning should be
accepted. Existence of mens rea is an essential. ingredient in every offence;
but that presumption is liable to be displaced either by the words of the I
(
statute creating the offence or by the subject matter with which it deals. A
l
penalty imposed for a tax delinquency is a civil obligation, remedial and
coercive in its nature, and is different from the penalty for a crime.
D
10. Therefore, the short point which arises for determinati_ori in this
batch of civil appeals is : whether the above presumption, namely, that mens.
rea is an essential ingredient in every offence is displaced by the words of
Section 78(5) RST Act 1994.

E 11. To decide the above question we quote hereinbelow Section 22A of
the RST Act 1954 which reads as under:

'"22A Establishment of check-post or barrier and inspection of goods
while in transit. - (I) If the State Government or the Commissioner
considers it necessary that with a view to prevent or check evasion
F of tax under this Act in any place or places within the State it is
necessary so to do, it may; by notification in the Official Gazette,
direct the setting up of a check-post or the erection of a barrier or
both at such place or places as may be spedfied in the notification;

Provided that the Commissioner may not direct the setting up of
G a check-post or the erection of a barrier. for a "period exceeding six
months.

(2) At every check-post or barrier set up or erected under-sub-section
(I) or at any other place when so required by·any officer empowred f·

by the State Government in this behalf, the driver or any other person
H
GUUAG INDUSTRIES l". COMMERCIAL TAXES OFFICER [KAPADIA, J.] 803
in-charge of a vehicle, boat or animal shall stop the same and keep A
it stationary so long as may reasonably be necessary and allow the
officer-in-charge of the check-post or barrier or the officer empowered
as aforesaid to examine the goods carried in or on such vehicle, boat
or a.nimal and inspect all records relating to. the goods carried which
. """ /~ -
"" ...,.-.(!:'are in the possession .of such driver or other person incharge, who
shall, if so required, give his name and address and the name and B
address of the owner of the vehicle, boat or anial and also the names
and addresses of the consignors and consignees, if any, and in case
the consignor or the consignee is a registered dealer, whether in this
State or in any other State, the number within the name of the district
of issue of the registration certificate, if any, of such consignor or the C
consignee, as the case may be.

(3) The owner or person in-charge of a vehicle, boat or animal shall
carry with him a goods vehicle record, a tripsheet or a log book, as
the case may be, and such other document, as may be prescribed in
respect of the goods carried in or on the vehicle, boat or animal, as D
'the case may be, and produce the same before any officer-in-charge
of check-post or barrier or any other officer as may be empowered by
Government in· that behalf. The owner or person in-charge of a
vehicle, boat or animal entering the State limits or leaving the State
limits shall also give a declaration containing such particulars as may
be prescribed of the goods carried in or on the vehicle, boat or animal, E
as the case may be, before the officer-in-charge of the check-post or
barrier or the officer empowered as aforesaid and give one copy of the
declaration to such officer, and keep one copy with him.

(4) xxx xxx xxx
F
(5) The officer-in-charge of a check-post or barrier or the officer
empowered under sub-section (2) may seize or pass order to retain
under sub-section (9). [xxx] any goods which are under transport by
a vehicle, boat or animal and are not covered by a goods vehicle
record, a trip sheet or log book as te came bay be, and other G
documents prescribed under sub-sectitn (3) and when the goods
vehicle, i,oafor animal.carrying any goods enters or leaves the State
limits, Hie declaration referred to in sub-section (3) also.

(6) The officer-in-charge of the check-post or barrier or any other
officer empowered in that behalf may seize. or pass order to retain H
804 SUPREME COURT REPORTS [2007) 8 S.C.R.

A under sub-section (9) any goods (other than exempted goods) which
are under transport by a vehicle, boad or animal in respect ofwhich
the declaration is false or which are not covered by the documents
prescribed under sub-section (3):

Provided that before seizing any goods, the officer-in-charge of
B the check-post or barrier or any other officer empowered in that behalf
shall record his reasons for doing so and shall give a receipt for the
goods to the person from whose possession or control they are
seized.

Explanation 1.- For the purpose of this sub-section, "exempted goods"
c includes goods the sale or purchase of which by dealers in general
is exempt from tax without any condition or on the sole condition that
an exemption certificate, with or without payment of fee, is obtained
or the goods are recorded in the registration certificate of the dealer
claiming the exemption.

D Explanation II.- For the purpose of this section the goods under ·
transport means goods which have been handed over to a carrier and
complete delivery thereof has not been taken from such carrier.

Explanaation-111. - Carrier means any person or agency who undertakes
to carry or transport goods from one destination to another.
E
(7)-(a) The officer-in-charge of the check post or barrier or any other
Officer not below the rank of an Assistant' Commercial Taxes Officer,
empowered in this behalf may, after giving the owner or person incharge
of the goods a reasonable opportu,nity of being heard and after
holding such further enquiry as he may be deem fit, impose on him
F for possession of goods not covered by goods vehicle record, and ·r
other documents prescribed under sub-section (3) or for submission
of false declaration or. documents; a penalty equal to five times of the
rate oftax notified under section 5 of the Act, for such goods or 30%
of the value of such goods, as may be determined by such officer
[whichever is less]. .,
G
'I
Provided that where the goods are being carried without proper
documents as required by sub-section (3) or with any false declaration
or statements and the owner or the incharge or the driver of the
vehicle, boat, or animal carrying such goods is found in collusion for
H such carrying of goods, the vehicle, boat or animal shail also be
_/

GUUAGINDUSTRIESv. COMMER.CIAL TAXESOFFIGER[KAPADIA,J.] 805
seized by the Officer empowered under sub-section (7), and such A
officer', after affording an opportunity of being heard to such owner,
incharge or driver may impose a penalty [equal to five times of the rate
of tax notified under section 5 of the Act, for such goods or] (30%]
of the value of the goods being carried and shall release the vehicle,
boat or animal on the payment of the said penalty, or on furnishing B
such security in such fonn as prescribed under clause (b) of sub·S.
(7):

Provided further that when an owner, incharge or driver of a
"''.!
vehicle, boat or animal is found guilty second time of the offence
mentioned in the preceding proviso, he shall be liable to a maximum C
penalty as men.tioned in the preceding proviso and the- vehicle, boat
or animal carrying the goods may be kept, seized and detained for a
period not exceeding 30 days after the date of the payment of the
penalty or furnishing of the security.

Provided also that where a transporter is found to be in collusion D
with a trader to avoid or evade tax during the course of movement of
the goods through his vehicle; such vehicle may, after an opportunity
of being heard has been afforded be confiscated by the Commercial
Taxes Officer of the area in whose jurisdiction the case was detected,
with the prior approval in writing of the Deputy Commissioner
(Administration) having jurisdiction and in case of confiscation of the E
vehicle, no penalty shall be imposed in the preceding first proviso.

(b) Such Officer may release a~y or the goods seized under subsection
(5) or sub-section (6) on payment of the penalty under clause (a) on
furnishing such security in such fonn as may be prescribed for the F
payment thereof, as he may consider necessary.

(c) such officer may, for sufficient reasons release any of the goods
seized as aforesaid even before proceeding under clause (a) or during
the course of proceedings under that clause, on furnishing of security
of an amount equal to the estimated value of the goods to be released G
if he considers it necessary so to release the goods.

(8) All provisions of this section shall apply mutatis mut<..11dis to
........... goods and animals liable to tax under this Act which may be carried
·~ by any means of transportation other those specified in sub-section
m H
'
L

806 SUPREME COURT REPORTS (2007) 8 S.C.R.

A (9) An officer empowered under this section shall have the power to.
inspect goods under transport including the documents and records
relating thereto, and may direct a carrier not to part with the goods
including re-transporting or re~booking till such verification is done or
such enquiry is made as is deemed necessary by such authority.

B . (10) No order of penalty under this section shall be quashed or
deemed to be void or voidable for want of seizure or mistake, defect
or omission in seizure."

12 We also quote hereinbelow Rule 62A of the RST Rules 1955 which
reads as under:
c
'"(62A) Documents prescribed under section 22A(3) -

(I) The owner or person incharge of a vehicle, boat or animal shall
carry with him a bill of sale or dispatch memo, and declarations as
provided under the Act and Rules.
D
Provided that no such bill of sale, despatch memo or declarations
shall be necessary to be carried or furnished at check-post, in respect
of personal effects otherwise than the goods referred to in sub-rule
(2) of any person or exempted goods as defined in the explanation to
sub-section (6) of Section 22A.
E
(2)(a) If any person other than a registered dealer· within the State
wants to purchase from outside the State .atfy goods, as notified by
the State Government, of the value of rupees one thousand or more
for use, consumption or disposal within the State, he shall make and
furnish cir cause to be furnished declaration in Form S.T.18, the blank
F forms of which shall be obtained by him on simple application
alongwith payment of a fee of rupee one for each form, from the
Commercial Taxes Officer concerned of his area where he ordinarily
resides. The counterfoil of the declaration shall be retained by such
person and its portions marked original and duplicate shall be produced
G before the officer-in-charge of the check-post, who shall retain such
original po11ion and return such duplicate portion only related in
token of having vP~ified it to the person producing i(

Provided that where any person importing scooters moped and
motor cycles does not avail of the procedure and/or permission fri
H form ST 18 as prescribed herein above, he shall given intimation of
GUUAG INDUSTRIES v. COMMERCIAL TAXES OFFICER [KAPADIA, J.) S07
particulars as prescribed in Part 'A' ofform·s'f 18AA herein prescribed A
· duly verified and signed by him at least two weeks before the goods
are dispatched from outside the State to the Commercial Taxes Officer
of the area in which he ordinarily resides and shall obtain two
duplicates copies of the said Form duly received or countersigned
from the office of the said Commercial Taxes Officer, .and one copy of B
ST Form I SAA with its Part A duly filled by him shall be produced ·
or caused to be produced by him along with a declaration as prescribed
in Part B of form ST 18AA duly verified and sign~d by the driver or
any other person incharge of the vehicle, boat or animal or of the
goods before the officer-in-charge of the entry check-post of the
state, who shall retain the same. C
(b) Any person obtaining Form S.T. 18 under clause (a) shall not in
any manner transfer it to any other person obtaining Form ST I 8
under clause (a) shall not in any manner· transfer it to any other
. -person for use under the said clause, or shall not authorize any other
· person for such use on his behalf. D
(c) If any Form S.T. 18 obtained under clause (a) is lost, destroyed or
stolen, the person concerned shall immediately report in writing in this
behalf to the officer from whom such form was obtained.

(d) The application to obtain Form S.T.18 under clause (a) shall be E
rejected ifthe Commercial Taxes Officer is satisfied that such form is
not required for bonafide use under the said clause.

(3) A registered dealer, -

(a) who imports any goods as notified by the State Government for
sale, use in the manufacture of processing of goods for sale or F
in mining or generation or distribution of electricity of any other
form of power or packing of goods for sale, or

(b) who receives any goods consigned to him from outside the
State for sale,

Shall make and furnish or cause to be furnished declaration in G
form
. S. T. I 8A. The counterfoil
.
of the dec'1ration shall be retained .
by such dealer and. its. portion marked original ·and \iuplicate ·
shall be produced before the officer~in-charge ?f the check-post ·
who shall retain such original portion and return such duplicate
portion duly sealed in token of having verified it to the person H
808 SUPREME COURT REPORTS (2007) 8 S.C.R.

A producing it. Such duplicate portion of the declaration'shAII be
furnished by tbe dealer along with his quarterly statement, in
form S.T. 6 to the Assessing Authority.

Provided that Form S.T. ISA need not be furnished if the goods
are goods of the class or classes specified in the certificate or
B registration under CST Act I 956 of the registered dealer
purchasing the goods as being intended for use bY,, him in the
.manufacture or processing of goods for sale or mining or in the
generation or distribution of electricity or any other form of ·
power.

c Provided further that form S.T. ISA need not be furnished ifthe
goods consigned to the State of Rajasthan are High and Light
Speed Diesel Oil, Petrol and Aviation Spirit.

(4) The provisions of sub-rule (2), (4), (5), (6), (8), (9), (10), (I I) and
(12) ofrule 15C shall, in so far as may be, mutatis mutandis apply to
D declaration Form S.T. I 8A."

13. We also quote hereinbelow Rule 25-C of the RST Rules I955 which
reads as under:

"25-C. Furnishing of declaration.-(1) A dealer who is entitled to and
claims-
E
(i) exemption from payment of tax; or
(ii) payment of tax at a concessional rate.
(a) on sales made to a registered dealer of goods taxable at the last
point ·for the purpose of-
F
(i) resale within the State; or
(ii) sale in the course of inter-State .trade or commerce; or
(iii) sale in the course of export out of the territory of India, or

G (iv) sale outside the State; or
(b) on the sale of any raw material eligible for concessional rate of
tax, under section 5C: or
(c) . on sales of any such goO"ds as may be exempted from tax, on
the condition of furnishing.declaration, shall in respect of each
H such sale, obtain declaration from the purchasing dealer in Form
GULJAG INDUSTRIES i-. COMMERCIALTAXES OFFICER [KAPADIA, J.] 809

17 and shall, alongwith the return under rule 25, file all A
declarations obtained as aforesaid and also submit a separate
list of such sales in Form ST 16.
Provided that all declarations obtained as aforesaid shall be filed
by the dealer before or at the time of assessment or within such
further time as the assessment may for sufficient cause, permit. B
Provided further that no declaration shall cover than one
transaction except where the total amount covered by one
declaration does not exceed Rs.2 lac for all the transaction in six
months.
Provided further that notwithstanding anything contained in C
sub-rule(l), if the Commissioner, on an application made by a
dealer and after making such enquiry as he may consider
necessary, is satisfied that the dealer is not )n a position to
furnish all or any of the declaration referred to in sub-rule (I)
above, on c:ccount of loss of such declaration(s), subject to the D
conditions that the application is made within 45 days of such
event supported by the evidence of loss of such declaration
fonn.
Provided that an application under the preceding proviso may·
be made upto 31.12.89 in relation to riots occurred in Makarana E
Circle in March 1989.
(I a) A dealer who claims concession from payment of tax on the sale
of raw material to any notified industry under section 5-CC or to any
manufacturer under any notification issued under section, 4(2) shall in
respect of such sale obtain a declaration from the purchasing F
. manufacturer in Form 17-A and shall, file such declaration .before or
at the time of assessment unless earlier required by the Assessing
Authority and also submit a separate list of such sales in Form ST 16.
Provided that no declaration shall cover more than one transaction
except where the total amount covered by one declaration does G
not exceed R.2 lac for all the transactions in 6 months.

(lb) (i) The goods referred to in sub-section (l) of section 5 CCCC
which a registered dealer may purchase, shall be the goods intended
for use by him as processing material (other than.raw materials) such
as machinery, plant, equipment, tools, stores spare parts and H
. 810 SUPREME COURT REPORTS [2007] 8 S.C.R .

A accessories in the manufacture or processing of goods for sale, or in
mining or in the generation or distribution of electricity:

(ii) A dealer,· who claims special rate of tax on the sales of goods
referred to in sub-section (I) of section 5 CCCC shall in respect
of such sale obtain a declaration from the purchasing
B manufacturer iri Form ST I 7C and shall file such declaration
before, or at the time of assessment unless earlier required by
the Assessing Authority and also submit a separate list of such
sales in Form ST 16:
Provided that no declaration shall cover more than one transaction
c except where the total amount covered by one declaration does
·not exceed Rs.2 Lac for all the transactions in six months.

(2) Blank declaration Forms ST 17, ST 17A, ST I 7B, ST 17C and ST
I SA may be obtained from· the assessing authorities on payment in
the assessing Government Treasury a sum of Rs.12/- for each book
D containing 25 Declaration Forms.

(2a) Every declaration form shall be authenticated by the Assessing
Authority with date of issue at the time of issuing of declaration forms
to the dealer and such forms shall remain valid for 2 years from the
date of issue.
E Explanation. - Where the declaration forms were issued before
the insertion of this sub-rule, they shall remain valid only upto
180 days from the date of insertion of this sub-rule or 2 years
from the date of issue, whichever is later.

(3) Before furnishing the declaration to the selling dealer, the purchasing
F dealer or any person authorized by him in his behalf shall fill in all the
required particulars in the form and shall also affix his usual signature
in the scope provided in the form for the purpose, thereafter, the
counterfoil of the form shall be retained by the purchasing dealer and
the other two portions marked original and duplicate shall be made
G over by him to the selling dealer.

(4) Any unused declaration form or forms remaining in st'"lck with a
registered dealer on the cancellation of his registration certificate shall f
be surrendered to the Assessing Authority.

H (5) No registered io whom a declaration form is issued by the Assessing
J
j.

GUUAG INDUSTRIES 11. COMMERCIAL TAXES OFFICER [KAPADIA, J.] 811

Authority shall either directly or through any other person transfer A
the same to any other person.

(6) The State Government may, by notification, declare that forms of
· a particular series, design or colour sh.all be deemed as obsolete and
invalid for use with effect from such date as may be specified in one
notification. B
(7) A dealer who claims to have made such sales as are envisaged in
sub-rule (I); or (la) or (lb) to another de.aler shall in respect of such
claim, produce before the Assessing Authority the portion marked
"original" of the declaration received by him from the purchasing
dealer. The Assessing Authority may in his discretion, or in case of C
loss of the original foil of the declaration may direct the selling dealer
to produce for inspection or record the portion of the declaration
marked "duplicate".

(8) No purchasing dealer shall give, nor shall a selling dealer accept
any declaration except in a form obtained by the purchasing dealer, D
on application from the Assessing Authority and not declared obsolete
and inyalid by the State Government under the proviso to sub-rule (6).
Every r'~claration form obtained from the Assessing Authority by a
dealer shall be kept by him in safe custody and he shall be personally
responsible for the loss of Government revenue, if any, directly or E
indirectly from any theft c. loss thereof. Every registered dealer to
whom any declaration form is issued by an Ass.essing Authority, shall
maintain in a register in Fonn S.T. 16-A a.true and complete account
or every such form received from the Assessing Authority. If any
such form is lost, destroyed or stolen the dealer shall report the fact
to the Assessing Authority concerned and shall make appropriate F
entries in the remarks column of the register in Fonn S. T. 16-A and
take such ot.her steps to issue public notice of loss, destruction or
theft as the Assessing Authority may direct.

(9) ·A declaration form in respect of which a report has becrn received
by an Assessing Authority under sub-rule (8) shall not be valid for G
the purpose of sub-rule (I) or (I a) or (I b).

(I 0) Every p1.1rchasing dealer shall maintain in Fonn S. T.. l 6A a true
and complete account of his purchases made on the strength of
declarations in Fonn ST. l 6A.
H
'"

812 SUPREME COURT REPORTS (2007) 8 S.C.R.

A (11) For obtaining declaration fonns referred to in sub-rule (I) or (la)
or (I b) a registered dealer or the owner or representative of an
undertaking, as the case may be, shall apply in Fonn ST 16-B to the
concerned stating his requirement of such forms and shall furnish
such other particulars, statements and information and produce such
other documents as the Assessing Authority may require for the
B purpose of satisfying himself about the bonajide use of such fonn
issued to the applicant as previous occasion and bonafide nature of
the applicant's requirement of such fonns.

(12) (a) If for reasons to be record in writing -

c (i) the Assessing Authority is not satisfied that the applicant
has made proper use of such forms previously issued to him or
that he actually requires such fonns he may reject the application.

(ii) The Assessing Authority is not satisfied that the applicant
requires the forms in such numbers as he has applied for he may
D issue such fonns in such lesser number as, in his opinion, could
satisfy the reasonable requirements of the applicant.

(b) If the applicant for declaration fonns is, at the time of the applicant,
found to have failed to comply with an order demanding security from
him under sub-section (7) of section 6, the Assessing Authority may
E reject the application.

(c) If the applicant for declaration fonns has at the time of making the
application defaulted in payment of any outstanding demand or in
paying tax according to sub-section (2-A) of section 7 or in furnishing
any return or returns together with the receipted challan or challans
F showing payment of the tax due from him according to such return
or returns for the furnishing of which prescribed date or the extended
date or dates, if any, have already expired, the Assessing A~thority
shall withhold the issue of declaration from to him until such time as
he:-

G (i) deposits the outstanding demand;

(i-a) pays tax according to sub-section (2-A) , f section 7 of the Act;

(ii) furnishes such return or returns, together with such receipted
challan or challans; and
H
_ GUUAGINDUSTRIESi·.COMMERCIAL TAXESOFFICER[KAPADIA,l] 813
(iii) furnishes any other return or returns together with the receipted A
challan or challans showing payment of the tax due according to such
return or returns for the furnishing of which_ the prescribed date or
dates or the extended date or dates, if any, may have expired after the
date of the application;

Provided that in a case coming under this clause, the Assessing B
Authority may, instead of withholding the declaration forms, issue
such forms in such number and subject to such conditions and
restrictions and may be considered reasonable, to an applicant, if in
the opinion of the Assessing Authority it is desirable in the interest
of speedy collection of sales tax revenue to grant time to the applicant
to pay up the arrears of tax in on lump sum or in instalments. C
(d) Where the Assessing Authority does not proceed under clauses
(a)(b) or (c), he shall issue the requisite number of declaration forms
to the applicant.

(13) The dealer who reports loss theft or destruction from his custody D
of a blank or duly completed form, shall be required to furnish security
by way of an indemnity bond against any possible misuse of the form:

Provideri that where a form duly completed and signed is reported
to have been lost, stolen or destroyed while in transit between
the purchasing dealer and the selling dealer or between the E
selling dealer and the Assessing Authority, the purchasing dealer
or as the case_ may be, the selling dealer, shall be required to
furnish security as aforesaid.

(14) In the case of a purchasing, dealer, security under sub-rule (13)
shall be of such amount as may, having regard to the circumstances F
of the case, be required by the Assessing Authority from whom he
obtained the form and shall be furnished to such authority within
such period as he may specify:

{15) Where the security under sub-rule (13) is to be given by the
selling dealer, _it shall be of such amount as may, !having regard to the G
circumstances of the case, be required by the Assessing Authority to
whom such dealer has to submit his periodical returns of turnover and
·shall be furnished to such Assessing Authority within such period as
he may specify.

H
814 SUPREME COURT REPORTS [2007] 8 S.C.R.

A (16) Security required under sub-rule (13) shall be furnished separately,
in respect of each form declared as lost, stolen or destroyed."

14. We also quote hereinbelow Section 78 of the RST Act 1994 which ··
reads as under:

B "78. ESTABLISHMENT OF CHECK-POST AND INSPECTION OF
GOODS WHILE IN MOVEMENT: -

(I) The Commissioner may, with a view to prevent or check
avoidance or evasion of tax, by notification in th~ Official Gazette,
direct the setting up of a check-post at such place and for such
c period as may be specified in the notification, and every officer
·or official who exercises his powers and discharges his duties
at such check-post by way of inspection ofdocumentS produced
and goods being moved, shall be its lncharge ..

(2) The driver or the person incharge of a vehicle or carrier or of
D goods in movement shall,-

(a) carry with him a goods vehicle record including "challans" and
"billies", bills of sale or despa_tch tnetnos and prescribed declara..ti~m
fonns;

(b) stop the vehicle or carrier at every check-post set up und~r Su_b-
E section (I);

(c) produce all the documents including prescribed declarationforms
relating to the goods before the Incharge of the check-post.'

(d) give all the information in his possession relating to the goods; ..
F and

(e) allow the inspection of the goods by the Incharge of the check-
post or any other person authorised by such lncharge.

EXPLANATION (I):-

G For the purposes of this chapter,- -r..
. (i) "vehicle or carrier" shall i11clude any means of transportation
includin~ an animal to carry goods from one point to another point; .

(ii) "goods;' shall include animals also; arid ·
H
'
GUUAG INDUSTRIES v. COMMERCIAL TAXES OFFICER [KAPADIA, J.] 815
(iii) "goods in movement" shall means,- A
(a) the goods which are in the possession or control of a transporting
agency or person or other such bailee;

(b) the goods which are being carried in a vehicle or carrier belonging
to the owner of such goods; and B
(c) the goods which are being carried by a person.

(2A) The State Government may require by notification that the
documents required to be furnished under sub-section (2) shall be
furnished by means of such electronic devices, and be accompanied C
by such processing fee as may be prescribed.

(3) Where any goods are in movement within the territory of the State
of Rajasthan; an officer empowered by the State Government in this
behalf may stop the vehicle or the carrier or the persons carrying such
goods, for inspection, at any place within his jurisdiction and the
1
D
provisions of Sub-section (2) shall mutatis mutandis apply.

(4) Where any goods in movement, other than exempted goods, are
without documents, or are not supported by documents are referred
to in Sub-section (2), or documents produced appear false or forged,
the lncharge of the check-post or the officer empowered under Sub- E
section (3), may,-

(a) direct the driver or the person incharge of the vehicle or
carrier or of the goods not to part with the goods in any manner
including by retransporting or rebooking, till a verification is
done or an enquiry is made, which shall not take more than F
seven days;

(b) seize the goods for reasons to be recorded in writi11g and
shall give a receipt of the goods to the person from whose
possession or control they are seized;

(c) release the goods seized in Clause (b) to the owner of the G
1

goods or to anybody else duly authorised by such owner, during
the court of the proceeding if adequate security of tht amount
equal to the estimated value of the goods is furnished.

(S) The lncharge of the check-post or the officer empowered under
Sub-section (3), after having given the person incharge of the goods H
816 SUPREME COURT REPORTS [2007) 8 S.C.R.

A a reasonable opportunity of being heard and after having held such
enquiry as he may deem fit, shall impose on him for possession or
movement ofgoods, whether seized or not, in violation ofthe provisions
of Clause (a) of Sub-section (2) or for submission of false or forged
documents or declaration, (a) penalty equal to thirty per cent of the
value of such goods).
B
(6) During the pendency of the proceeding under Sub-section (5), if
anybody appears before the Incharge of the checkposl or the officer
empowered under Sub-section (3) and prays for being impleaded as
a party to the case on the ground of involvement of his interest

c therein the said Incharge or the officer on being satisfied may permit
him to be impleaded as a party to the case; and thereafter, all the
provisions of this section shall mutatis mutandis apply to him.
t'
. (7) The Incharge of the check-post or the officer empowered under l
Sub-section (3) may release the goods to the owner of the goods or I-
D to anybody else duly authorised by such owner, it seized and not
already released under clause (c) of sub-section (4), on payment of
the penalty imposed under sub-section (5) of on furnishing such
security for the payment thereof, as such lncharge or officer may
consider necessary.

E (8) Where the driver or the person incharge of the vehicle or the·
carrier is found guilty for violation of the provisions of Sub-section
(2), subject to the provisions of Sub-section() 0), the Incharge of the
check-post or the officer em.powered under Sub-section (3) may detain
such vehicle or carrier and after affording an opportunity of being
heard to such driver or person incharge of the vehicle or the carrier,
F may impose a penalty on him as provided in Sub-section (5).

(9) The Incharge of the check-post .or the officer empowered under
Sub-section (3) may release the vehicle or the carrier on the payment
of the amount of penalty imposed under Sub- section (8) or on t-
G
furnishing such security as may be directed by such Incharge or l
Officer. I
(10) Where a trans..iorter, while transporting goods, is found to be r
in collusion with a trader to avoid or evade tax, the lncharge
of the check-post or the officer empowered under Sub-section (3) shall r
detain the vehicle or carrier of such transporter and after affording him l
H I

\
_j
GULJAG INDUSTRIES v. COMMERCIAL TAXES OFFICER [KAPADIA, J.) 817

an opportunity of being heard and with the prior approval in writing A
of the Deputy Commissioner (Administration) having jurisdiction, may
confiscate such vehicle or carrier.

(11) If a transporter fails to give infonnation as required from him
under Clause (d) of Sub-section (2) about the consignor, cor:signee
or the goods within such time as may be specified or transports the B
goods with forged documents, besides imposing the penalty under i

Sub-section (5), it shall be presumed that the goods so transported :
have been sold in the State of Rajasthan by him and he shall be
deemed to be a dealer for those goods under this Act.

(12) The provisions of this Act shall for the purpose of levy, collection C
and assessment of tax, detennination of interest, payment and recovery
of tax and interest, appeal, review or revision, apply to the transporter
deemed to be a dealer under Sub-section (11)."

(emphasis supplied by us)
D
15. We also quote hereinbelow Rules 53 and 54 of the RST Rules 1995
which read as under:

"Rule 53. Declaration fonn required to be carried with the goods in
movement for imports within State.-
,E
(l)(a) A registered dealer-

(i) who imports any taxable goods as may be notified by State
Government for sale, except when the goods are the goods of the
class· or classes specified in the certificate of registration under the
Central Sales Tax Act, 1956, of the registered dealer purchasing the F
goods and are purchased for mining or in generation or distribution
of electricity or any other fonn of power ; or

(ii) who receives any goods as may be notified by the State Government
consigned to him from outside the State ; or

(iii) who intends to bring import or otherwise receives any goods from
G
outside the State, as may be notified by the St'\te Government of the
value of Rs. I0,0001- or more for use, consumption or disposal otherwise
than by way of sale; shall furnish or cause to be furnished a declaration
in form ST 18A completely filled in all respect in ink. The counterfoil'
of the declaration shall be retained by such dealer and its portions ' H
'x_
...
818 SUPREME COURT REPORTS [2007) 8 .S.C.R.

A marked 'Original' and 'Duplicate' shall be carried with the goods in
movement and in case the ·goods are transported. through railways,
such portion shall be accompanied with the goods during .their
movement from railway premises to the place of business.

(b) Any dealer or person other than a Registered dealer:-
B (i) who imports any taxable goods as may be notified by the State
Government; or

(ii) who req:ives any goods as may be notified by the state Government,
consigned to him from outside the State, or

c (iii) who intends -~o brin~ import or otherwise· receives any goods
from outside the State, as may be notified by'the State Government,
of the value of Rs. I 0,000/- or more for use, consumption or disposal <
within the State; shall furnish or cause to be furnished a declaration
in Form ST 18AA, completely filled in all respect in ink. The Counterfoil
of the declaration shall be retained by such dealer or person and its
D
portions marked "Original" or "Duplicate" shall be carried with the
goods in movement.
~

(c) The driver or the other person in-charge of a vehicle or carrier
of goods in movement shall carry · with him the documents
specified in clause (a) of sub-section (2) of section 78 and
E
declaration prescribed in clause (a) or (b) of this sub-rule, in
respect of the goods in movement and shall produce the same,
suo motu before the in-charge of the entry check-post ar the
time of entry within the State or before the officer empowered
under section 78, at the time of inspection under sub-section (3)
F of section 78, who shall retain the original portions of the
declaration form and return the duplicate portion after signature
and making seal. in token of having verified 'it, to the ·person
producing it, and such officer shall send the retained original
portion ofthe declaration form to the assessing authority of the
registered dealer or to the authority who issued the declaration
G forn1; in the case of dealer or other person other than registered ..,
._
,,
-:lealer.
(d) If the declaration form referred to in clause (a) or (b) in respect
"
of the goods in movement has already been submitted to the

H
incharge of the entry check-post or to the officer empowered
."'
GUUAG INDUSTRIES l'. COMMERCIAL TAXES OFFICER [KAPADIA, J.] 819
under section 78, any person transporting the goods shall, on A
inspection by an officer empowered under seetion 78, at any
subsequent place, produce the countersigned and sealed copy
of the aforesaid declaration along with other documents specified .
in clause (a) of sub-section (2) of section 78.

Explanation : - (I) For the purpose of this rule, "taxable-goods" B
means all goods, except the goods the sale or purchase of which by .
dealers is generally exempt from tax without any condition or on the
sole condition that an exemption certificate with or without payment
of fee is obtained or that the goods are recorded in the registration
certificate of the dealer claiming the exemption.
c
(2) The registered dealer shall submit a statement of import of goods
in Form ST 18 along with the duplicate portions of the Form ST 18A
and in case original portion of the Form ST 18A has not been retained
by any officer mentioned in sub-rule (1), it shall also be furnished
along with the duplicate portions of Forms ST l 8A to his assessing
authority every quarter within thirty days from the close of the quarter. D

Explanation :- Quarter means the period of three months ending
on 30th June, 30th September, 31st December or 31st March.
(3Xa) Any dealer, or the person other than registered dealer as
mentioned in clause (b) of sub-rule (1 ), shall obtain the Form ST E
l 8AA on payment of fee of Rs. I 0/- per form, from the assessing
authority having jurisdiction over the area where his principal
pface of business. is _situated or in case there is no such place,
where· he ordinarily resides.

(b) The Form ST l8AA, issued under clause (a) shall be valid p
. for twenty. one days from the date of issue of the declaration
form. If the form cannot be made use within the said period of
twenty one days, the form shall be returned to the issuing
authority within ~hirty days, from the date of issue of declaration
fonn ..
G
(c) Such dealer or person shall submit a statement of import of
goods along with the dupli~ate portion of the Form ST l 8AA,
and in case original portion of Form ST I SAA has not been
retained by any officer mentioned in sub-rule (l ), it shall be
furnished with duplicate portion of Form ST I SAA, to the issuing
H
820 SUPREME COURT REPORTS [2007] 8 S.C.R.

A authority above mentioned, within a period of thirty days, from
the date of issue of declaration form, t~ h!ll'}·

(4) Where a registered dealer or any other dealer or person other than
registered dealer, fails to furnish statement as mentioned in sub-rule
(2) or (3) above as the case may be the assessing authority or the
B authority who issued the declaration fonn, after affording a reasonable
opportunity of being heard, may impose penalty under section 68 of
the Act.

(5) The provisions of sub-rule (5), (6), (7), (8), (9), (10), (11), (12), (13), >-
(14), (15), (16), (17), (18), (19) and (20) of rule 23 shall in so far as may
C be mutatis mutandis apply to the declaration Form ST ISA.

(6) Where Fonn ST I 8A and ST I SAA is out of print or in short ,_
supply or otherwise not available in zone, the Commissioner may
issue such instructions as he deems proper in view of the circumstances
of the case."

"54. Declaration required to be carried with the goods in movement
for export out of Rajasthan or in the course of interstate trade or ~
commerce;

(I) A registered dealer who dispatches any goods taxable within the
E state to a place out of the state:-

(i) for sale outside the state or
(ii) in the course of interstate trade or commerce, as notified by the
State Government shall furnish or cause to be furnished a
declaration in form ST I SC completely filled in all respect in ink.
F Such dealer shall retain the counterfoil of the fonn within him
and shall produce or cause to be produced the portion marked
"original" and "Duplicate" before the lncharge of the exit
checkpost/Officer empowered under section ~8, who shall retain
the original portion and return the duplicate portion after marking
G seal in token of having verified It, to the person producing it,
and such officer shall send the retained original portion of the
Fonn ST I SC to the assessing authority of the dealer.
]\.
r
(2) The dealer shall submit a statement of export of goods in Fonn
ST 188 along with the duplicate portion ofform ST l8C and in
case original portion ofFonn 18C has not been retained by any
H
I

GUUAG INDUSTRIES v. COMMERCIAL TAXES OFFICER [KAPADIA, J.) 821
officer mentioned in sub-rule (I), it shall also be furnished along A
with duplicate portion of form ST l 8C to his assessing authority
every quarter within thirty days from the close of the quarter.
Explanation: - Quarter means the period ofthret: months ending
on 30th June, 30th September, 31st December and 31st March.
(3) Where a dealer fails to furnish the statement as mentioned in B
sub-rule (2) above, the assessing authority after affording a
reasonable opportunity of being heard, may impose penalty
under section 68 of the Act.
(4) The provisions of sub-rules (S), (6), (7), (8), (9), (10), (11), (12), C
(13), (14), (IS), (16), (17), (18), (19) and (20) of rule 23 shall, in so
far as may be mutatis mutandis apply to declaration Forms ST
18C.
(S) Where Form ST I 8C is out of print or in short supply or otherwise
not available in a zone, the Commissioner may issue such
instructions as he deems proper in view of the circumstances of D
the case.
(6) After the existing Form ST SB and before Form s:r 6, the following
Form ST SC shall be inserted."

16. We also quote hereinbelow Rule SS(3) of the RST Rules 199S which E·
reads as under:

"SS. Delivery of documents and seizure of goods.-

(l) & (2) xxx xxx xxx

(3) Where, a person-incharge of the goods or the driver, as the case F
may be, does not possess any document and declaration form in
respect of the goods in movement, or refuses to deliver the documents
and the declaration form, or the documents and the declaration form
produced appear to be false or forged, the incharge of the check-post
or the officer empowered under rule S2, may get such goods unloaded G
from the vehicle or the carrier and seize the same and shall issue a
·receipt of the goods so seized in form ST 20."

16A. We also quote hereinbelow Section 68 of the RST Act 1994 which
reads as under:
H
822 SUPREME COURT REPORTS [2007) 8 S.C.R.

A "68. Penalty for other violations. - Where any dealer or a person fails
to comply with a direction given by any officer or authority appointed
or constituted under this Act or violates any of the provisions of this
Act or the rules, for which no specific penalty has been provided
elsewhere under the Act or the rules, the assessing authority or any
other officer not below the rank of Assistant Commercial Taxes Officer
B as authorized by the Commissioner, may direct that such person shall
pay by way of penalty a sum not exceeding Rs.2000/- and in the case
of continuing default, a further p.enalty of Rs.25/- for every day of
such continuance.

C 17. We also quote hereinbelow declara•ion Forms ST J8A and ST 18C
which read as under:

"!FORM s:r. 18AI
(See Rule 53)
DECLARATION FOR IMPORTS BY
D REGISTERED DEALERS.

Counterfoil/Duplicate/Original

Book No. Serial No. _ _ __
---
E Seal of Issuing Authority
Name of the Office of issue
Date of· issue
To,

F The In-charge Check-post ........... ..

Declared and Certified that the goods, particulars of which are
given below, have been imported by me/u.s from outside the State for
purposes mentioned in rule 53, and hold myself/ourselves liable for
payment of tax as per law to the Government on the sale thereof.
G
r

GUUAG INDUSTRIES v. COMMERCIAL TAXES OFFICER (KAPADIA, J.] 823
PART-A A
(To be filled in by Consignee)
(I) Name and complete
address of the Consignor

(2) (a) Name and complete
address of the consignee
B
(b) R.C. No. ofthe
consignee under
RST Act
CST Act
c
;.. (3) Nature of the transaction:-
(a) Consignment; or
(b) Depot transfer; or
(c) Inter-State sale; or
(d) Any other nature
D
I. Description of the goods - - - . . , - - - - - -
PART-:-B

(To be filled in by the consignor or person authorized)
E
I. Price/estimated value of goods in Rs .... , ................ .
2. Invoice No./Challan No. and date.
3. (a} Name and full address of the carrier
("Transport Co. or owner of the vehicle)
F
(b) Registration No. of the· vehicle---..,------

1, .. ,.... ~ ............... Proprietori Partner/ Director/ Karta/ Manager/
Secretary of M/s, hereby declare that the facts stated
above in PART-A are true to the best Qfmy knowledge and belief and
nothing has been concealed. I also undertake the responsibility to G
get filled up PART-B from the consignor.

Seal of the consignee or of Signature and status. of
\ the Dealer with . the person signing the
R.S. T./C.S. T. Nos. declaration.
(emphasis supplied by us)" H
' .>

824 SUPREME COURT REPORTS [2007) 8 S.C.R.

A
"COUNTERFOIL
ORIGINAL
DUPLICATE

B
!FORM S.T. 18CI
(See Rule 54)

DECLARATION FOR CARRYING GOODS OUTSIDE IBE STATE BY
REGISTERED DEALERS
c
Book No._ __ Serial No._ _ __
Seal of Issuing Authority

D Name of the Office of issue
Date of issue

To,

The Check-post In-charge,
E

Certified that the goods, particulars of which are given below by
me to ................... (place) outside the State of Rajasthan as a result of
interstate sale or for sale outside the State or in the form of branch
transfer or by principal to outside agent or vice versa and I hold
F
myself liable for payment of tax as per law: -.

I. Name and
address of the Consignor

2. Registration No. of the consignor
G
under RST Act and CST Act

3. Name and
address of the Consignee with

H
{

GUI.JAG INDUSTRIES v. COMMERCIAL TAXES OFFICER [KAPADIA,J.) 825
R.C. No. under A
... RST Act
CST Act
4. Nature of the transaction:-
(a) Inter-State sale
(b) Despatch for sale B
outside the State
(d) Any other nature

5. Description of the goods
(a) Taxable goods.
(d) Tax Paid goods c
6. Quantity of the packages/goods

7. Weight of the goods.
8. Value/Estimated value of the goods (in Rs.) D
9. Consignor's invoice/Challan No.
and Date

10. (i) Name and full
address of the transporter
E
(Transport Company or owner
of the vehicle or carrier.)

(ii) Registration No. of the
vehicle or carrier.
F
I, ....................... Proprietor/ Partner/ Director/ Karta/Manager/
Secretary hereby declare that the facts stated are true to the best of
my knowledge and belief and nothing has been concealed.

Seal of the consignor with Signature and status of
G
R.S. T./C.S. T. the person signing the
Registration Nos. declaration.
\
Date..........................."

H
826 SUPREME COURT REPORTS [2007] 8 S.C.R.

A 18. Since the RST Act 1954 has been substituted verbatim by the RST
Act 1994 we prefer to analyse the RST Act 1994.

19. The said RST Act 1994 came into force on 1st October 1995.
Section 3 of the RST Act 1994 states that if the turnover of a dealer exceeds
Rs.50,000/- in case he is an importer and if his turnover exceeds Rs.1,00,000/
B - in other case, he shall be liable to get registration under the Act. Under
Section 4, the tax payable by a dealer shall be at .a ~ingle point in the series
of sales by successive dealers. Under Section 6, it is stated that in case of
a dealer other than a manufacture or processor whose total accessible
purchases in a year does not exceed Rs. I 0 lakhs may be allowed by the AO
C to pay tax on aggregate basis. Section 7 refers to payment of self-assessed
tax. Section 12 refers to levy of tax on the turnover at each point of sale by
the dealer. Section l 3A deals with levy of turnover tax. Chapter VIII deals
with inspection, search, seizure and anti-evasion provisions. Under Section
78(1) the Commissioner has the power to set up check-posts at such place
and for such period as may be specified. Section 78(7) requires the driver or
D person incharge of a vehicle or incharge of the goods to carry with him
goods-vehicle record (including challans and bills, despatch memos, bills of
sale and prescribed declaration forms. Under Explanation (iii) it is stipulated
that for the purposes of Chapter VIII the goods in movement shall mean the
goods which are in possession of the transporter. Under Section 78(5) the
E competent officer has to give hearing to the owner or his representative and
after enquiry the competent officer is empowered to impose on the owner a
penalty equal to 30 per cent of the value for movement of goods in
contravention pf Section 78(2).

20. The facts enumerated above in Civil Appeal No.5197 of 2005 is the
F lead case in which one finds that the goods. in movement were carried with
blank declaration forms though signed by the consignee. . The material
particulars like quality, weight and description of the goods required to be
filled in by the assessee (consignee) were left blank. Therefore, in this batch
of civil appeals we are concerned with cases where the goods in movement·
were carried with blank Form ST ISA. In our view, on the face of it there was
G contravention of Section 78(2) of the RST Act 1994, Under Rule 53 of the
RST Rules 1995 (Rule 75C of the RST Rules 1955) every registered dealer who
imports taxable goods, for sale within the State, is required to furnish declaration
Form ISA completely filled in, in all respects (emphasis supplied by us).
Under Rule 53 of the said Rules the counterfoils of the declaration has to be
H retained by such consignee and its portions marked as 'original' and 'duplicate'
GUUAGINDUSTRIESl·. COMMERCIAL TAXESOFFICER[KAPADJA,J.] 827
have to be carried with the goods in movement. Under Rule 53(1)(c) the driver 'A
of the goods in movement has to carry with him documents specified in
Section 7S(2)(a) as also the declaration form prescribed in Section 7S(2)(a).
Under the said Rule 53(1)(c) the driver is required to produce the declaration
f9tm, suo motu a~ the check-post at the time of inspection when the competent
officer is required to retain the original of the declaration form and return the
duplicate portion to the driver. The competent officer shall thereafter forward B
the original portion of the declaration to the A.O. of the registered dealer or
to the authority which has issued the declaration form to the consignee.
Under Rule 53(2) the registered dealer is required to submit a statement of
import of goods in the Form ISA to the A.O. every quarter. Under Rule 53(4)
where a registered dealer fails to furnish such statement the A.O. or the C
authority who issued the declaration forms may impose penalty under Section
6S of the said Act: Similarly, under Rule 54 ofthe RST Rules 1994, a dealer
who despatches any taxable goods to a place outside the State is also
required to carry declaration in Form ISC with the goods in movement for
export out of Rajasthan or in the course of interstate trade or commerce. The
dealer is also required to submit his statement of exports to the A.O. along D
with his returns which he files quarterly. Form I SA, as quoted above, is in
two parts. Part-A has to be filled in by the consignee. Part-8 has to be filled
in by the consignor. The nature of the transaction as to whether it is by
consignment or by depot transfer or by interstate sale has to be indicated by
the consignee. Similarly, the consignee has to indicate the description of the E
goods. In the present cast'" the consignee (assessee) has left the requisite
columns blank. Part-8 has to be filled in by the consignor. Part-8 requires
the consignor to give the estimated value of goods. He has also to give
invoke number and the date. It is important to note that the declaration form
is collected by the consignee from his A.O. in the State of Rajasthan. The
consignee gives an undertaking to get Part-8 filled by the consignor. Similarly, F
the consignee gives a declaration that facts stated in Part-A are true to his
knowledge. In the present case, the entire form was left blank though it had
been signed by the consignee. Therefore, the declaration given by the
consignee is meaningless. There are no facts given in Part-A. There is no
identity of the goods transported. There is no description of the goods in G
movement. As stated above, the original has to be placed before the A.O.
by the officer at the check-post. If the form which ul::mately goes to the A.O.
is blank in all material respects then it is impossible for the A.O. to assess
the dealer and it is this practice which has resulted in loss of revenue in crores
to the State. Without description of the goods imported, it is easy to
manipulate the value. If material particulars are not submitted, one fails to H
828 SUPREME COURT REPORTS [2007] 8 S.C.R.

A understand how assessment could be finalized. Moreover, as submitted on
behalf of the State it has become a common practice to circulate the same fonn , __
again and again resulting in loss of revenue to the State. It is for this reason
that Rule 53 of the RST Rules 1995 contemplates the form to be submitted
duly filled in and duly completed. In the present case, the goods in movement
B were not supported by duly filled in Form No.18A/18C. Therefore, there was
contravention of Section 78(2) of the RST Act 1994.

21. There is dichotomy between contravention of Section 78(2) of the
said Act which invites strict civil liability on the. assessee and the evasion
of tax. When a statement of import/export is not filed before the A.O. it
C results in evasion of tax, however, when the goods in movement are carried
without the declaration Form No. l 8A/l 8C then strict liability comes in, in the
fonn of Section 78(5) of the said Act. Breach of Section 78(2) imposes strict
liability under Section 78(5) because as stated above goods in movement
cannot be carried without Form No.18A/18C. We are not concerned with non-
filing of statements before the A.O. We are concerned with the goods in
D movement being carried without supporting declaration forms. The object
behind enactment of Section 78(5) which gives no discretion to the competent
authority in the matter of quantum of penalty fixed at 30 per cent of the
estimated value is to provide to the State a remedy for the loss of revenue.
The object behind enactment of Section 78(5) is to emphasise loss of revenue
E and to provide a remedy for such loss. It is not the object of the said Section
to punish the offender for having committed an economic offence and to deter
him from committing such offences. The penalty imposed under the said
Section 78(5) is a civil liability. Willful consignment is not an essential
ingredient for attracting the civil liability as in the case of prosecution.
Section 78(2) is a mandatory provision. If the declaration Form 18A/18C does
F not support the goods in movement because it is left blank then in that event
Section 78(5) provides for imposition of monetary penalty for non-compliance.
Default or failure to comply with Section 78(2) is the failure/default of statutory
civil obligation and proceedings under Section 78(5) is neither criminal nor
quasi-criminal in· nature. The penalty is for statutory offence. Therefore,
there is no question of proving of intention or of mens rea as the same is
G excluded from the category of essential element for imposing penalty. Penalty
under Secti'ln 78(5) is attracted as soon as there is contravention of statutory
obligations. Intention of parties committing such violation is wholly irrelevant.
Moreover, in the present case, we find that goods in movement carried with
Form No. l 8A/l 8C. The modus operandi adopted by the assessees itself
H indicates mens rea. This is not the case where goods in movement are carried
GUUAG INDUSTRIES i-. COMMERCIAL TAXES OFFICER [KAPADIA, J.) 829
without the declaration forms. In the present matter, as stated above, goods A
in movement were carried with the declaration forms. These forms were duly
signed, however, material particulars were not filled in. The explanation given
by the assessees in most of the cases is that they are not responsible for the
misdeeds of the consignors. The other explanation given by the assessees
is regarding the language problem. There is no merit in these defences. They
are excuses. The declaration forms were unfilled so that they could be used B
again and again. The forms were collected by the consignee from the said
Department. The consignee undertakes to see that the value of the goods
is supplied by the consignor. It is not open to the consignee to keep the
column in respect of the description of goods as blank. Even the column
dealing with nature of transaction is left blank. The consignee is the buyer C
of the goods. He knows the descriptions of the goods which he is supposed
to buy. There is no reason for leaving that column blank. Therefore, there
are no special circumstances in any case for waiver of penalty for contravention
of Section 78(2). The assessees were fully aware that the goods in movement
had to be supported by Form ST I8A/l 8C. Therefore, they made the goods
travelled with the forms. However, the said forms are left blank in all material D
respects. Therefore, A.O. was right in drawing inference of mens rea against
the assessees. It has been repeatedly argued before us that apart from the
declaration forms the assessees possessed documentary evidence like invoice,
books of accounts etc. to support the movement of goods and, therefore, it
was open to the assessees to show to the competent authority that there was E
no intention to evade the tax. We find no merit in this argument. Firstly, we
are concerned with contravention 01 Section 78(2) which requires the goods
in movement to travel with the declaration in Form 18A/18C duly filled in. It
is Section 78(2)(a) which has been contravened in the present case by the
assessees by carrying the goods with blank forms though signed by the
consignee. In fact, the assessees resorted to the above modus operandi to F
hoodwink the competent officer at the check-post. As stated above, if the
form is left incomplete and if the description of the goods is not given then
it is impossible for the assessing officer to assess the taxable goods. Moreover,
in the absence of value/price it is not possible for the A.O. to arrive at the
taxable turnover as defined under Section 2(42) of the said Act. Therefore, G
we have emphasized the words "material particulars" in the present case. It
is not open to the assessees to conted that in certain cases Of interstate
transactions they were not liable in any event for being taxed under the RST
\ Act 1994 and, therefore, penalty for contravention of Section 78(2) cannot be
Imposed. As stated hereinabove, declaration has to be given in Form I 8A/
I8C even in respect of goods in movement under interstate sales. It is for H
830 . SUPREME COURT REPORTS· [2007) 8 S.C.R.

A contravention of Section 78(2) that penalty is attracted under Section 78(5):
Whether the goods are put in movement under local sales, imports, exports
or interstate transactions, they are goods in movement, therefore, they have
to be supported by the requisite declaration. It is not open to the assessee
to contravene and say that the goods were exempt. Without disclosing the
nature of transaction it cannot be said that the transaction was exempt. In
B the present case, we are only concerned with the goods in movement not
being supported by the requisite declaration.

22. In the case of Chairman, SERI v. Shriram Mutual Fund and Anr.,
[2006] 5 SCC 361, this Court found on facts th.at a mutual fund had violated
C SEBI (Mutual Funds) Regulations, 1996. Under the said Regulations there
was a restriction placed on the mutual fund on purchasing or selling shares
through any broker associated with the Sponsor of the mutual fund beyond
a specified limit. It is in this context that the Division Bench of this Court
held that mens rea was not an essential ingredient for contravention of the
provisions of a civil act. The breach of a civil obligation which attracts
D penalty under the Act would immediately attract the levy of penalty irrespective
of the fact whether the contravention was made by the defaulter with any
guilty intention. It was further held that unless the language of the provision
intends the need to establish mens rea, it is generally sufficient to prove the ·
default/contravention in complying with the statute. In the .present case also
E the statute provides for a hearing. However, that hearing is only to find out
whether the assessee has contravened Section ·78(2) and not to find out
evasion of tax which function is assigned not to the officer at the check-post
but to the A.O. in assessment proceedings. In the circumstances, we are of
the view that mens rea is not an essential element in the matter of imposition
of penalty under Section 78(5).
F
23. We may mention some of the judgments cited on behalf of the
assessees. Section 28~8 of the Uttar Pradesh Sales Tax Act, 1948 came for
interpretation before this Court in the case of Sodhi Transport Co. & Anr.. Etc.
Etc. v. State of UP. & Anr. Etc. Etc., [1986] I SCR 939. In that case the
constitutional validity of Section 28-B of the said Act was challenged. It was
G hel~ by this Court that since Section 28-8 created rebuttable presumption as
regards the proof of a set of circumstances, the effect of such a provision was
!
to shift the burden of proving to the assessee who was given an opportunity
to displace the.;presumption by leading evidence. This judgment has no f·

application because the very words contained in Sedion 28-B required the
H authorities to raise a rebuttable presumption that the goods must have been
GUUAG INDUSTRIES v. COMMERCIAL TAXES OFFICER [KAPADIA, J.] 831
sold in the State if the transit pass was not handed over at the check-post. A
In the present case, we are not concerned with the transit pass. In the present
case, there are no words in Section 78(5) similar to Section 28-B of the Uttar
Pradesh Sales Tax Act, 1948 which states that if the transit pass was not
handed over to the officer at the check-post, the Department would be
entitled to raise the presumption that the goods in transit were sold in the
State. As stated hereinabove, we have to go by the words used in the section B
to ascertain whether the legislature has excluded the element of mens rea .
It is the statutory law enacted by the competent legislature which can exclude
the presumption under common law. We hold that Section 78(5) excludes the
presumption of mens rea which is normally prevailing in common law. Our
reasoning is also based on one more factor, namely, that Section 78(5) provides C
a remedy for recovery of the loss caused to the State by such contravention.

24. In the present case, the assessees have relied upon the judgment
of this Court in the case of State of Rajasthan and Anr. v. D.P. Metals, [2002)
I SCC 279 . In that case the facts were as follows. The assessee firm
manufactured stainless steel sheets. The assessee was a registered dealer. D
On 22.1.97 a truck was inspected by CTO. The same was found without Form
l 8A. A show cause notice was issued to the assessee. After hearing a
penalty was levied under Section 78(5) of the RST Act 1994. It was held that
under· Section 78(5) levy of penalty was on the person incharge of the goods.
· It was held that the said penalty was leviable under two circumstances.
·Firstly, if there was non-compliance of Section 78(2)(a) of the said Act, E
namely, that it was not carrying the documents mentioned in that clause.
Secondly, if false or forged documents/declaration was submitted then penalty
under Section 78(5) was leviable. After analyzing the said Section, this Court
.held that in the case of submission of false or forged documents/declaration,
the authority was entitled to presume the motive to mislead the authorities. F
However, in such cases that presumption was rebuttable by the assessee on
. producing.the requisite documents referred to in Section 78(2)(a). That, once
the ingredient of Section 78(5) stood established after giving a hearing,
there was no discretion with the officer to reduce the amount of penalty or
to waive the penalty. If by mistake some of the documents were not readily
available at the time of checking, principles of natural justice might require G
opportunity being given to produce the same. It was further held that under
Section 78(5) the legislature has fixed the rate of penalty and, therefore, the
quantum of penalty could not be waived or reduced.

25. In our view, the aforestated judgment in the case of D.P. Metals H
.. (supra) has no application to the present case. We are not concerned in the
'

832 SUPREME COURT REPORTS [2007) 8 S.C.R.

A present case with false or forged documents/declaration. In the present case
the goods .in movement were carried with the blar.ik declaration Fonn l 8A/I 8C
which was duly signed by the assessee. Therefore, as stated above, we hold
that the goods in movement were carried without the declaration Fonn l 8A/
18C. Therefore, Section 78(2)(a) stood attracted. Moreover, in the present
B case, there were no special circumstances indicated by the assessee as to
why the fonns which were duly signed were not filled in. Therefore, in our
view the above judgment in the case of D.P. Metals (supra) has no application
to the facts of the present case. As stated, we are concerned with the blank
declaration Fonn 18A/18C which has travelled with the goods in movement,
though signed, was left deliberately blank. The declaration Fonn 18A/18C is
C like a return under the Income:..Tax Act, 1961. The Assessing Officer completes
the ·assessment on the basis of Fonn 18A/18C. If that fonn is left biank in
all material respects then it is impossible for the A.O. to arrive at the taxable
turnover of the assessee. Therefore, in our view, the judgment of this Court
in D.P. Metals (supra) has no application to the present case ..

D 26. Before concluding, we may mention that in this batch of civil appeals
we have civil appeals filed by the Department. These civil appeals relate to
cases where specified documents did not accompanied the goods in movement.
The lead case in that regard is Civil Appeal No.5240 of 2005 Assistant
Commercial Taxes Officer v. Mis. Gu/jag Industries Ltd. filed by the
E Department. We make it clear that our judgment is basically confined to
cases where blank/incomplete Fonn 18A/18C had accompanied the goods in
movement. Whatever we have stated above is in the context of the incomplete
Fonn I 8A/l 8C travelling along with the goods in movement. However, Civil
Appeal No.5240 of 2005 and such other civil appeals filed by the State
(Department) are those cases where the documents were not accompanied the
F goods in movement, like, the bills of sale, bills of transport etc. In Civil
Appeal No.5240 of2005 the facts of which have been reproduced hereinabove,
show that the case was confined to documents not· accompanying the goods
in movement. Therefore, the said appeals stand on a different footing. They
have nothing to do with incomplete forms travelling along with the goods in
movement. These civil appeals filed by the State (Department)-shall be
G decided in the light of the judgment of thi.s Court in D.P. Metals (supra).
However, cases where goods in movement were accompanied by Form No. I SA/
18C without duly signed but incomplete in material particulars like description
of goods shall be governed by the law discussed hereinabove by us.

27. For the aforestated reasons, we hold that Section 78(5) of the RST
H
GUUAG INDUSTRIES 11. COMMERCIAL TAXES OFFICER [KAPADIA, J.] 833
Act 1994 (Section 22A(7) of the RST Act 1954) is the section enacted to A
provide remedy for loss ·Of revenue and it is not enacted to punish the
offender for committing economic offence and, therefore, mens rea is not an
essential ingredient for contravention of Section 78(2) of the RST Act 1994.
That, the breach of Section 78(2) would attract the levy of penalty under
Section 78(5) in cases where the goods in movement have travelled with an B
incomplete Form No:l8A/18C. We accordingly uphold the judgment of the
High Court ofRajasthan in Sales Tax Revision No.1023/2002 dated 14.10.03 '
(which is annexed as page No. I of the appeal paper book in Civil Appeal
No.5197 o/2005 tiled by Mis. Gu/jag Industries v. Commercial T<rees Officer).

28. In the light of our judgment, we direct the Department to dispose C
of the cases in accordance with law enunciated by us hereinabove.
Accordingly the matters are remitted back to Commissioner (Appeals) to
decide the matter in accordance with law enunciated by us hereinabove. The
civil appeals, preferred by the State as well as by the assessees, are accordingly
stand disposed of with no order as to costs.
D
D.G. Appeals disposed of.