
ALO Law Office- IDT Tax I Arbitration I Litigation
Date: 01.04.2026
CESTAT Delhi Clarifies Limits of Custodian Responsibility in Customs Area

This Article has been written by Advocate Ravi Shekhar Jha-BALLB & LLM (Constitutional Law) based in New Delhi. The views expressed are based on his interpretation of the law. He can be reached at his email idΒ intelconsul@gmail.com or on his Mobile +91-9999005379.β
The Customs, Excise & Service Tax Appellate Tribunal (CESTAT), New Delhi Principal Bench, recently delivered a significant judgment in the case of CONCOR vs. β Principal Commissioner of Customs Imports ICD TKD-New Delhi. β The case revolved around the alleged pilferage of imported goods while under the custody of Container Corporation of India Limited (CONCOR), a public sector undertaking responsible for managing Inland Container Depots (ICD) and Container Freight Stations (CFS). β
Background of the Case β
The appeal arose from an Order-in-Original dated June 30, 2025, passed by the Principal Commissioner of Customs, New Delhi. β The order confirmed a demand of Rs. β 51,80,776/- as customs duty on CONCOR under Section 45(3) of the Customs Act, 1962, along with penalties of Rs. β 5,10,000/- under Section 112(a)(ii) and Rs. β 2,00,000/- under Section 117 of the Act. β The case stemmed from a Show Cause Notice (SCN) issued on September 27, 2024, which alleged that the goods declared in the Import General Manifest (IGM) were pilfered and replaced with cement blocks while in the custody of CONCOR. β
Key Facts
- Custodian Responsibility: As per Section 45 of the Customs Act, CONCOR, as the custodian of imported goods, is responsible for their safe custody until they are cleared for home consumption, warehoused, or transshipped. β If goods are pilfered while in the custodian’s care, the custodian is liable to pay duty on the pilfered goods. β
- Discrepancy in Goods: The SCN alleged that five containers, which were supposed to contain high-value goods such as aluminum ingots, zinc ingots, face masks, and disposable gloves, were found to contain cement blocks during examination. β
- Examination Reports: The containers were examined by customs officers on multiple occasions between September 2022 and August 2023. β The examination reports, signed by customs officers and CONCOR representatives, indicated that the containers contained cement blocks. β Importantly, these reports did not note any tampering or substitution of seals. β
- Final Inventory Report: In August/September 2023, CONCOR submitted a final inventory report seeking a No Objection Certificate (NOC) to dispose of the contents of the containers. β The report listed the contents as cement blocks, consistent with the earlier examination reports. β
Arguments Presented
CONCOR’s Submissions β
- Containers are received and retained on a “said to contain” basis, meaning neither the shipping line nor the custodian can verify the contents without customs inspection. β
- The discrepancy between the IGM and the actual contents of the containers could not be attributed to CONCOR, as it had no authority to open or examine the containers. β
- Examination reports signed by customs officers and CONCOR representatives confirmed the presence of cement blocks and did not indicate any tampering or substitution of seals. β
- The burden of proof lies with the Revenue to establish that pilferage or substitution occurred while the containers were in CONCOR’s custody. β No evidence was provided to support this claim. β
- The demand for duty under Section 45(3) of the Customs Act was time-barred, as the provisions of Section 28 of the Act, which govern the time limit for raising demands, should apply. β
Revenue’s Submissions β
- As the approved custodian under the Customs Act, CONCOR was responsible for the safe custody of the imported goods and ensuring their integrity. β
- The discrepancy between the IGM and the actual contents of the containers indicated pilferage or substitution, making CONCOR liable to pay duty under Section 45(3) of the Act. β
Tribunal’s Observations and Final Order β
After considering the submissions and examining the records, the Tribunal concluded that there was no evidence to prove that the goods were pilfered or substituted while in CONCOR’s custody. β The examination reports, signed by customs officers and CONCOR representatives, confirmed the presence of cement blocks in the containers and did not indicate any tampering or substitution of seals. β
The Tribunal emphasized that the custodian could not be held responsible for the contents of sealed containers received on a “said to contain” basis unless there was evidence of tampering or substitution of seals while in its custody. β Since no such evidence was presented, the Tribunal held that the demand for duty and the penalties imposed on CONCOR were unsustainable. β
The Tribunal allowed CONCOR’s appeal and set aside the impugned order, granting consequential relief to the appellant. β
Key Takeaways
- Custodian’s Responsibility: The judgment clarifies that a custodian is responsible for the safe custody of goods but cannot be held liable for discrepancies in the contents of sealed containers unless there is evidence of tampering or substitution of seals while in its custody. β
- Burden of Proof: The burden of proving pilferage or substitution lies with the Revenue, and it must provide positive evidence to establish the custodian’s liability. β
- Time Limit for Demands: The Tribunal highlighted that even though Section 45(3) does not specify a time limit for raising demands, the principles of reasonableness and the provisions of Section 28 of the Customs Act should apply. β
- Importance of Documentation: Examination reports and inventory records play a crucial role in determining the liability of custodians in cases of alleged pilferage or substitution. β
This judgment serves as a significant precedent for custodians and stakeholders in the import-export industry, emphasizing the importance of proper documentation and the need for clear evidence in cases of alleged pilferage or substitution.
Source: CESTAT Delhi
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