Second Provisional Attachment After One Year Expired is Illegal and Without Jurisdiction
Issue
Whether the GST authorities have the jurisdiction to issue a second provisional attachment order under Section 83 of the CGST Act immediately after the expiry of the first order (which lapsed after one year), effectively extending the attachment on substantially the same grounds.
Facts
First Attachment: The authorities passed a provisional attachment order against the petitioner under Section 83 on 21.02.2024.
Expiry: As per Section 83(2), this order ceased to have effect upon the expiry of one year, i.e., at midnight on 20.02.2025.
Second Attachment: The very next day, on 21.02.2025, the authorities issued a second provisional attachment order against the same petitioner.
Challenge: The petitioner challenged this second order as illegal, arguing that the authorities lacked the jurisdiction to “renew” or reissue an attachment once the statutory life of the first order had expired.
Decision
The High Court ruled in favour of the assessee and quashed the second attachment order dated 21.02.2025.
Strict One-Year Limit: The Court held that Section 83(2) explicitly mandates that every provisional attachment shall cease to have effect after the expiry of one year. This is a hard statutory cap.
Draconian Power: The power to provisionally attach property is “draconian” in nature. Therefore, it must be strictly construed. The statute cannot be interpreted to confer any additional authority to extend this power beyond the stipulated one-year period.
Reliance on Supreme Court: The Court relied on the binding precedent of the Supreme Court in Kesari Nandan Mobile v. Office of Asstt. Commissioner of State Tax ([2025] 177 taxmann.com 481 (SC)). In that case, the Apex Court held that issuing a fresh attachment order on substantially the same grounds after the expiry of the initial order is a disregard of statutory safeguards and is impermissible.
Outcome: Since the first order had lapsed by operation of law, the second order issued immediately thereafter was held to be illegal and without jurisdiction. The authorities were left free to pursue other legal proceedings (like assessment or recovery), but not a renewed provisional attachment under Section 83.
Key Takeaways
No Extensions/Renewals: The provisional attachment under Section 83 has a maximum lifespan of one year. It cannot be extended, renewed, or re-imposed on the same grounds once it lapses.
Automatic Cessation: The attachment dies a natural legal death after 365 days. No separate order is required to lift it; it lifts by operation of law.
Safeguard Against Harassment: The one-year limit is a legislative safeguard to ensure that a taxpayer’s assets are not indefinitely frozen during the pendency of proceedings. Authorities must complete their investigation/adjudication within this timeframe if they wish to convert the provisional attachment into a final recovery.
83. Provisional attachment to protect revenue in certain cases
(1) Where, after the initiation of any proceeding under Chapter XII, Chapter XIV or Chapter XV, the Commissioner is of the opinion that for the purpose of protecting the interest of the Government revenue it is necessary so to do, he may, by order in writing, attach provisionally, any property, including bank account, belonging to the taxable person or any person specified in sub-section (1A) of section 122, in such manner as may be prescribed.
(2) Every such provisional attachment shall cease to have effect after the expiry of a period of one year from the date of the order made under sub- section (1).
The manner and mode of attachment to be carried out under Section 83 of the CGST Act has been prescribed under Rule 159 of the CGST Rules. Rule 159 of the CGST Rules reads:
Rule 159. Provisional attachment of property. –
(1) Where the Commissioner decides to attach any property, including bank account in accordance with the provisions of section 83, he shall pass an order in FORM GST DRC-22 to that effect mentioning therein, the details of property which is attached.
(2) The Commissioner shall send a copy of the order of attachment in FORM GST DRC-22 to the concerned Revenue Authority or Transport Authority or any such Authority to place encumbrance on the said movable or immovable property, which shall be removed only on the written instructions from the Commissioner to that effect.
(3) Where the property attached is of perishable or hazardous nature, and if the person, whose property has been attached pays an amount equivalent to the market price of such property or the amount that is or may become payable by such person, whichever is lower, then such property shall be released forthwith, by an order in FORM GST DRC-23, on proof of payment.
(4) Where such person fails to pay the amount referred to in sub-rule (3) in respect of the said property of perishable or hazardous nature, the Commissioner may dispose of such property and the amount realized thereby shall be adjusted against the tax, interest, penalty, fee or any other amount payable such person.
(5) Any person whose property is attached may file an objection in FORM GST DRC-22A to the effect that the property attached was or is Not liable to attachment, and the Commissioner may, after affording an opportunity of being heard to the person filing the objection, release the said property by an order in FORM GST DRC- 23.
(6) The Commissioner may, upon being satisfied that the property was, or is No longer liable for attachment, release such property by issuing an order in FORM GST DRC-23.
49. Now in this backdrop, it becomes necessary to emphasise that before the Commissioner can levy a provisional attachment, there must be a formation of “the opinion” and that it is necessary “so to do” for the purpose of protecting the interest of the government revenue. The power to levy a provisional attachment is draconian in nature. By the exercise of the power, a property belonging to the taxable person may be attached, including a bank account. The attachment is provisional and the statute has contemplated an attachment during the pendency of the proceedings under the stipulated statutory provisions noticed earlier. An attachment which is contemplated in Section 83 is, in other words, at a stage which is anterior to the finalisation of an assessment or the raising of a demand. Conscious as the legislature was of the draconian nature of the power and the serious consequences which emanate from the attachment of any property including a bank account of the taxable person, it conditioned the exercise of the power by employing specific statutory language which conditions the exercise of the power. The language of the statute indicates first, the necessity of the formation of opinion by the Commissioner; second, the formation of opinion before ordering a provisional attachment; third the existence of opinion that it is necessary so to do for the purpose of protecting the interest of the government revenue; fourth, the issuance of an order in writing for the attachment of any property of the taxable person; and fifth, the observance by the Commissioner of the provisions contained in the rules in regard to the manner of attachment. Each of these components of the statute are integral to a valid exercise of power. In other words, when the exercise of the power is challenged, the validity of its exercise will depend on a strict and punctilious observance of the statutory preconditions by the Commissioner. While conditioning the exercise of the power on the formation of an opinion by the Commissioner that “for the purpose of protecting the interest of the government revenue, it is necessary so to do”, it is evident that the statute has not left the formation of opinion to an unguided subjective discretion of the Commissioner. The formation of the opinion must bear a proximate and live nexus to the purpose of protecting the interest of the government revenue.
12.. A statutory authority can do only such acts which are permissible under the statute and the authority cannot be permitted to do something which is not provided in law. This principle was formulated by the Calcutta High Court nine decades ago in Maniruddin Bepari v. Chairman of the Municipal Commissioners, in which it was inter alia held:
“It is a fundamental principle of law that a natural person has the capacity to do all lawful things unless his capacity has been curtailed by some rule of law. It is equally a fundamental principle that in the case of a statutory corporation it is just the other way. The corporation has no power to do anything unless those powers are conferred on it by the statute which creates it.”
7. Article 73 of the Constitution relates to the executive powers of the Union, while the corresponding provision in regard to the executive powers of a State is contained in Article 162. The provisions of these articles are analogous to those of Sections 8 and 49(2) respectively of the Government of India Act, 1935 and lay down the rule of distribution of executive powers between the Union and the States, following, the same analogy as is provided in regard to the distribution of legislative powers between them. Article 162, with which we are directly concerned in this case, lays down:
“Subject to the provisions of this Constitution, the executive power of a State shall extend to the matters with respect to which the legislature of the State has power to make laws:
Provided that in any matter with respect to which the legislature of a State and Parliament have power to make laws, the executive power of the State shall be subject to, and limited by, the executive power expressly conferred by this Constitution or by any law made by Parliament upon the Union or authorities thereof.”
Thus under this article the executive authority of the State is exclusive in respect to matters enumerated in List II of Seventh Schedule. The authority also extends to the Concurrent List except as provided in the Constitution itself or in any law passed by Parliament. Similarly, Article 73 provides that the executive powers of the Union shall extend to matters with respect to which Parliament has power to make laws and to the exercise of such rights, authority and jurisdiction as are exercisable by the Government of India by virtue of any treaty or any agreement. The proviso engrafted on clause (1) further lays down that although with regard to the matters in the Concurrent List the executive authority shall be ordinarily left to the State it would be open to Parliament to provide that in exceptional cases the executive power of the Union shall extend to these matters also. Neither of these articles contain any definition as to what the executive function is and what activities would legitimately come within its scope. They are concerned primarily with the distribution of the executive power between the Union on the one hand and the States on the other. They do not mean, as Mr Pathak seems to suggest, that it is only when Parliament or the State Legislature has legislated on certain items appertaining to their respective lists, that the Union or the State executive, as the case may be, can proceed to function in respect to them. On the other hand, the language of Article 172 clearly indicates that the powers of the State executive do extend to matters upon which the State Legislature is competent to legislate and are not confined to matters over which legislation has been passed already. The same principle underlies Article 73 of the Constitution. These provisions of the Constitution therefore do not lend any support to Mr Pathak’s contention.”
Now, the authorities are clear that it is not unconstitutional for the legislature to leave it to the Executive to determine details relating to the working of taxation laws, such as the selection of persons on whom the tax is to be laid, the rates at which it is to be charged in respect of different classes of goods, and the like.
7. It is true that there is no specific provision in the Rules laying down the principle of promotion of junior or senior grade officers to selection grade posts. But that does not mean that till statutory rules are framed in this behalf the Government cannot issue administrative instructions regarding the principle to be followed in promotions of the officers concerned to selection grade posts. It is true that Government cannot amend or supersede statutory rules by administrative instructions, but if the rules are silent on any particular point Government can fill up the gaps and supplement the rules and issue instructions not inconsistent with the rules already framed.
Agenda Item 3(v): Clarification regarding restoration of provisionally attached property.
4.30 The Pr. Commissioner, GST Policy Wing took up the next agenda regarding provisional attachment of the property of the taxpayers. He stated that Section 83(2) of CGST Act, 2017 states that the provisional attachment shall cease to have effect after the expiry of a period of one year from the date of the order i.e. provisional attachment order in the form of FORM GST DRC-22.
However, as per Rule 159(2) of CGST Rules, 2017, provisional attachment of a property shall be removed only on the written instructions from the Commissioner to that effect. But, even after completion of 1 year, the property is not released as the banks and other agencies with which the property is provisionally attached unless they receive written instructions from the Tax Authorities.
Therefore, it appeared that the CGST Rules, 2017 were not in alignment with the CGST Act, 2017. This misalignment between Rules and Act was observed by the Hon’ble Delhi Court in the case of M/s. Balaji Enterprises v. Pr. ADG, DGGI and therefore, the Hon’ble Court had ordered to adopt a procedure for defreezing the bank accounts.
4.31 He mentioned that the issue was deliberated by the Law Committee and the Law Committee recommended amendment in sub-rule (2) of rule 159 of CGST Rules and in FORM GST DRC-22, as below to align the provisions of CGST Rules with that of section 83 of CGST Act.:
Amendment in sub-rule (2) of Rule 159:
To insert the words “or on expiry of a period of one year from the date of issuance of order in FORM GST DRC-22, whichever is earlier,” after the words “to that effect”, to clearly provide that order issued under FORM GST DRC-22 shall cease to have effect after expiry of period of one year from the date of issuance.
Amendment in FORM GST DRC-22:
To insert the words “This order shall cease to have effect, on the date of issuance of order in FORM GST DRC-23 by the Commissioner, or on the expiry of a period of one year from the date of issuance of this order, whichever is earlier.”
| (i) | The petition is hereby disposed of. |
| (ii) | The impugned provisional attachment order dated 21.02.2025 passed by respondent No.1 is hereby quashed. |
| (iii) | It is further made clear that respondent would be entitled to take recourse to other proceedings against the petitioner in accordance with law except under Section 83 of the CGST/KGST Act. |