Off-Budget Financing: CAG's Suggestions for Parliamentary Accountability

Context: The Fiscal Responsibility and Budget Management (FRBM) Act Compliance Report for FY2017 by the Comptroller and Auditor General of India (CAG) has highlighted the use of off-budget financing by the government. Off-budget financing involves certain expenditures not being reflected in the traditional fiscal accounts of the budget, often undertaken by public sector enterprises. The CAG's report emphasizes the need for parliamentary accountability in managing such off-budget expenditures.

Implications of Off-Budget Financing: Off-budget financing can have serious fiscal implications as it may impact private investment, economic growth, and overall macroeconomic stability. Some examples of off-budget expenditures mentioned in the report include deferring fertilizer arrears, borrowing for food subsidy arrears, and financing various projects through public sector entities.

CAG's Suggestions for Parliamentary Accountability: The CAG has recommended that the government should consider presenting a comprehensive policy framework for off-budget financing. The proposed framework should include the following key elements:

1. Rationale and Objectives:
• Clearly specify the reasons and objectives for resorting to off-budget financing. This would provide transparency and help stakeholders understand the purpose behind such financial maneuvers.
2. Quantum of Off-Budget Financing:
• Clearly outline the quantum or amount of off-budget financing undertaken. This information is crucial for assessing the scale of off-budget activities and their impact on overall fiscal health.
3. Sources of Funds:
• Identify and disclose the sources of funds for off-budget financing. This includes specifying whether the funds are raised through borrowings, grants, or other financial instruments. Knowing the sources of funds adds transparency to the government's financial operations.
4. Parliamentary Oversight:
• Strengthen parliamentary oversight by ensuring that off-budget financing activities are subject to scrutiny and approval by relevant parliamentary committees. This enhances accountability and ensures that such financial decisions are in the public interest.
5. Impact Assessment:
• Conduct a comprehensive impact assessment of off-budget financing on fiscal deficit, private investment, and macroeconomic stability. This analysis would help policymakers and the public understand the consequences of such financial strategies.

Conclusion: The CAG's recommendations underscore the importance of transparency, accountability, and parliamentary oversight in managing off-budget financing. Implementing a clear policy framework would contribute to responsible fiscal management and facilitate informed decision-making by all stakeholders.

Fiscal Council: Enhancing Fiscal Governance in India

Introduction: Fiscal policy plays a critical role in shaping the economic trajectory of a nation. To ensure transparency, accuracy, and adherence to fiscal rules, the establishment of an independent fiscal council has been proposed in India. Such a council can act as a watchdog, providing assessments, forecasts, and advice to the government, ultimately contributing to sound fiscal governance.

Global Perspective: International experiences, as highlighted by a 2019 IMF working paper, indicate that the presence of an independent fiscal council tends to enhance the accuracy of fiscal projections and facilitates compliance with fiscal rules. Recognizing the importance of such oversight, various countries have established independent fiscal councils to monitor and guide fiscal policies.

Recommendations from Expert Committees:

1. N.K. Singh Committee (2017):
• The N.K. Singh Committee, which reviewed the Fiscal Responsibility and Budget Management (FRBM) Act, recommended the creation of an independent fiscal council in India. The proposed council would be tasked with providing forecasts and advising the government on potential deviations from mandated fiscal rules.
2. D.K. Srivastava Committee (2018):
• The D.K. Srivastava committee on fiscal statistics, established by the National Statistical Commission (NSC), also endorsed the establishment of a fiscal council in India. The envisioned council would coordinate with all levels of government, ensuring harmonized fiscal statistics and delivering an annual assessment of overall public sector borrowing requirements.
3. 13th and 14th Finance Commissions:
• The 13th and 14th finance commissions supported the establishment of independent fiscal agencies. These agencies would play a crucial role in reviewing the government's adherence to fiscal rules and providing independent assessments of budget estimates.

Role of Fiscal Council:

1. Forecasting:
• Provide accurate and unbiased fiscal projections to guide policymaking and decision-making processes.
2. Advisory Function:
• Advise the government on adherence to fiscal rules, potential deviations, and corrective measures.
3. Coordination:
• Coordinate with various levels of government to ensure consistent fiscal data and assessments.
4. Transparency:
• Enhance transparency in fiscal policies, promoting accountability and public trust.

Conclusion: The establishment of an independent fiscal council in India is not just a recommendation but a crucial step towards strengthening fiscal governance. Such a council, guided by expert assessments and international best practices, can contribute significantly to the nation's economic stability, prudent fiscal management, and informed decision-making. The implementation of this recommendation would mark a positive stride in India's fiscal landscape.

Budget Reforms: Enhancing Efficiency and Synchronization

Introduction: In pursuit of greater efficiency, synchronization with the general economy, and the reduction of populist measures, significant reforms have been introduced in the budgetary process in recent years. These reforms encompass changes in the budget presentation schedule, merging of the Railway Budget with the general budget, and the elimination of the plan and non-plan expenditure classification.

Key Budget Reforms:

1. Preponing Budget Presentation:
• Traditionally, the Union budget was presented on the last working day of February and passed by mid-May. However, starting from the fiscal year 2017-18, the Union budget is presented on February 1, allowing it to be passed before the onset of the next fiscal year. This change aims to facilitate better financial planning and implementation.
2. Merging of Railway Budget:
• The Railway Budget, presented separately since 1924, was merged with the general budget from the fiscal year 2017-18 onwards. This move was prompted by the shrinking revenue of the railways, and the integration enables a more holistic view of government finances.
3. Elimination of Plan and Non-Plan Expenditure:
• The traditional classification of expenditure into plan and non-plan categories was eliminated to address distortions in budgetary allocations. This change reflects a shift towards outcome-oriented budgeting, focusing on the impact of expenditures rather than the source of funds.
4. Shankaracharya Committee:
• To explore different budget calendars and their implications, the Shankaracharya committee was set up. This committee aimed to analyze the advantages and disadvantages of presenting the budget on various dates, such as January 1, February 1, July 1, or in November.

Objectives of Budget Reforms:

1. Efficiency Enhancement:
• The preponing of the budget presentation allows for better alignment with the financial calendar, enhancing efficiency in planning and execution.
2. Holistic View:
• Merging the Railway Budget with the general budget provides a comprehensive overview of government finances, aiding in better decision-making.
3. Outcome-Oriented Budgeting:
• The elimination of plan and non-plan expenditure classification promotes a focus on outcomes and impact, contributing to more effective resource allocation.
4. Timely Decision-Making:
• Preponing the budget presentation enables timely decision-making and implementation, preventing delays in the allocation of funds.

Conclusion: These budget reforms signify a commitment to modernizing and streamlining the budgetary process. The changes introduced aim to enhance the effectiveness of public finance management, aligning it more closely with the needs of the economy and the principles of good governance. The ongoing evaluation and adjustment of these reforms will further contribute to the evolution of a responsive and dynamic budgetary framework.