A COMPARATIVE VIEW
 ON GOODS AND SERVICES TAX
This comparison is based on 
the recommendations of the First Discussion Paper produced by the 
Empowered committee of states finance ministers (hereafter referred as 
EC) and the Report of the Task Force on GST constituted by the 
Thirteenth Finance commission.
Before going on discussion we 
should define GST and the Objective behind it.
What is
GST?
GST is a tax on goods and 
services with comprehensive and continuous chain of set-off benefits 
from the Producer’s point and Service provider’s point upto the retailer
 level. It is essentially a tax only on value addition at each stage and
 a supplier at each stage is permitted to set-off through a tax credit 
mechanism.
Under GST structure, all different stages of production and distribution
 can be interpreted as a mere tax pass through and the tax essentially 
sticks on final consumption within the taxing jurisdiction.
Objective behind GST
a) The incidence of tax only 
falls on domestic consumption.
b) The efficiency and equity 
of the system is optimized.
c) There should be no export 
of taxes across taxing jurisdictions.
d) The Indian market should be
 integrated into a single common market.
e) It enhances the cause of 
co-operative federalism.
Our comparative discussion 
will be based only on significant points constructing overall
GST.
GST MODEL
A dual structure has been 
recommended by the EC. The two components are: Central GST (CGST) to be 
imposed by the center and state GST (SGST) by the states.
The Task Force has also 
recommended for the dual levy imposed concurrently by the centre and the
 states, but independently to promote co-operative federalism. Both the 
CGST and SGST should be levied on a common and identical base.
Both have suggested for 
consumption type GST, that is, there should be no distinction between 
raw materials and capital goods in allowing input tax credit. The tax 
base should comprehensively extend over all goods and services upto 
final consumption point.
Also both are of the view that
 the GST should be structured on the destination principle. According to
 Task Force this will result in the shift from production to consumption
 whereby imports will be liable to both CGST and SGST and exports should
 be relieved of the burden of goods and services tax by zero rating. 
Consequently, revenues will accrue to the state in which the consumption
 takes place or is deemed to take place.
The Task Force on GST said the
 computation of CGST and SGST liability should be based on the Invoice 
credit method. i.e., allow credit for tax paid on all intermediate goods
 and services on the basis of invoices issued by the supplier. As a 
result, all different stages of production and distribution can be 
interpreted as a mere tax pass-through and the tax will effectively 
‘stick’ on final consumption within the taxing jurisdiction. This will 
facilitate elimination of the cascading effect at various stages of 
production and distribution.
Treatment of Central GST
 and State GST
Both the EC and the Task Force
 on GST have recommended treating the Central GST and the State GST 
separately. The CGST and SGST should be credited to the accounts of the 
centre and the states separately. Taxes paid against the CGST should be 
allowed to be taken as input tax credit (ITC) for the CGST and could be 
utilized only against the payment of CGST. The same principle will be 
applicable to the SGST. Cross utilization of ITC between CGST and the 
SGST should not be allowed.
While the Task Force on GST 
insisted that the full and immediate input credit should be allowed for 
tax paid (both CGST and SGST) on all purchases of capital goods 
(including GST on capital goods) in the year in which the capital goods 
are acquired. Similarly, any kind of transfer of the capital goods at a 
later stage should also attract GST liability like all other goods and 
services.
Exemption from GST
The EC favoured the imposition
 of GST to be based on ‘negative list’ and for few exemptions if 
necessary but didn’t provide any list of exemption. However, the Task 
Force also said that there shouldn’t be any exemption from CGST and SGST
 but if for some reason, it is considered necessary to provide 
exemption, the centre and states should draw a common exemption which 
should be restricted to the following: 
a. All public services of 
Government (Central, state and municipal/ panchayati raj) including 
civil-administration, health services and formal education services 
provided by Govt. schools and colleges, Defence, Para-military, Police, 
Intelligence and Government Departments. Public services will not 
include the following:
1) Railways;
2) Post and Telegraph;
3) Other commercial 
departments;
4) Public sector Enterprises;
5) Banks and Insurance;
6) Health and Education 
services.
b) Any service transactions 
between an employer and employee either as a service provider, recipient
 or vice versa.
c) Any unprocessed food 
article which is covered under the public distribution system should be 
exempt regardless of the outlet through which it is sold;
d) Education services provided
 by non-Governmental schools and colleges; and
e) Health services provided by
 non-Governmental agencies.
Tax on SIN goods 
(Emission fuels, tobacco products and alcohol)
According to EC alcoholic 
beverages should be kept out of GST. Also crude oil, diesel, petrol and 
ATF will not attract GST but the states will be free to levy taxes on 
them. While Tobacco Products will be subjected to GST with input tax 
credit (ITC).
The Task Force on GST has 
recommended that the SIN-goods comprising of emission fuels, tobacco 
products and alcohol should be subject to a dual levy of GST and excise.
 No input credit should be allowed for excise. However, industrial fuels
 should be subjected only to GST (both central and state) with the 
benefit of input credit like any other intermediate good.
Check-Post
The EC has not clarified 
anything about check-post whereas the Task Force on GST has come out 
with something new in this area. According to it the function of all 
state border check-posts should be reduced to checking contrabands by 
setting up ‘Large scanners’ for trucks to pass through without any need 
for physical verification. The cost of the scanners should be entirely 
borne by the central government. All check-posts should be jointly 
manned by both states so as to reduce the number of check-posts and 
enhance efficiency in the road movement of goods.
Inter-State transactions
The EC has suggested for 
adoption of ‘IGST Model’ for taxation of inter-State transaction of 
Goods and Services. The scope of IGST Model is that centre would levy 
IGST which would be CGST plus SGST on all inter-State transactions of 
taxable goods and services with appropriate provision for consignment or
 stock transfer of goods and services.The Task Force on GST is of the 
view that all inter-State transactions in goods and services should be 
effectively zero rated by adopting the Modified Bank Model. (We are not 
going into the details here.)
Consignment Sales and 
Branch transfers across States
The EC has not yet provided 
any provision regarding the consignment sales and branch transfers 
across States.
The Task Force on GST has said
 that the consignment sales and branch transfers across States should be
 subject to treatment in the same manner as if it was an inter-State 
transaction in the nature of sale between two independent dealers.
Threshold Limit for 
Goods and Services
The EC has recommended for 
uniform threshold of annual gross turnover of Rs.10 lakh for all goods 
and services for SGST applicable for all states and   Union  Territories
  . Below this threshold limit, State GST is not applicable. The 
threshold limit for central GST may be kept at Rs.1.5 crore for goods 
and central GST may be kept at higher levels for services.
Keeping in view the compliance
 cost and administrative feasibility, the Task Force on GST proposed 
that the small dealers (including service providers) and manufacturers 
should be exempted from the purview of both CGST and SGST, if their 
annual turnover (excluding both CGST and SGST) does not exceed Rs.10 
lakh. However, like in most other countries, those below the threshold 
limit may be allowed to be registered voluntarily to facilitate sales to
 other registered manufacturer/dealers, limit competitive distortions 
and avoid inequalities. Further, the threshold exemption limit should be
 uniform for both CGST and SGST and across states.
Composition/Compounding 
scheme
The EC is of the view that 
composition / compounding scheme for the purpose of GST should have an 
upper ceiling on gross annual turnover and a floor rate with respect to 
gross annual turnover. In particular there would be a compounding 
cut-off at Rs.50 lakh of gross annual turnover and a floor rate of 0.5% 
across the states. The scheme would also allow option for GST 
registration for dealers with turnover below the compounding cut-off.
The Task Force on GST with a 
view to reduce administrative and compliance burden, suggested that 
small dealers with annual aggregate turnover of goods and services 
between 10 lakh to 40 lakh may be allowed to opt for a Compounded levy 
of One percent, each towards CGST and SGST. However, no input credit 
should be allowed against the compounded levy or purchases made from 
exempt dealers.
GST on Precious Metals
A provision of special rate 
for precious metals has been recommended by the EC. While the Task Force
 on GST is of the view that certain high value goods comprising of gold,
 silver, platinum ornaments, precious stones and bullions are prone to 
smuggling due to high tax incidence thereby generating negative 
externalities in terms of social and economic disorder. So, the Task 
Force recommended that dealers in such high value items, may subject to 
the threshold exemption but without the ceiling of Rs.40 lakh, also be 
allowed to opt the compounded levy of one percent, each towards CGST and
SGST.
Special Industrial Area 
Scheme
The EC has suggested that the 
tax exemption, remission etc. related to industrial incentive should be 
converted , if at all needed , into cash refund schemes after collection
 of tax , so that GST Scheme on the basis of a continuous chain of 
set-off is not disturbed. Regarding Special Industrial Area Schemes, it 
is clarified that such exemptions, remissions etc. would continue upto 
legitimate expiry time both for the centre and the states. Any new 
exemption, remission etc. or continuation of earlier exemption, 
remission etc. would not be allowed. In such cases, the central and the 
state Governments could provide reimbursement after collecting
GST.
The Task Force on GST 
recommended that in case it is considered necessary to provide support 
to industry for balanced regional development, it would be appropriate 
to provide direct investment linked cash subsidy, while the area based 
exemption in respect of CENVAT should not be continued under the GST 
framework.
Taxes to be subsumed 
under GST
Both the EC and the Task Force
 on GST have got same view regarding taxes to be subsumed under CGST 
whereas they differ on
SGST.
The following central taxes 
should be subsumed in the
CGST:
a) Central Excise Duty 
(including Additional Excise Duty)
b) Service tax
c) Additional Customs Duty 
(commonly referred as ‘CVD’)d) Surcharges and all
cesses.
The following state taxes 
should be subsumed in the
SGST.
a) VAT / Sales tax (including 
CST)
b) Entertainment tax (other 
than levied by local bodies)
c) Entry tax no in lieu of 
Octroi
d) Other Taxes and Duties 
(includes Luxury tax, Taxes on lottery, betting and gambling, and all 
cesses and surcharges by states).
The Task Force has recommended
 for the subsumation of following other taxes levied by the states on 
goods and services:
a) Stamp duty
b) Taxes on vehicles
c) Taxes on Goods and 
Passengers
d) Taxes on duties on 
electricity.
It has also suggested that all
 entry and Octroi duties levied by the third-tier government should be 
abolished.
GST Rate Structure
The EC has decided to adopt a 
two rate structure- a lower rate for necessary items and goods of basic 
importance and a standard rate for goods in general. There will be also a
 special rate for precious metals and list of exempted items. They 
haven’t prescribed the exact value of the SGST and CGST rates including 
the rate for services.
The Task Force has provided a 
clear rate structure for GST. According to it the rate of CGST and SGST 
on all non-SIN goods and services should be fixed at a single positive 
rate of 5% and 7% respectively. In addition, there should be a zero 
rate, applicable to all goods and services exported out of the country.
GST and SEZ
The EC is of the view that 
Exports would be zero-rated. Similar benefits may be given to Special 
Economic Zone (SEZs). However, such benefits will only be allowed to the
 processing zones of the SEZs. No benefit to the sales from an SEZ to 
Domestic Tariff Area (DTA) will be allowed. However, similar is the view
 of the Task Force on Exports but they are not in the favour of any 
exemption for the developers of, or units in, the Special Economic Zone.
Tax Administration
According to the EC the 
administration of GST shall be divided into states and centre with a 
proposition to have uniform compliance procedures across states under 
the respective laws.
The Task Force on GST has 
produced a clear cut picture regarding tax administration.
The CBEC shall be responsible 
for implementing the CGST and the state tax administrations will be 
separately responsible for implementing the SGST. The various tax 
administrative functions such as assessment, enforcement, scrutiny, and 
audit should be undertaken by the CBEC in respect of CGST and by the 
state tax administration in respect of the SGST, subject to 
recommendation on Small Scale Industries.
All compliance and enforcement
 procedures under CGST and SGST should be uniform (from taxpayer 
perspective).
The central government should 
establish a common IT infrastructure which will serve the needs of both 
CGST and
SGST.
The jurisdiction between the 
CBEC and the state administration may be divided between the two in such
 manner that the interface of the taxpayer is confined to one tax 
administration only. The basis of division could be turnover or any 
other criteria which is considered reasonable so that the compliance and
 administrative burden is minimized.
All persons with annual 
aggregate turnover of goods and services exceeding Rs.10 lakh (excluding
 CGST and SGST) should be required to register and obtain a GST 
registration number. Person with lower turnover may be allowed an option
 to register.
The unit of taxation for the 
purpose of GST should be persons as defined under the Income Tax ACT.
For the purpose of CGST, all 
production units/ branches of a person located anywhere in the country 
will be treated as a single taxable entity eligible for CGST input 
credit across units /branches. Whereas, for the purpose of SGST ,all 
production units / branches of a person located anywhere within the 
state will be treated as a single taxable entity eligible for SGST input
 credit across units/ branches in that state.
Also the Task Force has 
suggested that the payment of tax and the transaction reporting should 
be made through a combined payment and transaction reporting statement 
in Form no. GST-1. This statement should detail all business to business
 transactions relating to sales. This statement should be common for 
both CGST and SGST compliance and it should be mandatory to file this 
statement electronically on a monthly basis while making payment of 
taxes. The VAT period should be a calendar month.
We have provided you a cursory
 view on different issues related to GST without going into the details 
of them. We will try to give you detailed discussions in our further 
updated papers on
GST.