No: under the Ministry of Finance’s current guidance, merchants should not pass UPI MDR charges on to customers. The Ministry says MDR is a charge within the merchant payment ecosystem, not a charge on people making UPI payments, and says banks have been advised to ensure merchants do not pass it through. That guidance does not, by itself, settle every checkout charge that might be described under a different label.
What the current UPI guidance says
In a release dated September 15, 2026, the Ministry of Finance stated: “MDR is a charge within the merchant payment ecosystem. It is not a charge on customers making UPI payments.” It also said banks had been advised to ensure merchants do not pass MDR charges on to customers. Ministry of Finance, via the Press Information Bureau
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So if a shop adds an amount specifically to recover UPI MDR, the Ministry’s stated customer-facing guidance is that the merchant should not do so. The fee is described as part of the merchant payment ecosystem, not as an extra payment obligation for the customer. In ordinary terms, the merchant-side cost and the amount the customer owes at checkout are different things.
The release also says UPI application providers may not impose platform fees or hidden charges. That is distinct from the MDR guidance for merchants: the Ministry addresses both merchant pass-through and fees imposed by UPI application providers. The customer-facing answer to “Is there a UPI surcharge?” is therefore not to treat a merchant MDR rate as an amount automatically payable by the person scanning a QR code.
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The release says banks have been advised to ensure merchants do not pass the charge on. That tells readers what the Ministry says should happen, but the reviewed release does not explain a complete enforcement process, give a complaint escalation map, or specify a resolution timeline. It is important not to turn the stated guidance into claims about procedures the release does not describe.
What MDR is—and why merchant rates are not customer surcharges
MDR, or Merchant Discount Rate, is a charge associated with processing a merchant payment. The Ministry’s 2026 account describes it as a merchant-side charge. A listed MDR rate therefore does not mean that a customer should add that percentage or amount to the bill when paying by UPI. The rate describes treatment within the merchant payment ecosystem, not a customer surcharge.
The Ministry’s summary describes different MDR treatment according to whether a payment is person-to-person (P2P) or person-to-merchant (P2M), its amount, the merchant’s classification, and the transaction category. These distinctions help explain what may apply inside the payment ecosystem; they do not change the Ministry’s advice against passing MDR on to customers.
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For example, a transfer from one person to another is not the same category as a customer paying a shop. Even among merchant payments, the summary separates payments up to ₹2,000 from specified payments above that amount, and it gives different treatment to qualifying small merchants, certain essential or thin-margin sectors, and capital-market transactions. A customer should not try to infer their own surcharge by looking at a merchant MDR percentage or cap.
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How the Ministry describes MDR treatment
The following rates and exemptions are the Ministry of Finance’s summary of the framework in its September 15, 2026 release. They are merchant-side MDR figures, not customer surcharges. The release says approximately 96% of P2M transactions will remain unaffected; that is the Ministry’s estimate, not an independently verified calculation. Ministry of Finance, via the Press Information Bureau
| Payment or transaction category | MDR treatment described by the Ministry |
|---|---|
| P2P UPI payments | Free regardless of amount |
| P2M transactions up to ₹2,000 | Zero MDR |
| Qualifying small merchants classified as P2PM and receiving up to ₹1 lakh per month through UPI QR | Zero MDR on all transactions |
| Specified P2M transactions above ₹2,000 | 0.4% MDR, capped at ₹300 for transactions of ₹75,000 or more |
| Transactions above ₹2,000 in specified essential and thin-margin categories, including railways, telecommunications, insurance, fuel, and agricultural inputs | Flat ₹5 MDR |
| Specified capital-market transactions, including mutual funds, securities, stockbrokers, and dealers | 0.02% MDR, capped at ₹300 |
The categories and thresholds matter when determining the merchant-side treatment. For example, the general rate described for specified P2M payments above ₹2,000 is not the same as the flat rate described for certain essential-sector transactions. Likewise, qualifying P2PM merchants are treated separately from other merchants. None of those differences turns MDR into a customer fee under the Ministry’s stated guidance.
Read the small-merchant row narrowly: the release describes qualifying merchants under the P2PM classification that receive up to ₹1 lakh per month through UPI QR. For that group, it says zero MDR applies on all transactions. It is not a blanket statement that every small-looking business, or every merchant using any payment method, automatically qualifies. The release’s summary ties the treatment to the named classification and monthly UPI QR receipts.
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1Clear out junk files and repair common Windows errors2Scan for outdated or missing drivers - takes under a minute3Repair Windows errors before they cause bigger problemsThe “up to ₹2,000” and “above ₹2,000” distinctions also refer to the transaction treatment in the Ministry’s summary. P2P is separately described as free regardless of amount. Above the merchant-payment threshold, the listed rate depends on the specified category: the release gives 0.4% for specified P2M transactions, a flat ₹5 for certain essential and thin-margin sectors, and 0.02% for specified capital-market transactions. The caps are part of those descriptions: ₹300 for 0.4% transactions of ₹75,000 or more, and ₹300 for the specified capital-market rate.
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These are not instructions for calculating what a customer owes. In particular, the ₹5 figure is described as MDR for transactions above ₹2,000 in the named sector categories, not as a standard UPI checkout fee. Similarly, a cap on a merchant-side percentage does not create permission to add that capped sum to a customer’s bill. The Ministry’s customer-facing statement remains that MDR is not a charge on UPI customers and should not be passed through.
What to do if a shop adds a UPI fee
- Check the bill or payment screen. Look for a line item explicitly identified as a UPI, MDR, or payment-processing charge, and note the amount and wording. Keep the final bill total in view too, so you can distinguish a stated fee from a general price or another line item.
- Ask the merchant what the extra amount represents. The Ministry’s guidance concerns passing MDR on to customers. The reviewed release does not define every possible fee label or establish that every separately described checkout charge is necessarily MDR. A clear explanation may help identify whether the merchant is calling the amount recovery of MDR or describing a different charge.
- Keep the evidence. Save the bill, receipt, or payment screen and any explanation you receive. This can help identify whether the added amount was presented as recovery of MDR or described as a different charge. The release itself does not prescribe a particular evidence format.
- Raise the concern with the relevant bank or payment provider if appropriate. The Ministry says banks have been advised to ensure merchants do not pass MDR on to customers, but the release does not give a detailed complaint route, enforcement process, or expected resolution time. Do not assume from the release alone that it names a specific helpline or guarantees a particular outcome.
The wording on the charge matters because the source addresses MDR pass-through specifically. If a receipt explicitly says “UPI MDR recovery” or otherwise identifies the amount as recovery of MDR, that is directly relevant to the Ministry’s non-pass-through guidance. If a merchant uses a different description, the Ministry’s September release does not, on its own, determine how that other charge should be classified or whether it is permitted. Avoid treating a different label as proof either way; the release does not settle every possible checkout fee.
How the current position differs from earlier statements
Earlier official statements should be read in date order. On August 8, 2026, the Ministry described an amendment to the Payment and Settlement Systems Act as an enabling provision and said the NPCI-headed UPI and Services Steering Committee would decide on MDR, if any, after the specified legislative step. The later September 15, 2026 release describes a framework and rates. The August statement is useful context, but it is not the latest account of the framework. Ministry of Finance, via the Press Information Bureau
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This timeline matters because an earlier statement about a decision still to come should not be read in isolation after a later government release has described rates and categories. At the same time, the September summary is not a substitute for the complete operative legal text or for implementation materials. The sources reviewed do not establish all commencement mechanics or the detailed enforcement route, so readers should not infer those specifics from the two summaries.
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In a parliamentary answer on August 18, 2025, the Ministry said there was then no proposal to impose UPI transaction charges. It cited section 10A of the Payment and Settlement Systems Act, 2007, and a notification prescribing UPI and RuPay debit card as electronic payment modes. That answer predates the 2026 releases and should not be treated as the current description of MDR. Ministry of Finance parliamentary answer, via Sansad
The 2025 answer also reported approximately ₹8,730 crore in incentive support over FY 2021–22 through FY 2024–25. That figure is historical policy context, not a current MDR rate or an amount a customer should pay. A March 2025 government scheme document described the then-existing zero-MDR policy for BHIM-UPI and RuPay debit card transactions and an incentive scheme for FY 2024–25 focused on low-value P2M payments up to ₹2,000. These earlier materials help explain prior policy support for digital payments, but they do not replace the later 2026 summary. Department of Financial Services scheme document
In short, the 2025 “no proposal” statement and the March 2025 scheme describe an earlier point in time; the August 2026 release describes an enabling step and a future committee decision; and the September 2026 Ministry release is the latest source in this research for the framework and rates. For the question of what a customer should pay today under the stated guidance, use the latest customer-facing position—not an older statement in isolation.
What the official guidance does not settle
The September 15 release provides the Ministry’s customer-facing position and says banks have been advised to prevent MDR pass-through. It does not set out a complete enforcement procedure, explain how a customer should escalate a disputed fee, or define every charge that a merchant might list separately at checkout. The specific wording matters: the guidance says merchants should not pass MDR on; the release alone is not a full legal analysis of every charge that could be described by another name.
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For a disputed amount, focus on how it was described and why it was added. A fee explicitly presented as recovery of MDR falls within the Ministry’s non-pass-through guidance. If it is described as something else, the release does not establish its legality or treatment without more detail about the charge and applicable rules. The available summaries also do not provide a full text analysis of the law, commencement mechanics, or NPCI and bank implementation materials, so claims about those details would require additional sources.
Frequently Asked Questions
Can a shop charge extra for UPI?
The Ministry of Finance’s September 15, 2026 guidance says MDR is not a charge on UPI customers and says banks have been advised to ensure merchants do not pass MDR on to customers. The release does not determine every checkout fee that might be described under a different label.
Who pays UPI MDR?
The Ministry describes MDR as a charge within the merchant payment ecosystem, not a customer charge. Its listed MDR rates and exemptions concern merchant-side treatment; they are not amounts customers should add to a UPI bill.
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No. The Ministry distinguishes P2P from P2M, amounts up to ₹2,000 from specified transactions above that amount, qualifying P2PM small merchants, and specified essential-sector and capital-market categories. Those distinctions affect the merchant-side framework, not the stated customer guidance.
What if a checkout fee is not called MDR?
The reviewed Ministry release does not define every possible fee label or settle the treatment of every separately described charge. Check how the amount is described, ask what it represents, and retain the bill or payment screen; the release does not provide a complete complaint route or enforcement procedure.
Is the 2025 statement that UPI transaction charges were not proposed still the latest position?
No. That parliamentary answer was dated August 18, 2025. Later Ministry releases in August and September 2026 describe subsequent developments, with the September 15 release providing the later summary of the framework and rates.
The Bottom Line
Bottom line: The Ministry of Finance’s September 15, 2026 guidance says UPI MDR is a merchant-side charge and that merchants should not pass it on to customers. The rates vary by transaction type, amount, merchant classification, and category, but they are not customer surcharges. If a shop adds a fee, check how it is described and keep the receipt; the Ministry release does not explain a complete enforcement or complaint process, nor does it settle every separately labelled checkout charge.
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