By CA Surekha Ahuja
Understanding Section 9(5) of the CGST Act — the provision that quietly changed how every restaurant, QSR, and cloud kitchen in India accounts for GST on food-delivery-app sales.
Introduction: A Question Every F&B Owner Eventually Asks
If you run a restaurant, QSR, or cloud kitchen and sell both directly (dine-in, takeaway, your own delivery) and through Zomato or Swiggy, you've probably hit this question while reconciling your books:
"My total sales are ₹1,00,000. ₹20,000 of that came through Zomato/Swiggy. Do I pay 5% GST on the full ₹1,00,000, or only on ₹80,000?"
The short answer: you pay GST only on ₹80,000 (₹4,000). The ₹20,000 routed through Zomato/Swiggy is not your GST liability at all — it belongs to the platform.
This isn't a workaround or an optimisation. It's the law, and it's been the law since 1 January 2022. Here's the full explanation — the statutory provision, the notifications and circulars behind it, how it plays out across different business scenarios, and how to report it correctly in your returns.
The Legal Foundation: Section 9(5) of the CGST Act, 2017
Ordinarily, under Section 9(1) of the CGST Act, GST is paid by the supplier — the restaurant — under the standard forward-charge mechanism. You bill the customer, collect GST, and deposit it.
Section 9(5) carves out a specific exception. It empowers the Government to notify certain categories of services where, instead of the actual supplier, the e-commerce operator (ECO) through which the service is supplied becomes liable to pay GST — "as if he were the supplier."
This is what tax lawyers call a deeming fiction: the law doesn't change who the "real" supplier is commercially, but for GST purposes, it treats the platform as the supplier and hands it the entire compliance and payment burden.
The Notifications and Circulars That Made This Happen
- Notification No. 17/2021-Central Tax (Rate), dated 18 November 2021 — amended Notification 11/2017-CT(Rate) to bring "restaurant service" within Section 9(5), effective 1 January 2022.
- Circular No. 167/23/2021-GST, dated 17 December 2021 — the master clarificatory circular from the CBIC. It answers practical questions: Does the ECO need to deduct TCS separately? Does the restaurant need to register just because of ECO sales? How should invoicing work?
- Circular No. 164/20/2021-GST, dated 6 October 2021 — clarifies that "restaurant service" covers dine-in, takeaway, room service, and door delivery — i.e., the activity, not the premises, defines it.
- 45th GST Council Meeting (17 September 2021) — the policy decision that triggered these notifications.
- 55th GST Council Meeting — later clarified that ECOs need not proportionately reverse input tax credit (ITC) merely because they pay tax under Section 9(5) on restaurant supplies.
There isn't much litigated case law specifically contesting this provision — largely because it's administratively self-executing and, if anything, reduces the restaurant's compliance burden rather than increasing it. The Supreme Court's broader observations in Union of India v. Mohit Minerals Pvt. Ltd. [2022 SCC OnLine SC 1497] on the binding, persuasive nature of CBIC circulars on tax authorities are relevant background for why these circulars function as authoritative interpretation even without a dedicated Section 9(5) restaurant ruling.
The Core Mechanics: Who Pays What
Here's the deal in plain terms:
| Sales Channel | Who is the "supplier" for GST purposes | Who pays GST | Rate | ITC available? |
|---|---|---|---|---|
| Dine-in, walk-in takeaway, your own delivery boys, your own app/website | The restaurant | The restaurant | 5% (no ITC, standard restaurant rate) | No, if on 5% rate |
| Sold via Zomato/Swiggy | Zomato/Swiggy (deemed supplier under Sec 9(5)) | Zomato/Swiggy | 5% | No — ECOs pay this 5% entirely in cash, no ITC permitted |
Critically:
- The restaurant does not charge GST on the invoice for ECO-routed orders. The platform raises the tax invoice to the end consumer for that transaction and deposits the tax itself.
- The restaurant is not required to register under GST solely because of ECO sales, even if that turnover alone would normally cross the threshold (per Circular 167/2021, Q&A 2–3).
- ECOs were earlier required to collect 1% TCS under Section 52 on restaurant supplies. Since restaurant service moved under Section 9(5), that TCS obligation on this category was withdrawn — Section 9(5) supplies are explicitly excluded from the Section 52 TCS mechanism.
Section 9(5) vs Section 52 — Don't Confuse the Two
Restaurants often conflate these because both involve an e-commerce operator. They work in opposite ways.
| Feature | Section 9(5) (Deemed Supplier) | Section 52 (TCS) |
|---|---|---|
| Who pays the GST | The platform (Zomato/Swiggy), in full | The restaurant itself |
| Platform's role | Treated as if it is the supplier | Merely a "collection agent" |
| Rate/mechanism | Platform pays 5% GST directly | Platform deducts 1% TCS from restaurant's payout; restaurant still pays its own GST |
| Applies to | Restaurant service (since 1 Jan 2022), passenger transport, accommodation, housekeeping | Other goods/services sold via ECOs, not covered under 9(5) |
| Restaurant's invoice for this leg | Not required to raise GST invoice | Raises its own GST invoice as usual |
| ITC to platform | None allowed on the 9(5) cash payment | Not applicable — TCS is not a tax paid by the platform |
Working the Numbers: A Worked Example
Say your monthly sales break down like this:
- Total sales: ₹1,00,000
- Direct sales (dine-in/takeaway/own delivery): ₹80,000
- Sales via Zomato/Swiggy: ₹20,000
| Category | Amount | Who pays 5% GST | GST payable |
|---|---|---|---|
| Direct sales | ₹80,000 | Restaurant | ₹4,000 |
| Zomato/Swiggy sales | ₹20,000 | Zomato/Swiggy (Section 9(5)) | Paid by the platform, not you |
| Total turnover | ₹1,00,000 | — | — |
Your actual GST cash outflow: ₹4,000, not ₹5,000. The ₹1,000 that would have applied to the ₹20,000 leg simply isn't your liability — it never was, and paying it would be a double payment (since the platform is already remitting it).
How to Report This in Your GST Returns
This is where most restaurants trip up — not on the concept, but on where the ₹20,000 goes in the return.
GSTR-1
- Direct sales (₹80,000) → reported under the standard outward supply tables (B2C/B2B, as applicable).
- ECO sales (₹20,000) → reported in Table 14 ("Supplies made through e-commerce operators"). The platform, on its own GSTR-1, further reports these under Table 15 (supplies on which it discharges Section 9(5) liability), split by B2B/B2C and registered/unregistered recipient.
GSTR-3B
- ₹80,000 → Table 3.1(a) — this is where your actual ₹4,000 tax liability gets computed and paid.
- ₹20,000 → Table 3.1.1(ii) — "Supplies made through e-commerce operators on which the operator is liable to pay tax." This is a reporting/reconciliation line only — no tax is payable by you here, and it should not also appear in Table 3.1(a) (that would be double-counting).
Getting this split wrong is the most common reason restaurants either overpay GST or get a turnover-mismatch notice during reconciliation with the platform's GSTR filings.
Scenario-by-Scenario Breakdown
The general rule above holds in most cases, but F&B businesses rarely fit one neat box. Here's how it plays out across real-world structures.
Scenario A: Standalone Restaurant (No Dine-in-Only Complication)
The straightforward case. Falls entirely within Section 9(5) for ECO-routed sales. Direct sales taxed normally by the restaurant; ECO sales taxed by the platform. No exceptions apply.
Scenario B: Cloud Kitchen (Delivery-Only, No Dine-in)
Some cloud kitchen operators assume that because they have no physical dining space, they might not qualify as a "restaurant service" — and therefore might not fall under Section 9(5) at all. This is incorrect. Circular 164/2021 clarifies that "restaurant service" is defined by the nature of the activity (supply of food/drink prepared and served, including for consumption away from the premises), not by whether there's a dine-in area. A cloud kitchen delivering food is squarely a restaurant service.
- Zomato/Swiggy orders → Section 9(5), platform pays GST.
- Orders through your own website/app/phone → you pay GST yourself, exactly like a standalone restaurant would.
Scenario C: Restaurant Inside a Hotel with Tariff Above ₹7,500/Night
This is the big exception. If your restaurant operates within "specified premises" — defined as hotel accommodation where the declared tariff for any unit of lodging exceeds ₹7,500 per night — the Section 9(5) shift does not apply, even for ECO-routed orders. The restaurant remains the supplier of record, charges 18% GST (with ITC available, unlike the 5% no-ITC rate elsewhere), and pays it directly — regardless of whether the order came via Zomato/Swiggy or walk-in.
Scenario D: Mixed Portfolio Across Multiple Outlets
Consider a hospitality group running four standalone QSR outlets, two cloud kitchens, and one restaurant inside a hotel where the tariff crosses ₹7,500 — all under one GSTIN, all listed on Zomato and Swiggy. Six of the seven outlets fall under Section 9(5) for their platform sales. The seventh (hotel-linked) doesn't — it pays its own 18% GST with ITC, even on Zomato/Swiggy orders. Each supply is tested against the ₹7,500 threshold independently — not the entity as a whole. This is a genuine reconciliation headache for finance teams and needs outlet-wise, not just entity-wise, tracking.
Scenario E: Sweet Shops, Bakeries & Packaged Goods Counters
If what you're selling through the platform is closer to supply of goods — packaged sweets, bakery items, groceries — rather than a restaurant/eating-joint service, the Section 9(5) restaurant notification doesn't automatically cover it. Instead, the older Section 52 TCS mechanism (1% TCS deducted by the platform) may apply, and you remain liable to pay GST on that turnover yourself. Classification here is fact-specific — Advance Authority for Ruling (AAR) benches have repeatedly examined sweet-shop-cum-eatery cases on whether seating, service, and preparation-on-premises tip the balance toward "restaurant service" versus "sale of goods." If your model straddles both, it's worth getting this classification confirmed.
Scenario F: Unregistered Small Eateries Selling Only via Zomato/Swiggy
Even a small eatery with no GST registration, selling solely through a food-delivery platform, doesn't need to register purely because of that turnover — the ECO handles the entire 5% liability regardless of the underlying supplier's registration status (Circular 167/2021 confirms this explicitly). Registration triggers from other revenue streams (direct sales crossing the threshold) remain independently applicable.
Scenario G: Composition Scheme Dealers
Under Section 10(2)(d), a person supplying services through an ECO that is required to collect TCS under Section 52 is disqualified from the composition scheme. Since restaurant-service supplies routed through Zomato/Swiggy fall under Section 9(5) — not Section 52 TCS — the disqualification trigger arguably doesn't bite purely because of platform-routed restaurant sales. That said, departmental positions on this specific point aren't fully uniform across states, and it's a live enough interpretational question that composition-scheme restaurants selling via aggregators should get this confirmed in writing rather than assume it.
Quick-Reference: Scenario Summary Table
| Scenario | Falls under Sec 9(5) for ECO sales? | Who pays GST on ECO leg | Rate applicable to direct sales |
|---|---|---|---|
| A. Standalone restaurant | Yes | Zomato/Swiggy | 5% (restaurant, no ITC) |
| B. Cloud kitchen (delivery-only) | Yes | Zomato/Swiggy | 5% (restaurant, no ITC) |
| C. Restaurant in hotel, tariff > ₹7,500/night | No — excluded | Restaurant itself | 18% (restaurant, with ITC) |
| D. Mixed portfolio (multiple outlets, one GSTIN) | Tested outlet-by-outlet | Varies per outlet | Varies per outlet |
| E. Sweet shop / bakery (goods, not restaurant service) | Generally no — may fall under Sec 52 TCS instead | Restaurant itself (platform only deducts 1% TCS) | Standard goods rate applicable |
| F. Unregistered small eatery, ECO-only sales | Yes | Zomato/Swiggy | N/A — no separate registration trigger from this turnover |
| G. Composition scheme dealer | Yes, per current interpretation (Sec 9(5) ≠ Sec 52 TCS trigger) | Zomato/Swiggy | Composition rate (get eligibility confirmed in writing) |
Input Tax Credit (ITC): What You Can and Can't Claim
- On your own direct sales (the ₹80,000 leg), ITC eligibility follows the standard restaurant-GST rule: if you're on the 5% rate, no ITC is available on inputs; if you've opted for 18% (available in some non-standard categories, like the >₹7,500-tariff hotel-restaurant scenario), ITC is available.
- On the Zomato/Swiggy leg, you don't pay the tax, so there's nothing to claim ITC against on that portion from your side.
- ECOs themselves pay their Section 9(5) liability entirely in cash, with no ITC allowed against it — this was reaffirmed by the 55th GST Council, which also clarified that ECOs don't need to proportionately reverse other ITC merely because part of their revenue involves Section 9(5) supplies. This doesn't directly affect the restaurant, but it explains why platforms often structure commission and payout terms the way they do.
Practical Takeaways
- GST is due only on your direct sales, not your total turnover — for the example above, that's ₹4,000 on ₹1,00,000 total revenue, not ₹5,000.
- Don't charge GST on ECO-routed invoices — the platform does that.
- Report ECO sales separately in Table 14 of GSTR-1 and Table 3.1.1(ii) of GSTR-3B — never merge them with your direct-sale figures.
- Check whether you're "specified premises" — if you're a hotel-restaurant above the ₹7,500 tariff line, Section 9(5) doesn't apply to you at all, even for platform orders.
- Classify your product correctly — a pure goods-sale (sweets, packaged items) may sit under Section 52 TCS instead of Section 9(5), with different implications for who pays.
- Reconcile against the platform's reporting — mismatches between what you report as Section 9(5) turnover and what Zomato/Swiggy reports as supplies on which they've discharged tax are a common source of notices.
- Get composition-scheme eligibility confirmed in writing if that's your structure — it's not a fully settled point across jurisdictions.
Conclusion
Section 9(5) of the CGST Act fundamentally changed the GST math for India's restaurant and cloud kitchen industry from 1 January 2022 onward — and in most cases, it worked in restaurants' favour by removing compliance burden on aggregator-routed sales. But "in most cases" is doing some work in that sentence: hotel-linked restaurants above the tariff threshold, goods-vs-service classification for sweet shops, and composition-scheme eligibility are all places where the general rule doesn't apply cleanly.
The safest approach: treat your ECO sales and direct sales as two separate GST universes — different invoicing party, different reporting table, different liability — and reconcile them explicitly every filing period rather than netting them into one turnover figure.

