290 U.S. 389
Argued Nov. 6, 1933.
Decided Dec. 11, 1933.
[290 U.S. 389, 390] The Attorney General and Mr. J. Crawford Biggs, Sol. Gen., of Washington, D.C., for the United States.
Mr. Harold J. Bandy, of Granite City, Ill., for respondent. [290 U.S. 389, 391]
Mr. Justice ROBERTS delivered the opinion of the Court.
This case is here for the second time.
The respondent was indicted for refusal to give testimony and supply information as to deductions claimed in his 1927 and 1928 income tax returns for moneys paid to others. By a special plea he averred that he ought not to be prosecuted under the indictment because, if he had answered the questions put to him, he would have given information tending to incriminate him, in contravention of the Fifth Amendment. The United States demurred on the grounds that the plea failed to show that the information demanded would have incriminated or subjected the defendant to prosecution under federal law, and that the defendant waived his privilege under the Fifth Amendment. The demurrer was overruled. Upon appeal this court reversed the judgment for the reason that at the hearing before the federal revenue agent the defendant had not invoked the protection of the Fifth Amendment against possible prosecution under federal legislation but solely under state laws. The cause was remanded to the District Court for further proceedings. United States v. Murdock, 284 U.S. 141 , 52 S.Ct. 63, 82 A.L.R. 1376
The petitioner pleaded not guilty, was put upon trial, and convicted. He appealed to the Circuit Court of Appeals, which reversed the judgment,1 and the case was brought here by writ of certiorari. 2 The question presented is whether the trial court correctly instructed the jury as to what constitutes a violation of the sections of the Revenue Acts of 1926 and 1928 upon which the indictment was based.
Section 256 of the Revenue Act of 1926 and section 148 of the Revenue Act of 1928, in identical words, require all [290 U.S. 389, 392] persons making payment to another to make a true and accurate return to the Commissioner of Internal Revenue, under such regulations as he shall prescribe, setting forth the amount paid and the name and address of the recipient. 3 Section 1104 of the Revenue Act of 1926 and section 618 of the Revenue Act of 1928 authorize the Commissioner, for the purpose of ascertaining the correctness of any return, or of making a return where none has been made, through officers or employees of the Bureau of Internal Revenue, to examine books, papers, records, and memoranda bearing upon the matters required to be included in the return, and to compel the attendance of the taxpayer or any one having knowledge of the premises, and to take testimony with reference to the matter directed by law to be included in the return, with power to administer oaths to the persons to be interrogated. 4
Section 1114(a) of the Revenue Act of 1926 declares:5
Section 146(a) of the Revenue Act of 1928 is identical with the quoted section of the 1926 act. 6 The indictment [290 U.S. 389, 393] in two counts charged violation of the provisions of the two sections last mentioned.
Upon the trial the government proved the respondent had been duly summoned to appear before a revenue agent for examination; questions had been put to him; he refused to answer, stating he feared self- incrimination; and upon further inquiry disclosed that his fear was based upon possible prosecutions under state statutes. The government also offered evidence that on a prior occasion at a meeting with certain revenue agents the respondent had refused to disclose the name of the payee of the sums deducted by him in his returns for 1927 and 1928. To this counsel for the respondent objected, on the ground that it was irrelevant to the issue, which was the respondent's refusal to answer when summoned, sworn, and interrogated. The prosecuting attorney replied that the willfulness of the respondent's refusal to answer was in issue, and that the proposed evidence bore upon that matter. The court overruled the objection and admitted the testimony. The respondent offered no evidence. In the course of his charge the trial judge said:
The respondent's request for an instruction in the following words was refused:
The word often denotes an act which is intentional, or knowing, or voluntary, as distinguished from accidental. But, when used in a criminal statute, it generally means an act done with a bad purpose (Felton v. United States, 96 U.S. 699 ; Potter v. United States, 155 U.S. 438 , 15 S.Ct. 144; Spurr v. United States, 174 U.S. 728 , 19 S.Ct. 812); without justifiable excuse (Felton v. United States, supra; Williams v. People, 26 Colo. 272, 57 P. 701; People v. Jewell, 138 Mich. 620, 101 N.W. 835; St. Louis Iron Mountain & S. Ry. Co. v. Batesville & W. Tel. Co., 80 Ark. 499, 97 S.W. 660; Clay v. State, 52 Tex. Cr. R. 555, 107 S.W. 1129); stubbornly, obstinately, perversely ( Wales v. Miner, 89 Ind. 118, 127; Lynch v. Commonwealth, 131 Va. 762, 109 S.E. 427; Claus v. Chicago Gt. W. Ry. Co., 136 Iowa, 7, 111 N.W. 15; State v. Harwell, 129 N.C. 550, 40 S.E. 48). The word is also employed to characterize a thing done without ground for believing it is lawful (Roby v. Newton, 121 Ga. 679, 49 [290 U.S. 389, 395] S.E. 694, 68 L.R.A. 601), or conduct marked by careless disregard whether or not one has the right so to act (United States v. Philadelphia & R. Ry. Co. (D.C.) 223 F. 207, 210; State v. Savre, 129 Iowa, 122, 105 N.W. 387, 3 L.R.A.(N.S.) 455, 113 Am.St.Rep. 452; State v. Morgan, 136 N.C. 628, 48 S. E. 670).
This court has held that, where directions as to the method of conducting a business are embodied in a revenue act to prevent loss of taxes, and the act declares a willful failure to observe the directions a penal offense, an evil motive is a constituent element of the crime. In Felton v. United States, supra, the court considered a statute which required distillers to maintain certain apparatus to prevent the abstraction of spirits during the process of distillation, and declared that, if any distiller should 'knowingly and wilfully' omit, neglect, or refuse to do anything required by law in conducting his business, he should be liable to a penalty. It appeared that in defendant's plant defective appliances caused an overflow and wastage of low wines, and to save these it became necessary, in disregard of the method prescribed by the act, to catch the spirits and pour them into vats. This was done despite instructions to the contrary by the government officers who were consulted as to what procedure should be followed. It was admitted that the action was innocent in purpose, saved loss of the product to the owner and taxes to the United States. In an action for the statutory penalty, the conduct of the distiller was held not to be willful within the meaning of the law.
Aid in arriving at the meaning of the word 'willfully' may be afforded by the context in which it is used (United States v. Sioux City Stock Yards Co. (C.C.) 162 F. 556, 562), and we think in the present instance the other omissions which the statute denounces in the same sentence only if willful, aid in ascertaining the meaning as respects the offense here charged. The revenue acts command the citizen, where required by law or regulations, to pay the [290 U.S. 389, 396] tax, to make a return, to keep records, and to supply information for computation, assessment, or collection of the tax. He whose conduct is defined as criminal is one who 'willfully' fails to pay the tax, to make a return, to keep the required records, or to supply the needed information. Congress did not intend that a person, by reason of a bona fide misunderstanding as to his liability for the tax, as to his duty to make a return, or as to the adequacy of the records he maintained, should become a criminal by his mere failure to measure up to the prescribed standard of conduct. And the requirement that the omission in these instances must be willful, to be criminal, is persuasive that the same element is essential to the offense of failing to supply information.
It follows that the respondent was entitled to the charge he requested with respect to his good faith and actual belief. Not until this court pronounced judgment in United States v. Murdock, 284 U.S. 141 , 52 S. Ct. 63, 82 A.L.R. 1376, had it been definitely settled that one under examination in a federal tribunal could not refuse to answer on account of probable incrimination under state law. The question was involved but not decided in Ballmann v. Fagin, 200 U.S. 186, 195 , 26 S.Ct. 212, and specifically reserved in Vajtauer v. Commr. of Immigration, 273 U.S. 103, 113 , 47 S.Ct. 302. The trial court could not therefore properly tell the jury the defendant's assertion of the privilege was so unreasonable and ill founded as to exhibit bad faith and establish willful wrongdoing. This was the effect of the instructions given. We think the Circuit Court of Appeals correctly upheld the respondent's right to have the question of absence of evil motive submitted to the jury, and we are of opinion that the requested instruction was apt for the purpose.
The government relies on Sinclair v. United States, 279 U.S. 263 , 49 S.Ct. 268. That case, however, construed an altogether [290 U.S. 389, 397] different statutory provision. Sinclair was indicted for refusal to answer a question pertinent to a matter under investigation by a committee of the Senate. The act upon which the indictment was based declared: 'Every person who having been summoned as a witness by the authority of either House of Congress, to give testimony or to produce papers upon any matter under inquiry before either House, or any committee of either House of Congress, willfully makes default, or who, having appeared, refuses to answer any question pertinent to the question under inquiry, shall be deemed guilty of a misdemeanor. ...'7 Two distinct offenses are described in the disjunctive, and in only one of them is willfulness an element. Sinclair, having been summoned, attended the hearing. He was therefore guilty of no willful default in obeying a summons. He refused to answer certain questions, not because his answers might incriminate him, for he asserted they would not, but on the ground the questions were not pertinent or relevant to the matters then under inquiry. The applicable statute did not make a bad purpose or evil intent an element of the misdemeanor of refusing to answer, but conditioned guilt or innocence solely upon the relevancy of the question propounded. Sinclair was either right or wrong in his refusal to answer, and, if wrong, he took the risk of becoming liable to the prescribed penalty. Here we are concerned with a statute which denounces a willful failure to do various things thought to be requisite to a proper administration of the income tax law, and the government in the trial below, we think correctly, assumed that it carried the burden of showing more than a mere voluntary failure to supply information, with intent, in good faith to exercise a privilege granted the witness by the Constitution. The respondent's refusal to answer was intentional and without legal justification, but [290 U.S. 389, 398] the jury might nevertheless find that it was not prompted by bad faith or evil intent, which the statute makes an element of the offense.
The judgment is affirmed.
Mr. Justice STONE and Mr. Justice CARDOZO are of opinion that the judgment should be reversed.
[ Footnote 1 ] 62 F.(2d) 926.
[ Footnote 3 ] U.S.C. tit. 26, 1023, 2148 (26 USCA 1023, 2148).
[ Footnote 4 ] U.S.C., tit. 26, 1247 (26 USCA 1247); 26 USCA 1247 and note.
[ Footnote 5 ] 44 Stat. 116; U.S.C., tit. 26, 1265 (26 USCA 1265).
[ Footnote 6 ] Except that it substitutes the word 'title' for the word 'act,' 45 Stat. 835; U.S.C. tit. 26, 2146(a), 26 USCA 2146(a).
[ Footnote 7 ] U.S.C., tit. 2, 192 (2 USCA 192).