GST Audit Support — Pattaravakkam Industrial Estate & Ambattur Industrial Estate

Sub-section (1) of Section 65 of the Central Goods and Services Tax Act empowers the Commissioner, or any officer authorised by him through a general or specific order, to undertake audit of any registered person for such period, frequency and manner as may be prescribed. Sub-section (2) provides that the audit may be conducted either at the place of business of the registered person or at the office of the proper officer. It is to be noted that this provision is the substantive source of departmental audit jurisdiction and is read with Rule 101 for procedural mechanics.

Sub-section (1) of Section 66 provides that if at any stage of scrutiny, inquiry, investigation or any other proceedings, the officer not below the rank of Assistant Commissioner, having regard to the nature and complexity of the case and the interest of revenue, is of the opinion that the value has not been correctly declared or the credit availed is not within the normal limits, he may, with prior approval of the Commissioner, direct the registered person to get the records including books of account examined and audited by a chartered accountant or a cost accountant nominated by the Commissioner.

Sub-rule (1) of Rule 101 provides that the period of audit shall be a financial year or part thereof or multiples thereof. Sub-rule (2) prescribes Form GST ADT-01 for the audit notice. Sub-rule (4) directs the proper officer, on conclusion of audit, to record the audit observations in his audit notes and to inform the registered person of the discrepancies, who may file his reply. Sub-rule (5) prescribes Form GST ADT-02 for communication of audit findings.

Sub-section (3) of Section 65 provides that the registered person shall be informed by way of a notice not less than fifteen working days prior to the conduct of audit. The notice is issued in Form GST ADT-01 as prescribed under Rule 101(2). It is to be noted that the fifteen-working-day window is a substantive procedural safeguard; commencement of audit proceedings without compliance with this timeline is a jurisdictional infirmity that may be agitated under Article 226.

Sub-section (3) of Section 66 directs the nominee auditor to submit the report to the Assistant Commissioner within ninety days, which may be extended by a further ninety days on application by the registered person or the nominee auditor for material and sufficient reasons. It is to be noted that the ceiling on combined period under this provision is one hundred and eighty days.

Sub-section (6) of Section 66 provides that the expenses of the examination and audit, including the remuneration of the nominee auditor, shall be determined and paid by the Commissioner and such determination shall be final. It is to be noted that the registered person does not bear the cost of the special audit even though the audit is conducted on records furnished by him.

What is a GST audit and where does it sit in the compliance architecture

Statutory framework under Chapter XIII of the CGST Act

The audit framework under the Central Goods and Services Tax Act 2017 is contained in Chapter XIII, comprising Sections 65, 66 and 71. Section 65 provides for departmental audit, Section 66 for special audit by a Chartered Accountant or Cost Accountant nominated by the Commissioner, and Section 71 for access to business premises by an authorised officer. The Empowered Committee 2009 First Discussion Paper had envisaged audit as the principal verification layer in a self-assessment regime, replacing the pre-GST pattern of routine assessment under the VAT/CST framework. The architecture is risk-based: not every registered person is audited; selection is driven by Section 65(2) read with internal CBIC risk-management directions which factor in turnover scale, sectoral risk profile, prior compliance history and reconciliation gaps surfaced in GSTR-9C self-certification. The audit-process closure under Section 65(7) feeds either into a no-objection certificate, a voluntary DRC-03 payment, or an SCN under Section 73 or Section 74 depending on whether tax has been short-paid, short-collected or wrongly availed as ITC.

Audit versus assessment versus inspection

Audit under Section 65 or 66 is conceptually distinct from assessment under Sections 61 (scrutiny of returns) and 62 (best-judgement assessment of non-filers) and from inspection / search / seizure under Section 67. Scrutiny under Section 61 is a desk-review of returns by the proper officer who issues ASMT-10 on discrepancies; the registered person responds in ASMT-11; closure or escalation follows. Audit is broader — Section 65(5) permits examination of the books, returns, statements, declarations and other documents to verify correctness of turnover declared, taxes paid, refund claimed and ITC availed, plus assessment of compliance with the Act. Inspection under Section 67 is targeted enforcement upon reason-to-believe of tax evasion and is invasive — premises access, seizure of records and goods. The OECD Forum on Tax Administration's compliance-pyramid model recommends graduated escalation from desk review to field audit to inspection, and the Indian framework broadly mirrors that design.

Self-certification under GSTR-9C and its audit interplay

Until Finance Act 2021 amendments, Section 35(5) had required certification of GSTR-9C by a Chartered Accountant or Cost Accountant for registered persons whose aggregate turnover exceeded the prescribed threshold. The Finance Act 2021 substituted Section 35(5) and amended Section 44, shifting GSTR-9C to a self-certified reconciliation statement filed by the registered person without third-party attestation, effective FY 2020-21 onwards (Notification 29/2021-CT). The reconciliation in GSTR-9C between audited financial statements and GSTR-9 annual return is now an internal-control disclosure; it does not substitute for departmental audit under Section 65. Audit teams treat GSTR-9C self-certified reconciliations as primary working papers — Table 5 (turnover reconciliation), Table 9 (tax payable reconciliation) and Table 12-14 (ITC reconciliation) become the starting points of Section 65 audit interrogation.

Records retention under Section 35

Comparative framework — Income Tax Act 44AA and Companies Act records

The GST retention framework operates alongside the Income Tax Act Section 44AA requirement to maintain books of account for specified professions and businesses (with retention under Rule 6F for six years), and the Companies Act 2013 Section 128 requirement for books of account preservation for at least eight years preceding the current year. The longest applicable horizon governs — for a company carrying on a taxable supply business, the effective records-retention period is the Companies Act eight-year horizon. The OECD International VAT/GST Guidelines recommend a minimum retention of five years tied to the audit-period limitation, which the Indian GST framework comfortably exceeds. Coordinated retention policies across GST, income tax and Companies Act dimensions are the typical compliance design at well-run enterprises.

Statutory framework and retention horizon

Section 35(1) of the CGST Act requires every registered person to keep and maintain, at his principal place of business and at every additional place of business mentioned in the certificate of registration, a true and correct account of production or manufacture of goods, inward and outward supply of goods or services or both, stock of goods, input tax credit availed, output tax payable and paid, and such other particulars as may be prescribed. Section 36 mandates that every registered person required to keep books and accounts under Section 35 shall retain them until the expiry of seventy-two months from the due date of furnishing the annual return for the year pertaining to such accounts. The seventy-two-month (six-year) retention horizon aligns with the Section 73 normal-period limitation of three years from the due date of the annual return, and the Section 74 extended-period limitation of five years, with a safety margin.

Specific records prescribed under Rules 56 to 58

Rule 56 of the CGST Rules elaborates the records to be maintained under Section 35 — accounts of goods or services received and supplied, stock of goods (with opening balance, receipt, supply, goods lost stolen destroyed written off or disposed of by way of gift or free sample, balance), particulars of ITC availed, output tax payable and paid, names and complete addresses of suppliers and customers, complete addresses of premises where goods are stored including goods stored during transit, monthly production accounts (for manufacturers) showing quantitative details of raw materials and goods produced, and accounts of advances received and paid. Rule 57 provides for maintenance through electronic means with prescribed safeguards. Rule 58 covers transporter, owner and operator of warehouse records. The records-architecture is granular and audit teams systematically map registered-person records against the Rule 56 schema during Section 65 audits.

Rule 56 stock records

Stock-difference treatment under Section 35(6) and Section 17(5)(h)

Where audit identifies stock differences — physical stock at audit visit differing from book stock — two provisions operate. Section 35(6) deems the unaccounted goods to have been supplied and attracts tax under Sections 73 / 74. Section 17(5)(h) blocks ITC on goods lost, stolen, destroyed, written off, or disposed of by way of gift or free sample, requiring reversal of the ITC originally claimed. The audit team typically computes both legs — output tax on the deemed supply, and ITC reversal on the inward leg — leading to a double-impact. Voluntary disclosure of stock-differences with documented reasons (e.g. shrinkage, wastage, theft with FIR copy) limits the exposure; the audit team's discretion under Section 75 allows mitigation where reasons are substantiated.

Sectoral application of Rule 56(18) — jewellery, precious metals

Rule 56(18) applies to a narrow but high-revenue-risk band of trades — precious metals, precious stones, jewellery — where stock-record granularity is essential because of the high unit-value and pilferage-risk profile. The daily quantity-wise register must capture purity (in carats for gold), weight (in grams or pennyweights), make-charges component, hallmarking certificate references (BIS hallmark unique identification), and customer-wise sale-bill traces. Family-run jewellery businesses in particular often default to consolidated weekly or monthly stock summaries; this gap is the most common audit finding in jewellery-sector Section 65 audits in Tamil Nadu. Coordinated compliance with TCS under Section 206C(1F) at 1% on sales above ₹2 lakh adds an income-tax overlay to the stock-records architecture.

Stock-record obligations under Rule 56(2) and Rule 56(18)

Rule 56(2) of the CGST Rules requires every registered person, other than a person paying tax under Section 10 (composition), to maintain accounts of stock in respect of goods received and supplied — showing opening balance, receipt, supply, goods lost, stolen, destroyed, written off or disposed of by way of gift or free sample, and balance of stock including raw materials, finished goods, scrap and wastage. Rule 56(18) imposes a higher-granularity obligation on registered persons dealing in goods of the kinds notified — currently primarily precious metals, precious stones and jewellery — requiring daily quantity-wise and value-wise stock registers. The granularity differential between Rule 56(2) and Rule 56(18) reflects the sector-specific revenue-risk assessment that has been part of Indian indirect-tax administration since pre-GST excise.

GSTR-9C self-certification interplay with audit

GSTR-9C as audit working paper

From the Section 65 audit-team perspective, GSTR-9C is the primary working paper that drives initial audit-topic selection. Table 5 turnover reconciliation surfaces unbilled-revenue, advance-receipt and inter-State stock-transfer issues. Table 7 taxable-value reconciliation surfaces classification and exemption-claim issues. Table 9 tax-payable reconciliation triggers rate-of-tax interrogation. Tables 12 to 14 ITC reconciliation drive Section 16 eligibility and Rule 42 / 43 apportionment audits. The audit team treats unexplained variances in any of these tables as priority interrogation topics; the registered person's strongest defence is a contemporaneous explanatory note attached to GSTR-9C addressing each material variance. CBDT Circular 8/2021 (in the AIS context, on reconciliation principles) and CBIC Circular 124/43/2019-GST on GSTR-9C format offer guidance.

Self-certification risk and director / signatory liability

The shift to self-certification has not reduced substantive accuracy expectations — Section 47(2) penalty for late filing applies, Section 35(5) (as amended) read with Section 122 attracts penalty for incorrect particulars, and Section 137 imposes personal liability on directors, partners and managers for company offences subject to the proviso on diligence. The signatory's diligence in reviewing the underlying GSTR-9 and GSTR-9C contents is now a personal-liability risk, where previously the CA / CMA certifier's professional liability provided an intermediating layer. The OECD International VAT/GST Guidelines' principle of taxpayer self-assessment with audit verification is well-served by the self-certification design, but it shifts more responsibility onto the registered person's internal-control architecture.

Optional GSTR-9C and tactical considerations

For registered persons whose aggregate turnover is between ₹2 crore and ₹5 crore (where GSTR-9 is optional under Notification 47/2019-CT and similar; GSTR-9C threshold is above ₹5 crore), the strategic question is whether to file GSTR-9 and GSTR-9C voluntarily. Voluntary filing provides a contemporaneous reconciliation record that strengthens the audit-defence position; non-filing leaves the audit team to compute reconciliation themselves from primary records, often less favourably. The GST Council 47th Chandigarh and 53rd meetings have periodically rationalised these thresholds; the Empowered Committee 2009 First Discussion Paper had envisaged annual-return-as-integrating-layer architecture that the current threshold-based structure has partially diluted.

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