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Department of the Auditor General of Pakistan SPECIAL AUDIT REPORT ON THE ACCOUNTS OF HOUSING SOCIETIES DIRECTORATE CAPITAL DEVELOPMENT AUTHORITY (PRIVATE HOUSING SCHEMES IN ISLAMABAD CAPITAL TERRITORY) CAPITAL ADMINISTRATION AND DEVELOPMENT DIVISION GOVERNMENT OF PAKISTAN AUDIT YEAR 2016-17 AUDITOR GENERAL OF PAKISTAN TABLE OF CONTENTS ABBREVIATIONS AND ACRONYMS .......................................................... i PREFACE ........................................................................................................ iii EXECUTIVE SUMMARY ...............................................................................v AUDIT PARAS ...........................................................................................1 Irregularity and Non-Compliance ..............................................................1 01. Unauthorized issuance of NOC before approval of required Engineering Designs/NOC from Ministry of Defence resulting into loss to general public - Rs 46,038.000 million and non-recovery of extension fee - Rs 69.056 million ...................1 02. Unauthorized issuance of Layout Plan beyond territory of Islamabad Master Plan - Rs 28,260.000 million ..............................2 03. Unauthorized issuance of Layout Plan without complete ownership of land causing loss to general public - Rs 1,939.500 million and non-cancellation of NOC........................4 04. Unauthorized use of land beyond Layout Plan - Rs 1,469.600 million ..............................................................................................5 05. Approval of Layout Plan of Housing Scheme without scrutiny of land documents, drowning the investment of innocent people - Rs 782.44 million ................................................7 06. Non-obtaining of Bank Guarantee for construction of sewerage treatment plant - Rs 10.00 million and non- mutation of land 332 kanals and 14 marlas .....................................8 Performance ..............................................................................................10 07. Loss to the general public due to not selling 30% mortgaged - Rs 15,065.850 million ....................................................................10 08. Environmental loss due to no action against housing societies and monetary loss due to non-selling of mortgaged area of NOC granted societies - Rs 12,315.000 million ............................12 09. Loss to the shelterless people due to no action against M/s Tele Town - Rs 4,500.000 million ..........................................14 10. Loss to the general public due to issuance of NOC of housing scheme on the basis of fake and fictitious documents and non-cancelation of NOC even after NAB notice - Rs 3,995.200 million ......................................................................15 11. Loss to the shelterless people due to non-completion of project within stipulated period, non-obtaining of Bank Guarantees and extending undue benefit to the sponsor - Rs 342.000 million .........................................................................18 12. Loss of billions of rupees to the general public due to no action against societies claiming their location in ICT Zone .........19 Internal Control Weaknesses ...................................................................21 13. Loss to general public due to 109 illegal housing schemes - Rs 5,217.39 billion .........................................................................21 14. Loss to the general public in billions of rupees due to non- selling mortgaged area and non-charging extension period fee and penalties for changes in the layout plans of approved housing schemes - Rs 126.376 billion ...........................................24 15. Loss to the general public against approved but incomplete housing schemes - Rs 76.534 billion .............................................26 16. Non-recovery of Right of Way (ROW) charges from Housing Societies - Rs 2,045.760 million and non-imposition of ROW charges on illegal societies - Rs 5,232.00 million .........................27 17. Non-recovery of land conversion fee, penalty for change in layout plan and start of construction without approval of building plan - Rs 526.182 million ................................................30 18. Non-recovery of monitoring expenses from sponsor - Rs 1.023 million and undue benefits to sponsor due to non- development of work within stipulated period ..............................32 19. Non-recovery of additional surcharge - Rs 1.742 million and non-recovery of departmental charges - Rs 90,000 .......................33 ABBREVIATIONS AND ACRONYMS AASHTO American Association of State Highway and Transportation Officials CNG Compressed Natural Gas CDECHS Cabinet Division Cooperative Employees Housing Society DAC Departmental Accounts Committee FIR First Information Report ICT Islamabad Capital Territory LOP Layout Plan MPCHS Multi Professional Cooperative Housing Society NAB National Accountability Bureau NOC No Objection Certificate PSDP Public Sector Development Programme PTCL Pakistan Telecommunication Company Limited RCC Reinforced Cement Concrete ROW Right Of Way. SECP Securities & Exchange Commission of Pakistan. STP Sewerage Treatment Plant i ii Preface Articles 169 and 170 of the Constitution of the Islamic Republic of Pakistan 1973, read with the Sections 8 and 12 of the Auditor General (Functions, Powers and Terms and Conditions of Service) Ordinance, 2001 require the Auditor General of Pakistan to conduct audit of the accounts of the Federal and of the Provincial Governments and the accounts of any authority or body established by, or under the control of, the Federal or a Provincial Government. The report is based on special audit of Housing Societies Directorate of Capital Development Authority (CDA) which regulates Private Housing Societies in Islamabad Capital Territory for the period from 2011 to 2016 conducted in pursuance of the directions of Public Accounts Committee during its meeting held on 24th to 26th May, 2016. The Directorate General Audit Works (Federal), Islamabad conducted special audit during January- February 2017 with a view to reporting significant findings to the relevant stakeholders. Audit findings indicate the need for adherence to the regularity framework besides instituting and strengthening the internal controls to avoid recurrence of similar violations and irregularities. The report could not be discussed with the Principal Accounting Officer in the Departmental Accounts Committee meeting despite best efforts made by Audit. The Special Audit Report is submitted to the President of Pakistan in pursuance of Article 171 of the Constitution of the Islamic Republic of Pakistan 1973, for causing it to be laid before the Parliament. Sd/- Islamabad (Javaid Jehangir) Dated: 21st May, 2018 Auditor General of Pakistan iii iv EXECUTIVE SUMMARY The Directorate General Audit Works (Federal), Islamabad, carries out the audit of Federal Government entities engaged in construction works, namely, Capital Development Authority, Civil Aviation Authority, National Highway Authority, Pakistan Public Works Department, Estate Office, Federal Government Employees Housing Foundation, National Construction Limited, Pakistan Housing Authority Foundation, Higher Education Commission (PSDP/Infrastructure development works executed by federally chartered universities/institutions), Workers Welfare Fund/Boards and Ministry of Planning, Development and Reform (Special Project Cell/Afghan Projects). These entities function under the administrative control of various Principal Accounting Officers and consume major portion of the funds provided under the Public Sector Development Programme. The Directorate General Audit Works (Federal), Islamabad conducted special audit of Housing Societies Directorate of Capital Development Authority which regulates Private Housing Schemes in Islamabad Capital Territory (ICT) during January - February 2017 for the period from 2011 to 2016 in pursuance of the directions of Public Accounts Committee during its meeting held on 24th to 26th May, 2016. The objectives of the special audit were to assess: Whether planning and permission for construction of private housing schemes was appropriate and according to the Islamabad Capital Territory (Zoning) Regulation, 1992 and according to the Modalities and Procedures framed under above regulations for development of private housing schemes in Zone-2, Zone-4, and Zone-5 of the ICT. Whether monitoring and reporting mechanism was in place to detect violations by the sponsors of housing schemes v i. Introduction Capital Development Authority (CDA), established under the CDA Ordinance promulgated on 27th June, 1960, is governed through an Executive Board, constituted by the Federal Government, under Section 6 of CDA Ordinance, 1960. Secretary, Capital Administration and Development Division is the Principal Accounting Officer of CDA. In exercise of the powers conferred by section 51 of the CDA Ordinance 1960 read with section 11 thereof, CDA has made Zoning Regulation 1992. As per ICT (Zoning) Regulation, 1992, Islamabad has been divided into Five Zones as under: Zone-I This Zone constitutes sectors up to the existing alignment of the G.T Road from point of intersection of G.T Road with Shahra-e-Kashmir to the point of the Nicolson Monument (Turnol, Rawalpindi) inclusive of Sector H-14, H-15, H-16, H-17, I-14, I-15, I-16 and I-17. Total area under this Zone is 54,958 Acres. Land was to be acquired under a phased programme and developed by the
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