Do not charge GST, and do not call the document a bill of supply. With no GSTIN you send a plain “Invoice” with no tax on it: CGST Act s.31(3)(c) read with CGST Rule 49 gives the bill of supply to a registered person supplying exempt goods or services, or paying tax under the composition scheme in s.10, and the rule setting out its contents requires the supplier's own GSTIN on its face (CGST Rule 49).
The request is usually some version of send GST bill, forwarded from an accounts team after the work is done and before the money moves. Below: why charging GST is off the table, what the document must carry, and the question underneath the request, which is whether you should be registered by now.
What your client is asking for
“GST bill” is not a legal term. It is office shorthand, and behind it are two very different requests that need different answers.
The common one, by a wide margin, is “give me a document my accounts team can book.” The person asking is not making a claim about your registration status. They need something to attach to a payment voucher, something to record the expense against, something with your name and PAN on it for the tax they will deduct. Any complete invoice does that. It does not need a GSTIN to do it.
The rarer one is “we need to claim input tax credit,” or its cousin, “our vendor system will not accept you.” That is a real conversation, and it belongs further down this page with the threshold question, because it is the only version of this where the answer might be that you should register.
Most people escalate the first into the second by apologising for something that needs no apology. Being unregistered below the threshold is not a defect in your paperwork. It is the ordinary condition of an independent professional who has not yet crossed a line the law drew.
You cannot charge GST without registration
If you are not registered, you do not collect GST. This is not a grey area, and it is worth understanding the mechanism rather than memorising the prohibition, because the mechanism explains why there is no clever way around it.
GST is collected against a GSTIN and remitted through returns filed on that GSTIN. An unregistered person has neither. But an 18% line on your invoice still has a legal effect: under CGST Act s.76, anyone who collects an amount as GST, registered or not, must pay it to the Government with interest and can face a penalty equal to the amount. Charging GST you cannot charge creates a debt to the department — a different and considerably worse problem than not being registered, and one you create for yourself in a single keystroke while trying to be helpful.
The same logic disposes of the two workarounds people talk themselves into. Printing an invented or borrowed GSTIN is worse than useless: a client's accounts team validates numbers against the portal as a matter of routine, and an invalid one surfaces immediately with your invoice attached to it. And writing “GST will be charged once I register” invites a conversation about arrears that has no basis and no end.
Your client is not asking for a tax number. They are asking for a document their accountant can book without raising a query.
What a bill of supply is
This is the part almost every competing page skips, and skipping it is why they land where they do. A bill of supply is a real instrument with a specific home in the law: CGST Act s.31(3)(c) read with CGST Rule 49.
It is the document issued by a registered person supplying exempt goods or services, or paying tax under the composition scheme in s.10. That is its entire purpose — it is what replaces a tax invoice when a person who is inside the GST system makes a supply that carries no tax on it. Exempt supplies, or supplies taxed under the composition route.
And the rule that sets out what goes on one requires the document to carry the name, address and GST Identification Number of the supplier. There is also a threshold below which such a person need not issue one at all — where the value of the supply is less than two hundred rupees — and that relief, too, is written as something a registered person may take.
Read that again with your own situation in mind. Three separate conditions, and all three point the same way: the person the provision addresses is registered, the document it describes carries a GSTIN, and even the small-value let-off is granted to a registered person. None of them describes someone who has never registered — which is the thing every “no GSTIN? issue a bill of supply” page glides straight past.
What to call your document if you are not registered
The near-universal advice online is that a person with no GSTIN issues a bill of supply. On the text quoted above, it does not follow. The provision opens by addressing a registered person, the rule wants a GSTIN printed on the face of the document, and the proviso hands its relief to a registered person too. Every one of those conditions presupposes exactly the thing you do not have.
So the answer to your question is a plain “Invoice” — that word at the top, nothing else. GST law prescribes documents for people inside the GST system; you are not one yet, which is why no GST label fits and why the ordinary commercial one does.
Now the reassuring part, because you may already have sent something headed differently: almost nothing turns on the heading. The contents are identical under either reading — no tax charged, no GSTIN printed, every particular your client's accountant needs to book it. Nobody is going to be penalised over the word at the top of a document that is otherwise complete and honest. Get the substance right, use the heading that is also right, and the question stops coming up.
What to put on a non-GST invoice
We are deliberately not citing a particulars rule at you here, because the rule that lists invoice particulars is written for registered persons. What follows is the working list: what an accounts team needs in order to pass your document without coming back to you.
| What goes on it | What it must say | Why it matters |
|---|---|---|
| Serial number | One continuous series across all clients — no gaps, no restarting per client. | Gaps are the first thing anyone reviewing your income asks about. Later, and to you. |
| Date | Issue date, plus the period covered if it is a retainer or a milestone. | Fixes the time of supply and the financial year the receipt falls in. |
| Your name, address and PAN | Legal name as it appears on your PAN. | Not optional in practice — your client needs the PAN to deduct TDS, which they will do whether or not you hold a GSTIN. That is income tax, and it has nothing to do with GST. |
| Client name, address, GSTIN | Their legal name and address; their GSTIN if they give you one. | Costs nothing to print and makes the document easier to file on their side. |
| Description of service | Specific enough to identify the work — not just “consulting”. | What, for whom, over what period. This is the line an accounts team queries. |
| Amount | Once, with no tax line under it. | No CGST row, no SGST row, no IGST row — and no tax column left in from a template with zeroes sitting in it. |
| The GST sentence | One explicit line saying GST has not been charged because you are not registered under GST. | This single line resolves more of these threads than everything else on the list combined. |
| How to pay | Bank details or UPI, and the amount payable as the full and final amount. | Stops the “is there tax on top of this?” email before it is sent. |
Two things to avoid on that last-but-one point. Do not write “GST @ 0%” and do not write “GST exempt.” A zero rate and an exemption are both claims about the supply — that the service itself is taxed at nil or carved out. What you are actually describing is a fact about you: you are not registered, so no GST arises for you to charge. Say that, in those words. And put it on the document rather than in the covering email, because the email reaches your client and the document reaches their accountant.
Issue it todayOur free generator produces the PDF: serial number, PAN, description, full particulars, and no GST added when you have no GSTIN to add it against. No signup, no email gate.When the client is right: the threshold question
Sometimes “we need a GST bill” is a polite way of saying “you should have a GSTIN by now.” That is worth testing against the number rather than against the tone of the email.
For services, registration becomes compulsory once aggregate turnover in a financial year crosses ₹20 lakh — ₹10 lakh only if you work from Nagaland, Manipur, Mizoram or Tripura, which are the four special category states for registration, not the eleven you will see listed elsewhere. Aggregate turnover means everything you billed: every client, domestic and foreign, and work sold through platforms counted at its gross value before the platform's fee, not the payout that reaches your bank — not merely the clients who ask about GST.
The second version of “the client is right” is commercial rather than legal: their procurement genuinely will not onboard a supplier without a GSTIN. That happens, often in vendor systems configured years ago for suppliers of goods and never revisited. Ask plainly whether their accounts team can set you up as an unregistered vendor; most can, because unregistered suppliers are entirely ordinary. If the answer is really no, you are making a decision about one client, and voluntary registration below the threshold is the lever — with the price attached. From that day you charge on every invoice to every client, including the ones who cannot reclaim it, and you file returns in months where you billed nothing. The case for and against registering early is worth reading before you trade a year of filings for one purchase order.
The input-credit objection, meanwhile, is usually softer than it sounds. A client who can claim credit is neutral either way — they pay ₹118 and reclaim ₹18, or pay ₹100 and reclaim nothing, and your service costs them ₹100 in both cases. A client who cannot claim credit is better off with your invoice than with a registered supplier's. Saying that calmly ends the exchange more often than any amount of paperwork.
What to send this week
- Check the number first. Add up everything you have billed this financial year, all clients, all currencies. If you are near ₹20 lakh, that is the real subject of this email and not the invoice.
- Issue the document with the full list above on it, including the explicit no-GST sentence, and with no tax row anywhere on it.
- Send it with one line of explanation rather than an apology. Something close to: I am not registered under GST, so this invoice carries no GST and no GSTIN. The amount shown is the full amount payable, and the invoice has everything your accounts team needs to record it.
- If they come back asking specifically about input tax credit, answer that one directly — there is no credit to pass on because no tax was charged, and their cost is the invoice amount.
If this conversation is happening for the third time this quarter, the underlying question is not what to call your document. It is whether you are close enough to the threshold that registering is now a scheduling problem rather than a choice — and that is answered by knowing your cumulative turnover on any given day, not by finding out in March.