REPORT OF THE COMPTROLLER AND AUDITOR GENERAL OF INDIA ON PUBLIC SECTOR UNDERTAKINGS FOR THE YEAR ENDED 31 MARCH 2018 GOVERNMENT OF ASSAM (REPORT NO. 3 OF 2019) Table of Contents Reference to Particulars Paragraph(s) Page(s) Preface v Overview vii - xiv Introduction Functioning of State Public Sector Undertakings General 1 - 2 1 Accountability Framework 3 - 6 2 - 4 Investment of GoA in Public Sector Undertakings 7 - 9 4 - 5 (PSUs) PART I Chapter I Functioning of Power Sector PSUs Introduction 1.1 - 1.2 7 - 8 Disinvestment, restructuring and privatisation of 1.3 8 power sector PSUs Investment in power sector PSUs 1.4 8 - 9 Budgetary support to power sector PSUs 1.5 9 - 10 Reconciliation with Finance Accounts of 1.6 11 Government of Assam Submission of accounts by power sector PSUs 1.7 11 - 12 Performance of power sector PSUs 1.8 - 1.20 12 - 24 Assistance under Ujwal DISCOM Assurance Yojana 1.21 24 - 26 (UDAY) Comments on Accounts of power sector PSUs 1.22 26 - 27 Performance Audit and Compliance Audit 1.23 27 Paragraphs Follow up action on Audit Reports 1.24 - 1.25 27 - 28 Chapter II Performance Audit relating to Power Sector PSUs Performance Audit on Computerised Electricity Billing System in Assam Power Distribution 2.1 - 2.35 29 - 57 Company Limited Audit Report (PSUs) for the year ended 31 March 2018 Particulars Reference to Paragraph(s) Page(s) Chapter III Compliance Audit Observations relating to 3.1 – 3.5 59 - 66 Power Sector PSUs Assam Power Distribution Company Limited Deficient monitoring of works 3.1 59 - 61 Non-stoppage of power supply to defaulting 3.2 61 - 62 consumer Application of different rates for similar work items 3.3 63 - 64 Delay to implement revised Electricity Duty rates 3.4 64 - 65 Investment in low interest Short-term Deposits 3.5 65 - 66 PART II Chapter IV Functioning of PSUs (other than power sector) Introduction 4.1-4.2 67 Investment in PSUs (other than power sector) 4.3-4.4 68 Disinvestment, restructuring and privatisation of 4.5 68 PSUs (other than power sector) Budgetary Support to PSUs (other than power 4.6 69 - 70 sector) Reconciliation with Finance Accounts 4.7 70 Submission of accounts by PSUs (other than power 4.8 70 - 72 sector) Placement of Separate Audit Reports of Statutory 4.9 72 - 73 Corporations Impact of non-finalisation of accounts of PSUs 4.10 73 (other than power sector) Performance of PSUs (other than power sector) 4.11-4.23 73 - 85 Winding up of non-working PSUs 4.24 85 - 86 Comments on Accounts of PSUs (other than power 4.25-4.26 86 - 88 sector) Performance Audit and Compliance Audit 4.27 88 Paragraphs Follow up action on Audit Reports 4.28 - 4.30 88 - 90 ii Table of contents Particulars Reference to Paragraph(s) Page(s) Chapter V Performance Audit relating to PSUs (other than power sector) Performance Audit on the functioning of 5.1 - 5.26 91 - 121 Assam State Transport Corporation Chapter VI Compliance Audit Observations relating to 6.1 - 6.3 123 – 129 PSUs (other than power sector) Assam Electronics Development Corporation Limited Undue benefit to private contractor 6.1 123 – 124 Assam Fisheries Development Corporation Limited Loss of revenue 6.2 125 – 127 Assam Tea Corporation Limited Non-collection of service tax 6.3 127 – 129 iii Audit Report (PSUs) for the year ended 31 March 2018 Reference to No. Particulars Paragraph(s) Page(s) Appendices Statement showing the investment made by State 1. Government in PSUs whose accounts are in arrears as 4.8.1 131 – 132 on 30 September 2018 1.8, 1.10, Statement showing position of equity and outstanding 2. 1.16, 4.3 and 133 - 138 loans relating to State PSUs as on 31 March 2018 4.11 1.8, 1.9, Summarised financial position and working results of 1.14, 1.15, Government Companies and Statutory Corporations as 4.2, 4.8.2, 3. 139 - 145 per their latest financial statements/accounts as on 30 4.11, 4.13, September 2018 4.14, 4.17, 4.19 and 4.24 Statement showing State Government funds infused in 4. the three power sector PSUs since inception till 31 1.12 146 March 2018 Statement showing position of discussion of Audit 5. 1.25 147 Reports (Power Sector) by COPU Statement showing position of discussion of Audit 6. 4.29 148 Reports (other than power sector) by COPU Operational performance of Assam State Transport 7. 5.7 149 Corporation from 2013-14 to 2017-18 Prioritisation of execution of projects based on 8. 5.23 150 awarded cost (lowest to highest) iv Preface This Report deals with the results of audit of Government Companies and Statutory Corporations for the year ended 31 March 2018. The accounts of Government Companies are audited by the Comptroller and Auditor General of India (CAG) under the provisions of the Section 143 of the Companies Act, 2013. The accounts certified by the Statutory Auditors (Chartered Accountants) appointed by the CAG under the Companies Act, are subject to supplementary audit by officers of the CAG and the CAG gives their comments or supplements the reports of the Statutory Auditors. In addition, the Government Companies as well as Other Companies covered under Section 139 (5) and 139 (7) of the Companies Act, 2013 are also subject to test audit by the CAG. The audit of Statutory Corporations is governed by their respective legislations. In respect of one Statutory Corporation, namely, Assam State Transport Corporation the CAG is the sole auditor. Further, the CAG is also the sole auditor in respect of Assam Electricity Regulatory Commission. Reports in relation to the accounts of a Government Company or Corporation are submitted to the State Government by CAG for laying before State Legislature of Assam under the provisions of Section 19-A of the CAG’s (Duties, Powers and Conditions of Service) Act, 1971. The instances mentioned in this Report are those, which came to notice in the course of test audit during the period April 2017 to March 2018 as well as those which came to notice in the earlier years, but could not be reported in the previous Audit Reports. Matters relating to the period subsequent to March 2018 have also been included, wherever necessary. The audit has been conducted in conformity with the Auditing Standards issued by the CAG. Overview Overview This Audit Report has been prepared in two Parts along with an ‘Introduction’ on Functioning of Public Sector Undertakings (PSUs) under Government of Assam (GoA). Introduction section provides General information on the State Public Sector Undertakings including the Accounting Framework, Government’s investment, Role of Government and Legislature relating to the State Public Sector Undertakings. Part I includes Chapter I , which provides an overview of functioning of power sector Public Sector Undertakings (PSUs); Chapter II contains a performance audit relating to Computerised Billing System in Assam Power Distribution Company Limited; and Chapter III contains 5 Compliance Audit Paragraphs emerging from the compliance audit of power sector PSUs. Part II includes Chapter IV , which provides an overview of the functioning of PSUs (other than power sector); Chapter V contains a performance audit relating to functioning of Assam State Transport Corporation; Chapter VI contains 3 Compliance Audit Paragraphs emerging from the compliance audit of PSUs (other than power sector). The draft reports of compliance audit paragraphs, performance audits were sent to the Additional Chief Secretary/Principal Secretary of the Departments concerned with a request to furnish replies within six weeks. The Departments did not furnish replies in respect of two compliance audit paragraphs. Audit however discussed (November 2018) the compliance audit paragraphs as well as the performance audits in the Exit Conference held with the representatives of the Departments and PSUs concerned before finalizing the Audit Report. A synopsis of important findings contained in this Audit Report is presented below. Functioning of Public Sector Undertakings As on 31 March 2018, the State of Assam had 49 PSUs (33 working and 16 non-working PSUs), which employed 36,998 employees. The 33 working PSUs included 30 Companies and 3 Statutory Corporations. The 33 working PSUs registered a turnover of ` 6,638.68 crore for 2017-18 as per their latest finalised accounts as on 30 September 2018. This turnover was equal to 2.34 per cent of Gross State Domestic Product (GSDP) at current prices. The working PSUs earned an aggregate profit of ` 371.71 crore for 2017-18 as per their latest finalised accounts as on 30 September 2018. (Paragraph 2) Power Sector Public Sector Undertakings The power sector PSUs comprised of three Companies (all working) namely , Assam Power Generation Corporation Limited (APGCL), Assam Electricity Grid Corporation Limited (AEGCL) and Assam Power Distribution Company Limited (APDCL). As per the information furnished by the power sector PSUs, the total investment in power sector PSUs as on 31 March 2018 was ` 4,676.12 crore which included the investment of Audit Report (PSUs) for the year ended 31 March 2018 ` 3,584.07 crore of the GoA in the form of equity (` 807.24 crore) and long-term loans (` 2,776.83 crore). The investment of GoA had grown by 101.53 per cent from ` 1,778.47 crore (2013-14) to ` 3,584.07 crore (2017-18). The present value of the equity investment (` 807.24 crore) made by the GoA was equal to ` 1,843.18 crore as on 31 March 2018. The GoA has provided budgetary support of ` 2,701.27 crore during 2017-18 to the power sector PSUs in the form of loans and grants, which was significantly higher than that provided during 2015-16 (by 279 per cent ) and 2016-17 (by 141 per cent ).