Under GST law, the “Burden of Proof” (a static legal obligation) is distinguished from the “Onus of Proof” (a shifting evidentiary duty). Generally, the Revenue bears the burden of proving taxability, correct classification, and valuation, including establishing that a transaction constitutes a “supply”. Conversely, for exemptions and refunds, the burden lies with the claimant to prove eligibility and the absence of unjust enrichment. Notably, Section 155 specifically casts the burden of proving Input Tax Credit (ITC) eligibility on the taxpayer. However, this obligation is not absolute; once the taxpayer provides reasonable evidence (e.g., proof of receipt), the onus shifts to the Revenue to rebut it. The required standard of proof varies from a “preponderance of probability” in tax proceedings to “beyond reasonable doubt” in prosecution.
The maxim “Ei qui affirmat non ei qui negat incumbit probation” embodies the principle that the party asserting a fact must prove it. Disputes under the GST law invariably require the establishment of facts through corroborative evidence and their application to statutory provisions. In this context, the concept of “burden of proof” plays a pivotal role in determining the respective obligations of the taxpayer and the revenue.

BURDEN OF PROOF – SECTIONS 104 AND 105
Section 2 of the Bharatiya Sakshya Adhiniyam, 2023 (“BSA”) (replacing the Indian Evidence Act, 1872) defines a fact as “proved” when the Court believes in its existence or considers it sufficiently probable, and “disproved” when its non-existence is similarly established. A fact remains “not proved” when neither conclusion can be drawn. Proof or disproof of any fact, therefore, necessarily rests upon admissible evidence.
Whenever it is necessary to prove a fact, the party who is bound to establish the evidence bears the burden of proof. Section 104 states that the burden of proof of establishing a fact is on the person who asserts a legal right based on the existence of the said fact. Section 105 states that the burden of proof in a suit or proceeding would be on the person who would fail if no evidence were given on either side. Though both provisions refer to “burden of proof”, they operate in distinct senses, as succinctly stated by the Supreme Court in Rajesh Jain vs. Ajay Singh:1
“29. There are two senses in which the phrase ‘burden of proof ’ is used in the Indian Evidence Act, 1872 (Evidence Act, hereinafter). One is the burden of proof arising as a matter of pleading and the other is the one which deals with the question as to who has first to prove a particular fact. The former is called the ‘legal burden’ and it never shifts, the latter is called the ‘evidential burden’ and it shifts from one side to the other….”
1. Rajesh Jain vs. Ajay Singh on 9 October, 2023 SLP (Crl.) No.12802 of 2022
DIFFERENCE BETWEEN BURDEN OF PROOF AND ONUS OF PROOF
Though often used interchangeably in common parlance, “burden of proof” and “onus of proof” are distinct legal concepts. As stated above, burden of proof (Latin: onus probandi) is a fixed legal obligation that rests upon a party to prove a particular fact or set of facts in dispute. It is a foundational duty and, importantly, it never shifts from the party upon whom it initially lies. This means that the party asserting a fact or making an allegation must ultimately convince the adjudicating authority of the truth of that fact. Conversely, the onus of proof refers to the duty of adducing evidence. Unlike the burden of proof, the onus of proof is dynamic and shifts at every stage in the process of evaluating evidence. It indicates which party has the obligation to present evidence at a given point in a proceeding to avoid an adverse ruling. For instance, if one party presents evidence supporting their claim, the onus might shift to the opposing party to rebut that evidence. If the opposing party successfully rebuts, the onus might shift back. This continuous shifting is central to the procedural aspect of evidence presentation and explained in Ajay Singh’s case (supra):
“30. The legal burden is the burden of proof which remains constant throughout a trial. It is the burden of establishing the facts and contentions which will support a party’s case. If, at the conclusion of the trial a party has failed to establish these to the appropriate standards, he would lose to stand. The incidence of the burden is usually clear from the pleadings and usually, it is incumbent on the plaintiff or complainant to prove what he pleaded or contends. On the other hand, the evidential burden may shift from one party to another as the trial progresses according to the balance of evidence given at any particular stage; the burden rests upon the party who would fail if no evidence at all, or no further evidence, as the case may be is adduced by either side (See Halsbury’s Laws of England, 4th Edition para 13). While the former, the legal burden arising on the pleadings is mentioned in Section 101 of the Evidence Act, the latter, the evidential burden, is referred to in Section 102 thereof.”
The difference can be appreciated in a table form:
| Feature | Burden of Proof | Onus of Proof |
| Section | Section 104 of BSA (Legal Burden) | Section 105 of BSA (Evidentiary Burden) |
| Definition | The obligation to prove the main facts that establish a legal right or liability. | The duty to produce evidence to introduce or rebut a specific fact during the trial. |
| Nature | Static. It generally never shifts. It remains on the party who asserted the affirmative case from start to finish. | Shifting. It swings back and forth between parties like a pendulum as evidence is introduced. |
| Example | Burden is to be understood as the first serve by the assessee to claim the point. | Onus is the tennis rally between the parties, and the one who fails loses the rally. |
LEVELS OF BURDENS/ONUS OF PROOF
The degree of proof required under GST Laws varies depending on the nature of proceedings (prosecution, penalty or tax proceedings). The various standards of proof can be graded as follows:
- “Preponderance of evidence/probability”, which requires a plaintiff to show that a particular fact/event is more likely than not to have occurred (say, tax proceedings).
- “Clear and convincing evidence”, which requires the plaintiff to prove that a particular fact is substantially more likely than not to be true (say, penalty proceedings).
- “Beyond reasonable doubt”, which is the highest standard of proof and which requires the prosecution to show that the only logical explanation that can be derived from the facts is that the defendant committed the crime and no other logical explanation can be inferred or deduced from the evidence (say, prosecution proceedings).
APPLICABILITY OF BURDEN OF PROOF TO GST
As stated above, questions of taxability, exemption, input tax credit, place of supply, valuation, etc would involve bringing certain facts to the forefront and the concerned person ought to discharge the due burden unless otherwise stated in law.
BURDEN OF ESTABLISHING TAXABILITY OF A TRANSACTION
A cardinal principle established by the judiciary is that the burden of proof lies on the taxing authorities to demonstrate that a particular case or item is taxable in the manner claimed by them2. In the context of service, the revenue quite frequently presumes that the transaction is taxable. Transfer of development rights is being taxed on the premise of an RCM entry. This is being done without discharging the burden of whether the development rights are taxable as ‘supply’ u/s 7. Similarly, the burden of proof of establishing the supply of goods is on the revenue. In clandestine cases, revenue can collate facts based on statements, external evidence (such as electricity bills, digital records, banking transactions, electricity/ freight costs, inventory correlation, counterparty evidence, etc). Once this is discharged and there is a reasonable probability of the occurrence of the event, then the onus shifts onto the assessee to establish the contrary. The primary discharge is called the burden of proof, and the counter is the onus of proof.
2. UOI vs. Garware Nylons Ltd. [1996 (10) SCC 413], HPL Chemicals vs. CCE [2006 (5) SCC 208], Ponds India vs. CTT [2008 (8) SCC 369], Voltas Ltd. vs. State of Gujarat [2015 (7) SCC 527], and CCE vs. Hindustan Lever Ltd. [2015 (10) SCC 742].
Similarly, revenue issues presumptuous notices on differences in revenue based on ITR/26AS and GST data. Strictly speaking, the scope of Income in ITR returns cannot be said to be equivalent to the scope of supply in GST, and this by itself cannot be considered as evidence of a supply. Values reported in the TDS credit statement (in Form 26AS) merely affirm receipt or accrual. Once the income is reported as ‘sale’ or ‘services’ either in the ITR or TDS statement, it can at most be the basis of initiation of an investigative proceeding. But whether this data by itself would be adequate for the issuance of the SCN and consequently into confirmatory orders is questionable (especially in the absence of best judgement provisions for registered persons). Whereas, in case of data mismatch in GSTR-1/3B, E-way bills, TCS/TDS statements, etc there could be a different answer since these are reported values under the GST domain. Here, the existence of a difference in data by itself may suggest a probability of under-reporting resulting in the discharge of the revenue’s primary burden to establish a supply, and hence the onus shifts on the taxpayer to establish the reasons for short payment (if any). In essence, section 73/74 does not permit SCNs to be issued on presumptuous grounds, and the clear burden of establishing the ingredients of the charging section rests upon the revenue.
BURDEN OF PROOF FOR SUPPLY, IN THE COURSE OF BUSINESS, CONSIDERATION: COMPONENT OF TAXABLE SUPPLY
The levy of GST is predicated on a “transaction-based tax” model involving a “supply”. Section 7 of the GST law outlines four critical pillars for a transaction to constitute a supply: (a) an act of supply of goods/service; (b) supplier-recipient relationship; (c) consideration for such supply; and (d) supply being in the course or furtherance of business.
- Supply: The “activity of supply” should generally emanate from an “enforceable contract” between the contracting parties. The essential elements of a contract, such as explicit terms for the supplier (promisor), recipient (promisee), the act of supply (promise), and consideration, should be clearly reflected. The Bombay High Court in the case of Bai Mamubai Trust emphasised the requirement of an enforceable contract and contractual reciprocity as quintessential for a taxable supply, distinguishing payments for restitution or damages for an illegal act from reciprocal obligations. Thus, the burden to prove that a transaction constitutes a “supply” rests with the revenue authorities initially. Similarly, where rent-free accommodation is being provided to the members of a cooperative society as part of the redevelopment of a project, the question of whether there is a distinct supply beyond the rendition of construction services by the developer is to be answered by the revenue. The revenue may not be permitted to presume that rent-free accommodation is a separate supply to the occupants. It would have to establish the burden of it being a service in terms of Section 7 of the GST law.
- In the Course or Furtherance of Business: Section 7 requires a supply to be “in the course or furtherance of business” to be taxable, with specific exceptions like import of services, which are taxable whether or not in the course of business. The interpretation and evidence of this aspect would lie with the party asserting or denying its business nature. The Government has emphasised the requirement of examining the business character of the supply vide its press release dated. 13.07.2017. Accordingly, the revenue cannot presume that all income generating transaction are in the course of business and must discharge the burden that the transaction being brought to tax is a business activity. Similarly, the burden to prove that a religious or charitable trust is engaged in business activity is on the revenue.
- Consideration: “Consideration” is a core element of supply, as defined under Section 7, read with the definition of ‘consideration’. In cases involving related parties, Entry 2 or 4 of Schedule I of the CGST Act excludes the requirement of ‘consideration’ for an activity to constitute a supply. This means that transactions between related parties, even without explicit consideration, can be deemed as a supply. For transactions involving compensation for non-performing contractual obligations or breach of contract (e.g., liquidated damages), these amounts can be treated as consideration for a supply, particularly if there is a clear formula for calculation and the payment is for a “certain advantage derived or to ward off any disadvantage incurred”. The CBIC Circular No. 178/10/2022-GST clarifies that payments towards damages are incidental to the main supply and their taxability depends on the taxability of the principal supply. The burden to prove whether such amounts constitute consideration for a supply would typically fall on the revenue.
BURDEN OF PROOF OF TAX RATES/ CLASSIFICATION AND EXEMPTIONS AND VALUATION
Disputes concerning classification, applicability of exemptions, correct tax rates, and valuation often arise under GST. The burden of proof in these areas is generally on the taxing authority, with specific exceptions or nuances.
- Tax Rates & Classification: In a self-assessment scheme, the tax rates and classification reported by the assessee are considered final unless questioned by the revenue. The burden of proof of attributing an alternative classification/ rate of tax on a product under a particular tariff head rests with the revenue. The revenue must discharge this burden by proving that the product is understood as such by consumers in common parlance. This principle was affirmed by the Supreme Court in CCE vs. Vicco Laboratories [2005 (179) ELT 17 (SC)]. For example, printing of books (service, Heading 9989, 5% tax) versus supply of printed envelopes (goods, Chapter 48 or 49, different rates). Circulars from the Board aim to clarify these distinctions, but their interpretation might be challenged if they contradict established principles, as seen with the Prestige Engineering (India) Ltd. vs. CCE Meerut [1994 (73) ELT 497 (SC)] case concerning job work. The burden to prove the correct tax rate would typically fall on the revenue if they are alleging a higher rate, but on the taxpayer if they are claiming a lower rate or exemption.
- Exemptions: When a person claims eligibility for an exemption under a notification, the burden of proving compliance with the conditions of that exemption notification lies on the taxpayer. For example, an assessee asserting eligibility for exemption in respect of a residential dwelling under Notification 12/2017-CT(R) is obligated to establish that the dwelling is residential in nature. Once the assessee establishes residential use in the form of occupancy and municipal records, the onus shifts onto the revenue to prove otherwise. The revenue cannot merely allege a strict interpretation of the exemption notification and deny exemption on the ground of ‘unsatisfactory proof of residential use’ to the assessee. The scope of the term residential dwelling is a domain of interpretation and not factual examination. Once the assessee submits the rental agreements and municipal records, it is for the revenue to discharge the onus of negating this fact. Otherwise, it would amount to revenue failing to discharge its obligation, and the SCN would stand as being unsustainable for failure to discharge the burden. The Supreme Court has taken contextual views on this subject, leading to some controversy: In Dilip Kumar & Company’s3 case, it was held that the burden of proof is on the taxpayer availing the exemption and in case of any ambiguity, the benefit should go to the revenue. But in Mother Superior Convent5 & in Taghar Vasudeva Ambreesh5 the Court emphasised that the exemption should be driven by the intention of the legislature. This throws up the debate open on whether the burden of proof for exemption is static on the assessee or the revenue would also have to establish its case on whether the assessee has violated the intent of the exemption notification.
- Valuation: Section 15 of the CGST Act, read with Rule 27 of the CGST Rules, addresses valuation. For instance, the value of free-of-cost (FOC) material (e.g., diesel) provided by the service recipient is not includable in the value of GTA service if the contractual liability for such cost is not that of the supplier (Section 15(2)(b)). The revenue ought to establish that the FoC material is contractually an obligation of the supplier but incurred by the recipient before adding the same to the transaction value. Unless this burden is sufficiently discharged from the contract, the value as self-assessed by the assessee would prevail, and the SCN cannot be issued on the mere element of use of FoC goods. It is settled law that revenue must discharge its burden of undervaluation with contemporaneous information before making an addition to the reported taxable value of the supply.
3. 2018 (361) E.L.T. 577 (S.C.); 2021 (376) E.L.T. 242
BURDEN OF PROOF FOR POS, EXPORTS AND REFUNDS
The determination of the Place of Supply (POS), the nature of exports, and the eligibility for refunds are critical areas in GST where the burden of proof plays a significant role.
- Place of Supply (PoS): The place of supply dictates whether a transaction is an intra-state, inter-state, import, or export supply, consequently determining the type of GST (CGST/SGST or IGST) to be levied. PoS is a jurisdictional aspect for the applicability of tax under a particular enactment. Being part of the charging provisions, the revenue must discharge the burden of PoS before even acquiring jurisdiction to tax under a particular enactment. In respect of detention of goods under movement from one state to another, for any intermittent state to impose a local tax liability, it is important to establish that the goods were meant for termination/ delivery in the detaining state (i.e. PoS in that state). Unless this burden is discharged, the jurisdiction to tax the transaction cannot be acquired. For services, in case of performance-based services of actual testing process of goods is carried out in India, the place of supply is deemed to be in India as per Section 13(3)(a) of the IGST Act, even if the service recipient is located outside India. In such a scenario, the service would not qualify as an “export of service”. The party asserting a particular place of supply bears the burden to substantiate its claim of place of performance in India. For example, if the revenue alleges that the repair services were performed in India, it must establish that the goods were physically made available in India for repairs and the services were indeed performed on such physically available goods. Unless this burden is discharged, the revenue cannot alter the self-assessment of the assessee.
- Exports: Exports are typically zero-rated under GST. Being an exception to the general rule of full rate of tax, the exporter claiming the export benefit ought to establish satisfaction of the conditions of export of goods or services. In the context of goods, the assessee is under the burden to establish the physical movement of goods outside India, irrespective of the location of the buyer. Consequently, the burden of proving that the export benefits of refund, rebate, etc. are available to the taxpayer, the threshold test of being export must be factually discharged by the taxpayer. In the context of services, the definition of export of services provides certain factual parameters to be complied with for the services to be granted the zero-rating benefits. In such cases, the burden to prove the fulfilment of export conditions, including receipt of payment in convertible foreign exchange and the service being used outside India (for export of services as per Section 2(6) of the IGST Act), rests on the exporter. Once the exporter discharges the burden by proving receipt of convertible foreign exchange through RBI approvals / CA certificates, etc, the onus shifts to the Revenue to disprove this fact. The court in Kuehne Plus Nagel vs. UOI4 granted the benefit of export based on certain factual documents and rejected the insistence of FIRC for the claim of export benefits, implying that the burden of proof is not solely on the exporters.
- Refunds: The burden of proving refund entitlement is on the claimant For refund claims, the claimant must produce the prescribed documents to establish the eligibility. Once the initial burden of submission and eligibility of refund is discharged, the onus shifts over to the revenue if it were to reject the claim of refund. The practice of returning refund applications through deficiency memos on grounds of eligibility is squarely derogatory to the legal process. For inverted refund applications, the burden is cast on the claimant to establish the accumulation of input tax credit on account of the higher rate of goods and the lower rate of output supplies. This is a question of fact and is fixated on the claimant. But once this burden is fulfilled, the onus shifts onto the revenue to deny refund eligibility either on account of non-accumulation or lack of inversion.
- Refund of Wrongly Deposited Amounts: If an amount is deposited under coercion or protest, the petitioner can seek a refund in accordance with the law, but an inquiry may be needed to determine if the payment was voluntary or coerced. In Bundl Technologies5, recovery of taxes at the late hours when the office is not operating was considered as coercive and hence violative of the taxpayer’s rights. This was possible only after the assessee, alleging coercion, discharged its burden by submitting proof of time of payment at an irregular hour of the day.
- Unjust Enrichment: Refund provisions are framed with the presumption that the incidence of duty has been passed on unless otherwise proved. Section 49(9) also states that taxes paid to the Government are deemed to have been passed on. With this presumption in place, all refund applications (except those specifically excluded in terms of sub-clauses of 54(8)) would have to undergo the rigour of establishing that the duty benefit has not been passed onto the recipient. Unless this burden is discharged, the revenue is under no obligation to credit the refund to the claimant. But once the claimant establishes through cost structures, price impact, invoice disclosures, counterparty declarations, etc, giving reasonable affirmation on unjust enrichment, the onus shifts upon the revenue to disprove the same. The revenue cannot reject a refund on grounds of lack of satisfactory documents without countering the primary evidence submitted by the claimant.
4. R/SPECIAL CIVIL APPLICATION NO. 13427 of 2024- Gujarat High Court 5. [2022] 136 taxmann.com 112 (Karnataka)
BURDEN OF PROOF FOR INPUT TAX CREDIT
One of the most litigated areas under the GST law concerning the burden of proof is the Input Tax Credit (ITC). Section 155 of the CGST Act, 2017, explicitly places the burden of proving eligibility for ITC on the person claiming such credit. This provision is notable as it deviates from the general legal principle that the burden of proof for any charge or allegation lies on the person making it, effectively placing a specific and significant onus on the assessee. While applying section 155 and revenue has strictly fixed the ‘burden of proof’ onto the assessee and disregarded that the evidentiary burden (i.e. onus) is still variable depending on the progression of evidence. Let us consider a case where the dispute is whether the input tax credit is claimed within the time prescribed by the law or not. This dispute is based on facts, and the burden of proof lies on the taxpayer to prove that the credit is claimed within the specified time limit. However, if the dispute is about the non-applicability of the timeline itself (let’s say whether section 16(4) applies to tax discharged under the reverse charge mechanism), the dispute pertains to a legal interpretation and the department cannot cite section 155 to cast an exclusive burden of proof on the taxpayer. Therefore, section 155 should be applied in relative terms rather than absolute fixation on the assessee.
- Eligibility and Correctness: The burden of proving the correctness and eligibility of any ITC claim rests entirely with the taxable person. This extends to proving the actual physical movement of goods or receipt of services, holding of the tax invoice, reporting of the invoice on the GST portal, and payment of tax to the Government. The assessee may furnish details such as the name and address of the selling dealer, vehicle details, payment of freight charges, and acknowledgement of delivery for proof of receipt of goods. But freight payment, vehicle details, lorry receipts, E-way bills are not the only tests for proof of receipt of goods (though directed by the Supreme Court in Ecom Gill Coffee Trading Private6 case). There may be other alternative ways of establishing receipt of goods (say, video/ inventory records, counterparty declarations, etc) which could also grant reasonable certainty of receipt of goods. But section 155 should not be interpreted to mean that the revenue can decide the standards of evidence required for proving receipt of goods or services and mandate the taxpayer to meet those standards. In the absence of a defined statutory mechanism, the burden of proof of establishing receipt of goods is on the assessee through reasonable means. Where the revenue cites insufficiency of evidence, the onus shifts upon the revenue to establish the unsatisfactory nature of the evidence.
- Elaborating this further, say the assessee proves that goods have been received by the recipient. Once the assessee submits evidence such as a goods receipt note, accounting records, etc before the adjudicating authority, then the onus shifts upon the said authority to disprove the fact by placing evidence. When contrary evidence is brought on record and confronted (say, non-passing of regular tolls), then the onus shifts back upon the assessee. If the assessee fails to convincingly establish the possibility of alternative routes, then the case of the assessee fails, but if such routes are comprehensively established, then the case of the revenue fails. Thus, the onus is oscillating obligation during discharge of the burden of eligibility for ITC. This process would continue until the other party cannot produce any contrary evidence, in which case, the court would, based on the adequacy of evidence (discussed above), decide if the fact has been proved or disproved, or neither proved nor disproved.
- Tax Paid to Government – The same goes for the debate on whether tax has been paid to the Government. The law requires the assessee to prove that tax charged on the input invoice has been paid to the Government. The mechanism to verify this is through the process of reflection of the invoice in GSTR-2B and GSTR-3B filings. To this extent, the assessee is under the obligation to establish reasonable evidence of proof of tax payment to the Government. The question of sufficiency of such proof would once again become an evidentiary debate, which does not fall within the domain of section 155. For example, an assessee claims ITC after complying with all conditions of section 16(2) (incl. reporting in GSTR-2B) and the registration of the supplying dealer is cancelled retrospectively on any ground; the revenue ought to discharge the burden of not receiving the tax on the invoice from the supplier on the particular invoice.
- Bona Fide Transactions vs. Fake Invoices: When there are allegations of fake or false invoices, or the non-existence of the consignor/consignee, the burden shifts heavily onto the person claiming the transaction to be fake to demonstrate the mala fide in the transaction. The assessee cannot be asked to unilaterally establish the bona fide of the ITC u/s 155 without being confronted with adverse material from the revenue. Once the revenue establishes with reasonable probability that there was a fake transaction, then the assessee, as part of the onus, must prove that he acted with due diligence.
6. CIVIL APPEAL NO. 230 OF 2023 Supreme Court
CONCLUSION
In conclusion, the “Burden of Proof” under GST Law is a multifaceted concept that dictates the obligations of both the taxpayer and the tax authorities at various stages of assessment, audit, demand, and prosecution. While specific statutory provisions like Section 155 place the burden squarely on the claimant for ITC, general legal principles often mandate the Revenue to establish its claims, particularly regarding taxability, classification, and penalties. Diligent record-keeping and a thorough understanding of these principles are paramount for compliance and effective dispute resolution in the GST regime.






































