pri GST Audit : An Overview of Provisions GST Audit : An Overview of Provisions

Goods & Services tax (GST) is a comprehensive, destination based indirect tax levied on manufacture, sale and consumption of goods & services as well as on import of goods & services, except zero rated and exempt supplies.

The registered person under GST is required to assess his own tax liability, utilize ITC & pay his GST liability within due date.& file return & require to comply with provision of GST law. GST being in the nature of a self-assessment tax, audit procedures have been introduced for error correction and ensuring proper tax compliance.

GST envisages three types of Audit.

1) Audit by taxable person [Sec 35(5)] :This is also known as statutory audit under GST. Every registered person ( whether compulsory or voluntarily registered), whose aggregate turnover during a financial year exceeds two crores rupees get his accounts audited by a CA/CMA and shall furnish a copy of audited annual accounts and a reconciliation statement, duly certified in FORM GSTR -9C [ Rule 80(3) ]

2) Audit by tax authorities [ Sec 65 ]: To be done by the commissioner or any officer authorised by him in terms of Section 65 of the CGST Act, 2017 read with Section 20(xiv) of the IGST Act, 2017 and Section 21(xv) of UTGST Act, 2017.

3) Special Audit [ Sec 66] : To be done by a CA/CMA appointed by commissioner in the interest of revenue to determine tax liabilities in complex cases.Special audit provides a lawful and legal way for the GST officers to take the assistance of a CA/CMA to determine tax liabilities in complex cases. The professional expertise of a CA/CMA will be of great significance in ensuring that the interest of revenue is safeguarded at all times. A Special Audit can not be conducted for an unregistered taxable person, but can be ordered in respect of the non-filer.


Section 35 of the CGST Act, deals with the maintenance of books of accounts, documents and records. Section 35(5) read with Section 44(2) of the CGST Act and the corresponding Rule 80(3) of the CGST Rules relates to Statutory audit under GST. Sec 65 deals with Audit by Tax authority, while Sec 66 of the CGST Act mandate special audit.

The provision relating to Audit under GST is covered in Chapter XI (Rule 101 & 102) of CGST Rules, 2017.

Sections Nature of audit Remarks
35(5) Statutory Audit by CA/CMA If “aggregate turnover” exceeds Rs.2 Crores in a F.Y
65 Audit by Tax authority It could be for a F.Y or multiples thereof (to ascertain correctness of the turnover, exemptions and deductions claimed, the rate of tax applied in respect of the supply of goods or services or both, the input tax credit availed and utilised, refund claimed etc.)
66 Special Audit by CA/CMA

(with the approval of Commissioner, in the interest of revenue)

If at any stage of scrutiny, enquiry, investigation or any other proceedings, the proper officer is of the opinion that the value has not been correctly declared or the credit availed is not within the normal limits, the commissioner  may order Special Audit of a registered person through CA/CMA.

Note :

1) “Aggregate turnover” to be computed on all India basis against a single PAN.

2) Any department of the Central Government or a State Government or a local authority, whose books of account are subject to audit by the Comptroller and Auditor General of India (C&AG) or an auditor appointed for auditing the accounts of local authorities under any law for the time being in force shall be exempted from audit U/s 35(5).

3) The council of the ICAI in its 378th meeting stated that an Internal auditor of an entity can not undertake GST Audit of the same entity, since GST Audit is a statutory audit.


As per Sec 2(13) of the CGST Act ,2017  “Audit” means the examination of records, returns and other documents maintained or furnished by the registered person under GST Act or the rules made there under or under any other law for the time being in force to verify :-

> the correctness of turnover declared,

> taxes paid,

> refund claimed

> input tax credit availed, and

> to assess his compliance with the provisions of this Act or the rules made there under.


The objective of GST audit is “to verify” means to prove the accuracy/correctness of whether registered person has correctly:

1) declared his turnover

2) assessed his liability & paid taxes thereon

3) claimed eligible Input Tax Credit

4) claimed the refund, if any

5) maintained accounts and records/documents

6) filed his return as per the provisions of the law

7) complied with all the provisions of the law, rules and Notifications


As per Sec 35(5) of CGST Act, 2017,  every registered person ( whether compulsory or voluntarily registered), whose aggregate turnover during a financial year exceeds two crores rupees get his accounts audited by a CA/CMA and shall furnish a copy of audited annual accounts and a reconciliation statement, duly certified in FORM GSTR -9C [ Rule 80(3) ]

Sec 35(5) read with Section 44(2) of the CGST Act provides that the registered person upon conclusion of the Audit shall furnish the following documents electronically through the common portal either directly or through a facilitation centre notified by the commissioner.:

a) Annual Return

b) Copy of Audited annual accounts

c) Reconciliation statement, reconciling the value of supplies declared in the return (GST Annual Return) furnished for the financial year with the audited annual financial statement in FORM GSTR 9C, duly certified,

d) such other particulars, as may be prescribed

While Rule 80(3) of the CGST Rules speaks of the prescribed threshold limit at Rs. 2 Crore which is attributed to the ‘aggregate turnover’, section 35(5) speaks of the turnover in the State / turnover attributable to a GSTIN. Therefore, if a registered person is liable to get his accounts audited under Section 35(5), all the registrations obtained under the same PAN will also be liable for such audit, regardless of the turnover in each State in which the other registrations have been obtained.

For example if the aggregate turnover (PAN based) is at Rs.4 crores and the registered person is carrying on business in two different States having a turnover of Rs.2.75 crores (in Delhi) and Rs. 1.25 crores respectively, the law mandates that audit is required to be carried out in both the States.


GST audit required signification preparation from both Auditor &Auditee. Each & every transaction appearing in the audited financial statements as well as supply made without considerations also need to be analysed to access GST implications.

Following issues need special attention during GST audit :

1) Reconciliation of turnover, ITC & Tax paid

Turnover & other particulars declared in GST annual return (FORM GSTR 9) should be reconciled with data shown in Audited Annual accounts & reconciliation statement should be furnished in FORM GSTR 9C. The total  turnover need to be bifurcated among Exempted/Nil/Non GST supply, Zero rated supply & supply on which tax to be paid on Reverse charge basis. Rate wise taxable value & GST payable thereon along with GST already paid need to be disclosed in Table 9 & Reconciliation of Input Tax Credit (ITC) need to be disclosed in Table 12 of FORM GSTR 9C. Any output liability which has not been discharge through monthly return GSTR-3B or Annual Return GSTR-9 and which has been observed & recommended by the auditor may be discharge alongwith interest through DRC 03.

2) Review of Accounts/GST Return

The GST Annual Return is the summary of all monthly returns filed during the year, where as Reconciliation statement (FORM GSTR 9C) is based on audited annual accounts & GST Annual Return. So, if the GST Annual return is correctly not prepared , reconciliation statement (GSTR 9C) will give misleading figure. Therefore , prior to finalising FORM GSTR 9C , annual return (GSTR 9) should be reconciled with all the monthly return filed during the year. Amount appearing under the head “Advance received” need to be reviewed carefully since GST applicable on “Advance received” against future “supply of services” and not on “supply of goods”.

3) Classification of Supply

A supply need to classified as either goods or service. There is no concept of part supply of goods & part supply of service. The GST rate of goods are based on HSN classification, while GST rate of services are based on SAC classification. Therefore, tax invoices of inward & outward supply need to be reviewed to ascertain whether GST has been paid at correct rate. Further, the categorisation of Nil rated/exempted/ Zero rated/Non GST supply need to be reviewed.

4) Compliance of Reverse Charge Mechanism (RCM)

In respect of inward supply of notified goods & services covered U/s 9(3) of CGST Act & U/s 5(3) of IGST Act, the recipient is required to discharge GST liability thereon & also required to issue tax invoice. Further, RCM tax liability need to be discharge by cash & not through utilisation of ITC. Therefore,  inward supply which are covered under RCM, need special attention. Auditor should ensure that, the auditee has complied with RCM provision & has discharge tax liability thereon correctly & timely. It is pertinent to mentioned that RCM provision U/s 9(4) of CGST Act & U/s 5(4) of IGST Act, where recipient was required to discharge GST liability on all inward supply from un-registered persons, was in force only during the period the period from 1st July 2017 to 12th Oct 2017.

5) Review of amount booked under head “other income”

Amount appearing under account head “other income” need special attention. Income in the nature of bank interest, LD/Penalty recovered for non performance of contract, recoveries from employees and others in the form of house rent recoveries/electricity recoveries/miscellaneous receipt etc. find placed under this head. Some of the income are taxable supply while others are exempted supply. So each & every entry appearing under this account group should be scrutinised to access GST implications thereon.

6) Admissibility of Input Tax Credit

Eligibility & Conditions for availing ITC are prescribed in Sec 16(1) & Sec 16(2) of the CGST Act. The auditor should check whether the entity has claimed ITC in accordance with Law or not & all the documents required for availing ITC as prescribed in Rule 36 are available or not. While checking admissibility of ITC, factors such as use of goods or services for business purpose & inward supplies which are covered under blocked credit Us/17(5), on which ITC not available  should be kept in mind.

Transitional credit carried forward to GST regime from pre-GST regime using FORM GST TRAN-1, TRAN-2 & TRAN-3 in accordance with the provision laid down in Section 141-143 of the CGST Act 2017 also need to be reviewed to ascertain their correctness.

7) Review of Creditors outstanding for more than 180 days

As per the proviso to Section 16(2) of the CGST Act, the recipient of supply is required to reverse ITC availed, if payment is not made to the supplier within 180 days from the date of issue of tax invoice. Therefore, during GST Audit, the auditor should ask for list of creditors appearing in the books of accounts of the client at the close of the relevant F.Y and review the same. If, payment has  not been made to the supplier within the stipulated time period against the tax invoice on which ITC has been availed, the same need to be reversed & GST liability to be discharged along with interest@18%.

8) Review of Sale/disposal of business assets

As per Para 4(a) of Schedule II of the CGST Act, Transfer of business assets will be treated as supply of Goods:

“where goods forming part of the assets of a business are transferred or disposed of by or under the directions of the person carrying on the business so as no longer to form part of those assets, whether or not for a consideration, such transfer or disposal is a supply of goods by the person”.

Further, as per Para 1 of Schedule I of the CGST Act, Permanent transfer or disposal of business assets where input tax credit has been availed on such assets, to be treated as supply even if made without consideration.

On combined reading of Para 1 of Schedule I & Para 4(a) of Schedule II, it can be safely conclude that all cases of transfer or disposal or business assets will attract GST. But the method of arriving at taxable value for the purpose of levy of GST is different for assets on which ITC is availed & on which ITC not availed. Therefore, each such cases of sale/disposal of business assets should be reviewed carefully & GST liability thereon should be assessed accordingly.

9) Review of transactions not forming part of annual accounts

Supplies made without consideration do not find place in Annual accounts. However, Schedule I of CGST Act, specifies certain transactions which are to be treated as supply, even if made without consideration & GST applicable thereon.

There is no requirement of actual sale of goods under GST. The alternative methods of supply of goods could be in the form of:

a) Inter State or distinct person stock transfer;

b) captive consumption in another State location;

c) supply on consignment basis or any other basis by the principal to his agent;

d) supply on job work basis (if working under returnable basis- GST need not to be paid);

e) any other supply such as donation, free sample, gift etc.

E Way bill/ Delivery challan raised during the F.Y may be reviewed to identify above transactions. Due care must be exercise by the auditor to identify such transactions & assess GST liability thereon.


The due date of filing of GST Annual return & GST Audit Report  for the F.Y 2017-18 has been extended upto 31st  August 2019, Vide removal of Difficulty Order N0. 06/2019-Central Tax Dated 28th June 2019.

The Central Government vide Notification No. 39/2018-Central Tax Dated 4th September 2018 has notified GST Annual Return  FORM (GSTR 9) & Vide Notification No.74/2018-Central Tax Dated 31st December, 2018 has notified GST audit Report format in FORM GSTR-9C comprising PART A- Reconciliation Statement and PART B- Certification, which has to be certified by a GST auditor i.e CA/CMA.


Sec 47(2) provides that in case of failure to submit the GST annual Return within the specified time, a late fee shall be leviable @ Rs.100/day during which such failure continues subject to a maximum of 0.25% of the turnover in the State/UT.

There is no specific penalty prescribed in the GST law for not getting the accounts audited by a CA/CMA U/s 35(5). Therefore, in terms of Sec 125 of the CGST Act, general penalty of upto Rs.25,000/- shall be leviable.


*The author CA. S K MISHRA, FCA, LL.B is a Fellow member of The Institute of Chartered Accountant of India, New Delhi & Fellow member of The Institute of Cost Accountants of India, Kolkata. He is author of Amazon Best seller book on GST titled “Students’ Guide to GST for Nov 2019 Exam” published by Mewar University Press. Available on Flipkart/Amazon & all leading book stores across the country. He can be reached at, Mob.9805072910.

Author Bio

Qualification: CA in Job / Business
Company: NHPC Ltd
Location: Chamba, Himachal Pradesh, IN
Member Since: 01 Oct 2017 | Total Posts: 10
Shri S K Mishra, FCA, LL.B is a Fellow Member of The institute of Chartered Accountants of India, New Delhi & Fellow Members of the Institute of Cost Accountants of India, Kolkata. He specializes in the field of GST and Author of Amazon best Seller " Systematic Approach to GST " & "Indirect View Full Profile

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