UAE Tax Disputes: Silence Is No Longer Refusal at the Committee Stage (Supreme Court 388/2024)
For almost seven years UAE taxpayers and their advisers treated the lapse of the statutory time-frame given to a Tax Disputes Resolution Committee (TDRC) as a de-facto “no” and went straight to court. The Federal Supreme Court has now changed that position in Judgment No. 388/2024 issued on 14 May 2025. Judgment No. 388/2024 (14 May 2025) holds that: The TDRC is a quasi-judicial body whose work is governed by the Civil Procedures Law, not by the ordinary rules of administrative silence. The 20 + 60-working-day deadline in Decree-Law 28/2022 is purely regulatory; exceeding it does not amount to an implied rejection. A court may only review a written TDRC decision. Filing a case before that moment is “premature and without subject-matter”. In effect, the “implied-rejection” doctrine survives only at the administrative level (the Federal Tax Authority’s reconsideration stage). At the quasi-judicial committee level, silence no longer speaks. The legal architecture in brief Instrument Relevant articles Key deadlines Cabinet Decision 23/2018 (creating the TDRCs) Art. 6(1)–(2) Committee decides objections within 20 WD. Decree-Law 7/2017 (old Tax Procedures Law) Arts. 27–29 FTA must decide a reconsideration request in 20 WD. Silence ⇒ taxpayer may object to TDRC. Decree-Law 28/2022 (current Tax Procedures Law) Art. 31 TDRC decides objections in 20 WD, extendable 60 WD by the Exec. Regs. Cabinet Decision 74/2023 (Exec. Regs.) Art. 45 Confirms the additional 60 WD extension. The “old” approach: silence = refusal Courts had routinely applied classic principles of administrative law: Primary Ct 507/2019 – declared the FTA’s failure to rule on a reconsideration within 20 days an implicit refusal, giving the taxpayer standing before a TDRC. Primary Ct 180/2021 – extended the same logic upward: if a TDRC exceeded its own statutory period, silence equaled rejection. Supreme Ct 1245/2022 – characterized any unjustified administrative omission as a “negative administrative decision” subject to annulment. Because TDRCs were often viewed as administrative adjuncts to the FTA, litigants treated them the same way: once 20 (or 20 + 60) working days expired, they filed suit. Courts reinforced that view, a recent example was in Federal Supreme Court Judgment No. 1020/2023 (issued January 2024) where the taxpayer lodged an objection with the TDRC; when no ruling emerged, the taxpayer petitioned the Federal Primary Court directly. The case travelled through three tiers—Primary Court ➔ Appeals Court ➔ Federal Supreme Court—without a single court questioning the admissibility of the claim in the absence of a TDRC decision. All three courts examined the substantive merits, confirming that — at that time — judicial practice accepted TDRC silence as a de-facto rejection. Judgment 388/2024: the turn of the tide Quasi-judicial status reaffirmed The Supreme Court emphasized that a TDRC “exercises a form of judicial jurisdiction” and applies the Civil Procedures Law. Therefore procedural silence does not generate a decision—positive or negative. Only an express written decision can be challenged. Regulatory vs. mandatory deadlines Because the 20 + 60-day limit is “organizational”, the committee may validly extend its deliberations without sanction. The Court explicitly stated that the legislator attached no penalty to non-compliance. Premature actions dismissed The claimant in the case filed in court five weeks before the extended deadline expired; the suit was struck out as “filed before its proper time”. Judgment extract The reasoning of the Federal Supreme Court in Judgment 388/2024 was as follows: “It is established that an administrative committee vested with quasi-judicial authority exercises a form of judicial jurisdiction and applies the provisions of the Civil Procedure Law. Accordingly, one must await its decision on the merits of the dispute, since that decision is the subject and basis of any subsequent challenge. When a statutory text is clear, explicit, and definitive as to its intent, no departure from it or interpretation contrary to its wording is permissible under the pretext of pursuing the purpose that inspired it; there is no room for interpretation where the text is unequivocal. Because the legislator has conferred jurisdiction on the court only upon the issuance of a decision by the Tax Disputes Resolution Committee, judicial review pertains to that decision alone, and the court may not go beyond it by examining grounds not contained in the committee’s ruling. Where the claimant’s submissions before the committee are identical to those later brought before the court of first instance, the claimant must wait, then promptly challenge the committee’s decision once issued. In the present case, the claimant challenged the respondent’s reassessment decision and filed an objection with the Tax Disputes Resolution Committee on 25 June 2024. The committee was entitled—after the initial 20-day period—to extend the objection’s review by 60 working days, ending on 22 October 2024, as stated by the claimant in his pleading. Yet he brought his action before the court of first instance on 20 September 2024, without awaiting the committee’s decision, which would have been subject to annulment proceedings. Consequently, his action was filed prematurely and was inadmissible. Nor is the matter altered by the committee’s statement of 15 November 2024 that the objection was still under consideration, for the committee may extend the period even after 80 working days have elapsed; that time limit is regulatory, and the legislator has prescribed no sanction for its breach. Moreover, the court’s review is confined to the committee’s decision; it is not competent to revisit the respondent’s underlying reassessment, as doing so would contravene the express statutory provisions cited above. The requirement that a decision be issued by the Tax Disputes Resolution Committee—a body with quasi-judicial competence—is a formal prerequisite that must be satisfied.” Practical consequences Issue Before 388/2024 After 388/2024 When can a taxpayer go to court? On day 21 (or day 81) if the TDRC had not ruled. Only after receiving a written TDRC decision. Risk of limitation periods Taxpayer controlled timing by filing early. Taxpayer must monitor issuance of the TDRC decision and file within 40 WD of notification (Art. 46, Exec. Regs.). Case-management strategy Encourage early escalation to avoid delay. Emphasise proactive engagement with the TDRC; consider follow-up