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Provisional attachment under money-laundering law upheld where material supported belief, and pre-offence property could be attached as equivalent value.
Writ jurisdiction may still be invoked despite statutory remedies under the Prevention of Money-Laundering Act, 2002 where the challenge goes to the root of jurisdiction. The Gauhati HC found that the Authorized Officer had sufficient material, including investigation records, statements, seized documents, GST data and financial trail evidence, to form the requisite reason to believe for provisional attachment. It further held that property purchased before the scheduled offence could still be attached as equivalent value of proceeds of crime. The Court also held that disclosure of recorded reasons in the attachment order was not prohibited by the statute or rules and did not by itself vitiate jurisdiction, while referring confidentiality issues to a larger bench.
Maintainability of Writ petition - Alternative statutory remedy - Provisional attachment under PMLA - Scope of "reason to believe" - Proceeds of crime and equivalent value attachment - Jurisdictional Error - pre-conditions for passing the order of provisional attachment - Search Authorization under Section 67 - Property purchased before commission of the scheduled offence - principles of natural justice and fair play Whether in the given facts and circumstances of the case, the writ petition under Article 226 is to be entertained ? - HELD THAT: - It is evidently clear that there is a remedy available to a person whose property has been attached provisionally in exercise of powers under Section 5[1]. In Gujrat Ambuja Cement Limited [2005 (7) TMI 353 - Supreme Court], it was observed to the effect that if the High Court had entertained a petition despite availability of alternative remedy and heard the parties on merits it would be ordinarily unjustifiable to dismiss the same on the ground of non-exhaustion of statutory remedy; unless the High Court finds that factual disputes are involved and it would not be desirable to deal with them in a writ petition. ‘Attachment’, as per Section 2[d] of the PMLA, means prohibition of transfer, conversion, disposition or movement of property by an order issued under Chapter III of the PMLA. The object behind Section 5 is, in essence, a preventive not a punitive measure. By attaching the tainted property, the State seeks to preserve the status quo, so that the asset remains available for eventual confiscation if the guilt of the accused is established. Provisional attachment does not transfer the title of the property to the State. The Court held that, although the PMLA provides a complete statutory mechanism before the Adjudicating Authority, the Appellate Tribunal and thereafter the High Court, existence of such remedy does not bar writ jurisdiction where the impugned action is alleged to be without jurisdiction or in defiance of fundamental procedural requirements. Since a provisional attachment restricts the constitutional right to property and the petitioner's challenge was founded on alleged absence of the jurisdictional conditions for exercise of power under Section 5(1), the Court considered it appropriate to examine the challenge instead of rejecting the petition solely on the ground of alternative remedy. [Paras 23, 26, 27] The Court proceeded to examine the challenge on the footing that the grounds urged alleged jurisdictional error in the exercise of attachment power. Reason to believe - Proceeds of crime - Immediate attachment under second proviso - HELD THAT: - In Joti Parshad [1992 (10) TMI 256 - SUPREME COURT], the Hon’ble Supreme Court has observed that ‘knowledge’ is an awareness on the part of the person concerned indicating his state of mind. ‘Reason to believe’ is another facet of the state of mind. Before passing the Provisional Attachment Order [PAO], there must be an opinion formed by the Authorized Officer that for the purpose of confiscation of Proceeds of Crime, it is necessary to attach provisionally any property of any person who is in possession of any part or whole of Proceeds of Crime. The Court analysed Section 5(1) and held that the authorised officer must record in writing, on the basis of material in possession, satisfaction as to the two jurisdictional requirements: possession of proceeds of crime and likelihood of concealment, transfer or dealing therewith so as to frustrate confiscation. On the facts, the materials referred to in the provisional attachment order included the predicate FIR, the ECIR, seized documents, GST returns, statements recorded under Section 50, and bank records. Those materials were considered sufficient for the authorised officer to conclude that fraudulent ITC generated through the shell entity had been layered through downstream entities, that the petitioner's concern had availed and utilised part of such fraudulent ITC, and that the tainted amount had already entered the formal financial system. The Court reiterated that judicial review in such matters is confined to examining the existence of relevant material and the live link between such material and the belief formed, and not the sufficiency of that material. On that standard, the Court found the statutory preconditions and the further requirement under the second proviso to be satisfied. [Paras 52, 53, 55, 56] The challenge to the authorised officer's satisfaction under Section 5(1) and the second proviso was rejected. Equivalent value attachment - Property acquired prior to scheduled offence - Proceeds of crime - HELD THAT: - Following Vijay Madanlal Choudhary [2022 (7) TMI 1316 - SUPREME COURT (LB)], the Hon’ble Supreme Court in M/s. Nav Nirman Builders & Developers Pvt. Ltd. vs. the Union of India [2026 (2) TMI 435 - SUPREME COURT], has held that the definition of ‘Proceeds of Crime’ under Section 2[1][u] of the PMLA is wide enough to include a property which is equivalent in value to the property that is directly or indirectly obtained from a criminal activity relating to the scheduled offence. Thus, such a property can also be attached if the PoC, as such, are not otherwise available. Section 2[1][u] of the PMLA, despite being a definition clause, indicates the very objective of the enactment to secure PoC in any form. Therefore, where the actual tainted asset is no longer available, property equivalent in value may be attached. The Court held that the tainted character of proceeds of crime does not disappear merely because they are layered or circulated through multiple entities, and attachment can reach the person in possession of the whole or part of such proceeds or their equivalent value. Applying that principle, the Court held that the attached immovable property could be attached for value, even though it had been purchased before the scheduled offences, because the allegedly tainted amount availed and utilised by the petitioner's concern had already been infused into the formal financial system and was not available in specie. The contrary view in Seema Garg [2020 (3) TMI 460 - PUNJAB & HARYANA HIGH COURT] was held not to align with the Supreme Court decisions referred to in the judgment. [Paras 63, 64, 65, 66, 67] The contention that pre-existing property lay outside the scope of Section 5(1) was held unsustainable. Whether the impugned PAO is bad in law for the reason that the Authorized Officer has recorded his ‘reason to believe’ in the order itself ? - HELD THAT: - The case in Aslam Mohammad Merchant vs. Competent Authority and others [2008 (7) TMI 852 - SUPREME COURT], pertained to a proceeding under Chapter V-A of the NDPS Act leading to forfeiture of property. A three-Judge decision in State of Uttar Pradesh and others vs. Aryaverth Chawal Udyog [2014 (11) TMI 1095 - SUPREME COURT] pertained to re-assessment proceeding under the U.P. Trade Tax Axt, 1948. In these statutes, the pre-condition for the concerned proceeding was a mandatory requirement to record the reason to believe in writing to the affected person / noticee. It is not in doubt that the right to life and personal liberty, a fundamental right, is albeit at a higher pedestal than the right to property. Yet, the right to property is a constitutional right and no person is to be deprived of his property save by authority of law. Aslam Mohammad Merchant [supra] has held that the right to hold property is not only a constitutional right but also a human right. In the context of the Himachal Pradesh Goods and Services Tax Act, 2017 wherein a power has been vested on the Commissioner to order provisional attachment of the property of an assessee, the Hon’ble Supreme Court in M/s Radha Krishan Industries [2021 (4) TMI 837 - SUPREME COURT], has held that the power to levy a provisional attachment is draconian in nature. By the exercise of power, a property belonging to a taxable person may be attached. The Court distinguished the confidentiality requirement concerning forwarding of the order and materials to the Adjudicating Authority in a sealed cover from any supposed prohibition on disclosure of the reasons to the affected person. Examining the statutory scheme, the Court found that neither Section 5(1) nor the 2013 Rules prescribe any restriction on the contents of the provisional attachment order or require that reasons to believe must remain outside the order. The 2005 Rules were understood as regulating preservation and transmission of the order and materials to the Adjudicating Authority, not as mandating secrecy vis-a-vis the affected person. The Court further observed that fairness would require furnishing the reasons to the affected person on request and that inclusion of those reasons in the order would align with natural justice and reduce the scope for arbitrary action. At the same time, the Court noticed that a co-ordinate Bench in Aftabuddin Ahmed [2024 (4) TMI 374 - GAUHATI HIGH COURT] had taken a contrary view on the confidential character of such reasons. In view of that conflict, the Court directed reference of the issue to a larger Bench. [Paras 97, 98, 100, 101, 102] The Court rejected the petitioner's challenge on this ground in principle, but referred the conflict with the co-ordinate Bench view to a larger Bench for authoritative resolution. Final Conclusion: The Court held that the challenge to the provisional attachment did not disclose absence of the jurisdictional conditions under Section 5(1) of the PMLA, and that attachment of property equivalent in value was permissible even though the property had been acquired before commission of the scheduled offence. However, since its view that reasons to believe may form part of the provisional attachment order conflicted with the co-ordinate Bench decision in Aftabuddin Ahmed, the matter was directed to be placed before the Chief Justice for constitution of a larger Bench on that issue.