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Report on State Finances of Sikkim Submitted to the 15Th Finance

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Report On State Finances of Sikkim Submitted to the 15th Finance Commission By Department of Commerce Sikkim University 6th mile, Tadong, Gangtok, Sikkim – 737102 CONTENTS Acknowledgement i List of Tables ii List of Figures vi Legend of Abbreviations viii Chapter 1 Introduction 1 Chapter 2 Socio Economic Profile of Sikkim 4 Chapter 3 Trends in Tax Revenue 18 Chapter 4 Trends in Own Non- Tax Revenue 36 Chapter 5 Total Expenditure: Trend and Pattern 47 Chapter 6 Analysis of Fiscal and Revenue Deficits 55 Chapter 7 The Level of Debt 64 Chapter 8 Implication of FRBM Act 78 Chapter 9 Finances of Local Bodies 88 Chapter 10 Impact ofState PSU on State Finance 110 Chapter 11 Impact of The Power Sector Reforms on The Fiscal Health of The State 122 Chapter 12 Performance of The Sikkim Nationalized Transport 130 Chapter 13 Analysis of Contingent Liability 137 Chapter 14 Analysis of State Subsidies of Sikkim 141 Chapter 15 Outcome Evaluations of State Finance 145 Chapter 16 Determination of A Sustainable Debt Road Map for Sikkim 159 Chapter 17 Conclusion 171 References 185 ACKNOWLEDGEMENT The 15th Finance Commission was constituted in November 2017 under the Chairpersonship of Sri N.K. Singh. The Commission had a mandate to recommend the vertical devolution of taxes as well as the formula for inter-se allocation of the shared taxes and Grant-in-aid to States. The Commission had to do an in-depth analysis of the Finances of the States. The Commission assigned the task of analyzing the State Finances of the Government of Sikkim to the Department of Commerce, Sikkim University. The team has come out with an in-depth study of the State finances which is being produced in this volume. At the outset. we would like thank Sri.N.K. Singh and his entire team of the 15th Finance Commission for having entrusted Sikkim University with such a prestigious assignment. The Data required for the project was enormous and it was a herculean task to complete the projects frame work. We acknowledge by name the persons who had helped us either through discussion or providing data for completion of this work. 1. Sri. A.K. Shrivastava, Chief Secretary, Government of Sikkim, Gangtok 2. Sri. T.T. Dorjee-Principal Secretary Finance, Revenue & Expenditure; Chief. Electoral Officer, Election Department, Government of Sikkim, Gangtok 3. Sri. Mukhmeet S. Bhatia, Joint Secretary, Government of India, 15th Finance Commission 4. Sri. A. Chakravorty- Director, Budget Department, Government of Sikkim, Gangtok 5. Ms Sangita Kharel- DSME, Government of Sikkim, Gangtok We would like to extend our sincere gratitude toourteam of researchers which include: 1. Mr.J. Sopan, Senior Research Fellow, Department of Commerce, Sikkim University 2. Mr. Madhabendra Sinha, Senior Research Fellow in Economics, Department of Humanitiesand Social Science, NIT, Durgapur. 3. Dr.Anjan Roy Choudhury, Assistant Professor in Economics, Durgapur Government College, Durgapur 4. Mr. Lochan Sharma, Project Research Assistant, Department of Commerce, Sikkim University The entire team of the Department of Commerce worked extremely hard for completion of the project. I would like to thank my Co PIs Dr.S. S. Mahapatra, Dr. B. MuthuPandian and Sri. D. Pal for providing support and working towards the goal of the completion of the project. We hope that the insight will be helpful to the 15th Finance Commissionto complete their decisive task. Prof. Abhjit Dutta Head, Department of Commerce 8th March 2019, Gangtok i LIST OF TABLES Table no Title Page No Table 2.1 Fact Sheet of Sikkim 6 Table 2.2 Comparison of GSDP at Nominal Prices (2011-12 prices) for the North Eastern States of India 9 Table 2.3 Sartorial employment in Sikkim 11 Table 2.4 Distribution of Workers 2001–11 12 Table 2.5 Distribution by Employment Status 13 Table 2.6 HDI of Various States of India 14 Table 2.7 Expenditure on Health and Education in Some select North East States of India 16 Table 3.1 Total Receipts and its Major Components (Rupees Cr) 19 Table 3.2 Total Receipts and Components as Percentage of GSDP 20 Table 3.3 Total Receipts and Major Components: Growth Rate 20 Table 3.4 Total Receipts and Major Components: Elasticity 21 Table 3.5 Revenue Receipts and its Components 21 Table 3.5(a) Percentages contribution of different components of Revenue Receipts 22 Table 3.6 Revenue Receipts and Components as Percentage of GSDP 24 Table 3.7 State’s Own Tax Revenue (In Rupees Cores) 25 Table 3.8 Share of various taxes on State’s Own Tax Revenue 26 Table 3.9 State’s own Tax revenue as percentage of GSDP 27 Table 3.10 State’s Own Tax Revenue: Growth Rate 28 Table 3.11 Tax Buoyancy 29 Table 3.12 Budget Effort of Sales Tax/VAT in Sikkim ( `. In Cores) 30 Table 3.13 C-efficiency of Sales Tax / VAT in Sikkim 31 Table 3.14 Trends in Central Devolution of Taxes and Grants to Sikkim 32 Table 3.15 Central Devolution of Taxes and Grants to Sikkim as % of GSDP 32 Table 3.16 Estimated total revenue and estimated tax revenue 33 Table 4.1 Gross Non-Tax Revenue: Summary Statistics (Rupees Cores) 36 Table 4.2 Percentage Share of Various Components of Non-Tax Revenue 38 Table 4.3 Percentage Share Of Various Components of Non-Tax Revenue over 2010-2018 38 Table 4.4 Growth Rate Of Various Components Of Non-Tax Revenue 39 Table 4.5 Dividends from PSUs and Interest from other Investments (Rupees Cr) and Cost Recovery 40 Table 4.6 Toll Receipts ( In Rupees Cr) 41 Table 4.7 Dividends from PSUs and other Investments (Rupees Cr) 42 Table 4.8 Total Investment at the end of year in Public Sector Undertakings (Rs. Crores) 43 Table 4.9 Dividend/ Interest Received During the Year from PSUs (Rupees Cr) 44 Table 5.1 Total Expenditure and its Components (Rs Cr) 48 Table 5.2 Growth Rate of Expenditure 48 Table 5.3 Composition of Revenue Expenditure as a % of Total Capital Expenditure 49 Table 5.4 Composition of Capital Expenditure as a % of Total Capital Expenditure 49 ii Table 5.5 Committed Expenditure of Government of Sikkim 50 Table 5.6 Committed Expenditure as a percentage of Revenue Receipts 51 Table 5.7 Growth Rate of Committed Expenditure 51 Table 5.8 Development and Non Development Expenditure ( Rs. In Crore) 52 Table 5.9 Growth rate of Development and Non-Development Expenditure 53 Table6.1 Revenue Deficit and Fiscal Deficit[1]from 2010-11 to 2018-19 (₹ Cr.) 56 Table 6.2 Revenue Deficits (₹ Cr.) and % to GSDP arranged by FCs 58 Table 6.3 Post-devolution Revenue Deficit (-) or Surplus (+) as estimated by 13th and 14th FCs, Grants 59 given to Sikkim to cover RD, Actual Revenue Account Position of the State Table 6.4 Fiscal Deficits (₹ Cr.) and % to GSDP arranged by FCs 61 Table 7.1 Total Debt Stock and Components (Rs. In ) from 2005-06 to 2018-19 66 Table 7.2 Total Debt Stock and Components by FCs (Rs. Cr.) 67 Table 7.3 Composition of Public Debt 68 Table 7.4 Composition of Public Debt by FC 68 Table 7.5 Share of Components (%) within Debt from Public Accounts 69 Table 7.6 Interest payments as a percentage of Revenue Expenditure 70 Table 7.7 Interest Payments as a Percentage of Revenue Expenditure 70 Table 7.8 Debt Stock and Components as a percentage to GSDP (2005-06 to 2018-19) 72 Table 7.9 Elasticities of Debt Stock and Components with respect to GSDP (2005-06 to 2018-19) by FCs 72 Table 7.10 Fiscal Sustainability Indicators for Sikkim (2010-11 to 2017-18) 74 Table 7.11 Number of breaches in the sustainability indicators from 2010-11 to 2017-18 75 Table 7.12 Indicators and frequency of observed breaches 75 Table 8.1 Tax Buoyancy 2010-11 to 2017-18 82 Table 8.2 Revenue receipts in Sikkim 82 Table 8.3 Capital Outlay of Sikkim 83 Table 8.4 FRBM Act Targets and Fiscal Achievements during 2016-17 86 Table 9.1 Gram Panchayats, Area and Population 88 Table 9.2 No. of Local Bodies in Sikkim 89 Table 9.3 Expenditure Profile of Sikkim as %age to GSDP (Percent to GSDP) 90 Table 9.4 Grants from Finance Commission 91 Table 9.5 Fund transfer from State government to GPs 91 Table 9.6 Own Revenue of Local Bodies of Sikkim 93 Table 9.7 Fund Transfer from Central Govt to PRIs and ULBs 94 Table 9.8 Funds Transfer from Central Govt. and State Govt to GPs 95 Table 9.9 Fund Transfer from Central Govt to ZPs 96 Table 9.10 Fund Transfer from Central and State Govts to ULBs 96 Table 9.11 Revenue of Zilla Panchayats in Sikkim 97 Table 9.12 Expenditure of Zilla Parishad 98 Table 9.13 Revenue of Gram Panchayat 99 Table 9.14 Expenditure of Gram Panchayat 101 iii Table 9.15 Revenue patterns of Urban Bodies 103 Table 9.16 Expenditure of the Urban Bodies 104 Table 9.17 National Awards Conferred to the State for transferring power to the People 107 Table 10.1 List of SPSUs in Sikkim 110 Table 10.2 Categorization of SPUs in Sikkim 111 Table 10.3 Sectarian Investment of the State in SPSUs ( Rs. In Cr) 112 Table 10.4 Sectarian Total income from SPSUs in Sikkim (Rs. in Cr) 113 Table 10.5 Investments in SPUS 114 Table 10.6 Government Investment and Reforms of SPSUs in Sikkim 117 Table 10.7 Profile of SPSUs in Sikkim 118 Table 10.8 Reform Matrix for SPSUs of Sikkim 119 Table 11.1 Electricity Generation in Sikkim 123 Table 11.2 Electricity Consumption in Sikkim (in KWh) 123 Table 11.3 Electricity by Source Type 124 Table 11.4 Hydel Power Generation 124 Table 11.5 Financial Performance of the Power Utility 125 Table 11.6 The technical details of Power Sector ( Rupees in Cr) 126 Table 12.
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