Fifth Delhi Finance Commission 2016-2021 Report October 2017 Contents Glossary v List of Annexures viii Chapter 1: Summary of Major Recommendations 1 Chapter 2: Introduction 19 Chapter 3: Issues and Approach 25 Chapter 4: Recommendations of Previous Finance Commissions 39 Chapter 5: Finances of Government of Delhi 53 Chapter 6: Receipts of the Municipalities 87 Chapter 7: Expenditure of the Municipalities 169 Chapter 8: Debt Liabilities of the Municipalities 251 Chapter 9: Assessment of the Finances of the Municipalities and Scheme of Devolution 257 Chapter 10: Accountability, Audit and Oversight 283 Chapter 11: Governance Reforms and Capacity Enhancement 293 Chapter 12: Best Practices of the Municipalities 307 Annexures 315 References 375 iii GLOSSARY AAI Airports Authority of India CGST Central Goods & Services Tax ABAS Accrual Based Accounting System CNG Compressed Natural Gas ACA Additional Central Assistance CPC Central Pay Commission AGR Annual Growth Rate CPI Consumer Price Index AIILSG All India Institute of Local Self Government CPSUs Central Public Sector Undertakings AMRUT Atal Mission for Rejuvenation and Urban CR Cycle Rickshaw Transformation CRF Central Road Fund ANM Auxiliary Nurse cum Midwife CSE Conservancy and Sanitation Engineer Annex Annexure CSO Central Statistics Office ARD Administrative Reforms Department CST Central Sales Tax ARMA Auto Regressive Moving Average CTC Community Toilet Complex ARV Annual Rental Value DCA Deputy Controller of Accounts ASHA Accredited Social Health Activist DCB Delhi Cantonment Board ASI Annual Survey of Industries DDA Delhi Development Authority ASI Archaeological Survey of India DEMS Department of Environment Management ATM Automated Teller Machine Services ATR Action Taken Report DES Directorate of Economics & Statistics BDO Block Development Officer DESU Delhi Electric Supply Undertaking BE Budget Estimate DFC Delhi Finance Commission BRPL BSES Rajdhani Power Limited DGDE Directorate General of Defence Estates BRTS Bus Rapid Transit System DGST Delhi Goods & Services Tax BSES Bombay Suburban Electric Supply DIMTS Delhi Integrated Multi-Modal Transit System BSLLD Basic Statistics for Local Level Development DISCOMs Distribution Companies BTA Basic Tax Assignment DJB Delhi Jal Board BYPL BSES Yamuna Power Limited DL Driving license C&D Construction & Demolition DMC Delhi Municipal Corporation CAA Constitutional Amendment Act DMRC Delhi Metro Rail Corporation CAG Comptroller and Auditor General DPR Detailed Project Report CAGR Compound Annual Growth Rate DSA Delhi Statistical Abstract CATS Central Accident and Trauma Service DSIDC Delhi State Industrial Development Corporation CBAS Cash Based Accounting System DSIIDC Delhi State Industrial and Infrastructure CBO Community Based Organization Development Corporation CDM Clean Development Mechanism. DSSDI Delhi State Spatial Data Infrastructure CEO Chief Executive Officer DSSSB Delhi Subordinate Staff Selection Board CFC Central Finance Commission DTC Delhi Transport Corporation CG Hospital Cantonment General Hospital DTT Department of Trade and Taxes Vv DUSIB Delhi Urban Shelter Improvement Board JNNURM Jawaharlal Nehru National Urban Renewal DVAT Delhi Value Added Tax Mission DVB Delhi Vidyut Board K-SHIP Karnataka State Highway Improvement Programme EBs Enumeration Blocks LB Local Body EC Expert Committee LED Light Emitting Diodes ECC Environment Compensation Charge M&CW Maternity & Child Welfare EDMC East Delhi Municipal Corporation MCA Municipal Chief Auditor EPCA Environment Pollution (Prevention and Control) Authority MCD Municipal Corporation of Delhi EWS Economically Weaker Section MCI Medical Council of India FAR Floor Area Ratio MHUA/MoHUA Ministry of Housing & Urban Affairs FC Finance Commission MOHRD Ministry of Human Resource Development FCC Finance Commission Cell MORTH Ministry of Road Transport & Highways FCO Fertilizer Control Order MOSPI Ministry of Statistics & Programme Implementation FD Finance Department MoUD Ministry of Urban Development G/o Government of MPC Metropolitan Planning Committee GAAP Generally Accepted Accounting Principle MPD Master Plan of Delhi GDP Gross Domestic Product MRF Municipal Reforms Fund GIA Grant in Aid MRTS Mass Rapid Transit System GIS Geographic Information System MSW Municipal Solid Waste GLM Giridhari Lal Maternity (Hospital) MVC Municipal Valuation Committee GNCT Government of National Capital Territory MVID Maharishi Valmiki Infections Disease (Hospital) GNCTD Government of National Capital Territory of Delhi MVs Motor Vehicles GoD Government of Delhi NBCC National Buildings Construction Corporation GOI Government of India NCRPB National Capital Region Planning Board GPS Global Positioning System NCT National Capital Territory GSDL Geospatial Delhi Limited NDMC New Delhi Municipal Council GSDP Gross State Domestic Product NGO Non Governmental Organization GST Goods & Services Tax NHAI National Highway Authority of India GSVA Gross State Value Added NITI Aayog National Institution for Transforming India Aayog GTC Gross Tax Collection NMT Non Motorised Transport GVA Gross Value Added NRHM National Rural Health Mission H &FW Health & Family Welfare NSDP Net State Domestic Product I & FC Irrigation & Flood Control NSS National Sample Survey IA Interlocutory Application NTC Net Tax Collection ICAI Institute of Chartered Accountants of India NUHM National Urban Health Mission ICE Information, Communication Education/ Extension O & M Operation & Maintenance ICT Information & Communication Technology. OPD Out Patient Department IL & FS Infrastructure Leasing & Financial Services OT Operation Theatre OTR Own Tax Revenues IPD In Patient Department IPT Intermediate Public Transport PATHYA People Association for Total Health & Youth Applause JJ Jhuggie Jhompri vi PCA Primary Census Abstract SLF Sanitary Land Fill PCNSDP Per Capita Net State Domestic Product SOI Survey of India PF Provident Fund SSA Sarva Shiksha Abhiyan PID Property Identity SWM Solid Waste Management PPP Public Private Partnership T & D Transmission & Distribution PRI Panchayati Raj Institution TDR Transfer of Development Rights PSU Public Sector Undertaking TGR Trend Growth Rate PTR Pupil Teacher Ratio TLE Teacher Learning Equipment PWD Public Works Department TOD Transit Oriented Development QCBC Quality Cum Cost Basis System TOR Terms of Reference RAM Road Assets Management TPD Tonnes Per Daily RBE Revised Budget Estimate TPDDL Tata Power Delhi Distribution Ltd. RBI Reserve Bank of India TSRs Three Wheelers, Scooters & Rickshaws RBIPMT Hospital Rajan Babu Institute of Pulmonary U-DISE Unified District Information System for Medicine & Tuberculosis (Hospital) Education RDF Refuse Derived Fuel UAM Unit Area Method RE Revised Estimate UCHC Urban Community Health Centre RGI Registrar General of India UD Urban Development RIS Road Information System UDD Urban Development Department RMC Road Maintenance Calendar UFC Union Finance Commission ROBs Railway over Bridges ULBs Urban Local Bodies ROW Right of Way UOI/UoI Union Of India RRI Road Research Institute UPIC Unique Property Identification Code RTE Right of Children to Free and Compulsory URDPFI Urban and Regional Development Plans Education Formulation and Implementation RUBs Railway under Bridges UT Union Territory RWAs Resident Welfare Associations UTTIPEC Unified Traffic & Transportation SBM Swachh Bharat Mission Infrastructure Planning & Engineering Centre SCDRC Standing City Development & Reforms Committee VAT Value Added Tax SDMC South Delhi Municipal Corporation VGF Viability Gap Funding SDN Hospital Swami Dayanand Hospital W2E Waste to Energy SEBI Security & Exchange Board of India WMA Ways & Means Advances SFC State Finance Commission YoY Year on Year SKs Safai Karamcharis vii Annexures 2.1 GNCTD Order dated 26.4.2016 regarding constitution of 3.11 List of Meetings with the State Government, Municipalities the 5th DFC and other Authorities/ Organisations 2.1A GNCTD order dated 12.9.2017 specifying Finance 3.12 Visits of /Interaction with other Authorities/ Commissions Commission for the purpose of section 107 A of Delhi 4.1 Copy of Letter No. 14011/28/2015-D-II dated 12.4.2016 Municipal Act 1957 and Section 53 of the NDMC Act 1004 from M/O Home Affairs, GOI to Chief Secretary, GNCTD 2.2 GNCTD Order dated 28.4.2017 regarding nomination of regarding Fourth DFC Report members to the 5th DFC 5.1 Year-wise Devolution of Funds to the Municipalities: 2.3 Composition and Other Information about the First to the 2005-06 to 2017-18 (BE) Fifth DFCs 5.2 Capital receipts of GNCTD: 2005-06 to 2017-18 (BE) 3.1 Gender ratio (Females/per 1000 Males) in India and the 5.3 Capital expenditure of GNCTD: 2005-06 to 2017-18 (BE) States/UTs in 2001 and 2011 5.4 Details of capital outlay of GNCTD: 2005-06 to 2017-18 3.2 Advertisement from the 5th DFC in the Navbharat (BE) Times (Hindi) dated 28th June 2016 inviting views and suggestions 5.5 Loans & advances provided by GNCTD: 2005-06 to 2017- 18 (BE) 3.3 Advertisement from the 5th DFC in the Hindustan Times (English) dated 28th June 2016 inviting views and 7.1 National Family Health Survey-4, 2015-16, Key Indicators suggestions from Table-H-8 3.4 Advertisement from the 5th DFC in the Milap (Urdu) dated 9.1 Grants to the municipalities for public works including 28th June 2016 inviting views and suggestions roads, drains, pavements, resettlement colonies, JJ colonies & maintenance of capital assets etc. during 2012-13 to 3.4 Advertisement from the 5th DFC in the Qaumi Patrika 2017-18 (BE) (Punjabi) dated 28th June 2016 inviting