1 Tamil Nadu : Development Imperatives and Reforms Finance Department Government of Tamil Nadu

1

Tamil Nadu : Development Imperatives and

Reforms

Finance DepartmentGovernment of Tamil Nadu

2

MACRO-ECONOMIC PROFILE

SECTORAL COMPOSITION OF THE STATE DOMESTIC PRODUCT

(Source: DOES)

39.926.1

34.0

01020304050

Primary Secondary Tertiary

1970-71

17.833.8

48.4

0102030405060


2000-2001

3


EMPLOYMENT BY MAJOR SECTORS (PERCENT)

(Source: DOES)

53.7

23.0 23.3

0

10

20

30

40

50

60


1987 - 1988 1999-200050.3

23.6 26.1

0

10

20

30

40

50

60


4

MACRO-ECONOMIC PROFILE --AVERAGE ANNUAL GSDP GROWTH TRENDS (1991-1996) at 1980-81

Prices

5.97

4.81

5.845.54

0

1

2

3

4

5

6

7

Primary Secondary Tertiary GSDP

(in p

erce

ntag

e)

5

MACRO-ECONOMIC PROFILE -- AVERAGE ANNUAL GSDP GROWTH TRENDS (1996-2001) at

1993-94 Prices

3.82

4.91

8.01

6.06

0

1

2

3

4

5

6

7

8

9


(in

pe

rce

nta

ge

)

6

MACRO-ECONOMIC PROFILE GSDP GROWTH RATE - 2001-2002 -

% CHANGE OVER PREVIOUS YEAR (at 1993-94 prices)

3.94

5.01

3.06

-3.86

-5

-4

-3

-2

-1

0

1

2

3

4

5

6

Primary Secondary Tertiary GSDP(in

pe

rce

nta

ge

)

7

MACRO-ECONOMIC PROFILE GSDP GROWTH RATE - 2002-2003* - % CHANGE OVER

PREVIOUS YEAR (at 1993-94 prices)

3.39

14.43

8.08

-1.16

-2

0

2

4

6

8

10

12

14

16


(in

pe

rce

nta

ge

)

* In the absence of C.S.O. data for the year 2002-2003, data relating to this year is tentative and to be confirmed.

8

TAMIL NADU: POVERTY ESTIMATES

UPC 1993-94

UPC 1999-2000

1993-94 1999-2000

TN Rural 32.48 20.55 38.5 24.3TN Urban 39.77 22.11 20.8 11.3Total 35.03 21.12All India Rural 37.1 26.8 33 26.3All India Urban 32.9 24.1 17.8 12

* BPL survey data for 1999 show rural poverty higher.

* Latest (2003) BPL asset linked survey results are due.

Poverty Estimates Adjusted HC

* The Deaton and Dreze adjusted estimates show a higher percentage of rural poverty than the official estimates.

* Vulnerability not captured - Rural poverty goes up sharply in drought years.

* High inequality. Tamil Nadu is the highest among major States.

* Official estimates shown urban poverty levels higher than rural poverty.

9

Employment ProfileOverall Profile

Number lakhs

Share % Number lakhs

Share %

Workers (Total) 241.94 43.3 278.12 44.8Main 227.99 40.8 236.8 38.1Marginal 13.95 2.5 41.27 6.6Non workers 316.65 56.7 342.99 55.1Population 558.59 100 621.11 100WPR 43.31 44.78

Classification1. Cultivators 60.4 25 51.1 18.42. Agricultural labourers 87.6 36.2 86.7 31.13. Household, Industry manufacturing etc. 8.7 3.6 14.6 5.34. Other workers 85.2 35.2 125.7 45.2

241.9 100 278.1 100* Huge increase in marginal workers between 1991 and 2001 cause for concern.* Under industry organised manufacturing shows decline household shows increase.* Big increase in "other workers" shows Service sector influence.

1991 Census 2001 Census

10


• An analysis of the sectoral composition of GSDP and sector-

wise employment patterns reveals the following:

– The State economy has undergone a transition from being

primarily agrarian in nature to one led by rapid growth in

services.

– Despite the sharp decline in the contribution of the primary

sector to the overall GSDP, as it well may, the employment in

this sector remains over 50%.

– Nearly 62% percent of the total population is estimated to be

dependent on the primary sector.

– The fact that the bulk of the population depends on the primary

sector with its declining share straightaway points to substantial

poverty.

11


The broad conclusions are:

• Tamil Nadu’s economy has changed from being mainly agrarian to one led by growth in the services sector.

• The employment in the primary sector is high at over 50%.

• The percent of the total population dependent on the primary sector is as high as 62%.

• This high dependency of the population on the primary sector points to substantial rural poverty.

• All estimates of poverty [Planning Commission, Deaton etc.] confirm high level of rural poverty. Highest among Southern States as per official estimates

• Unemployment in Tamil Nadu is the third highest in the country. India average is 7.32%. Tamil Nadu is at 12.05%.

• Income inequality is highest in Tamil Nadu. High rural poverty and high unemployment rates reveal this picture.

12

MACRO-ECONOMIC PROFILE CORE AREAS OF CONCERN

– Plateauing of the performance of the primary sector. Low growth –0.86% in later years 1998-2001, in the recent past, is a cause for serious worry.

– This is attributed to technology stagnation, inadequate diversification, adverse impact on production and productivity due to recurrent drought, lack of new irrigation.

– Manufacturing sector not doing well. Liberalization meant downsizing, correction and new jobs in new activities. Where are the new jobs?

– Absence of adequate employment opportunities amongst the educated sections of the population. Employment Exchange statistics reveal that an estimated 5 million educated youth are on roll seeking employment.

– Continuing poverty and high vulnerability.

– Public sector downsizing adding to woes!

– Stagnation in the other vital indices pertaining to human development. CBR has stopped falling. IMR is not falling rapidly enough.

– Concerns over the state of public finances.

13

DEVELOPMENT TARGETS – TENTH PLAN PERIOD

2002-2007

Ninth Plan Period -- Achievement (%) Tenth Plan Period -- Targets (%)Primary Sector 2.28 3.79

Secondary Sector 4.71 7.12Tertiary Sector 7.41 9.77

Total 5.46 8.00

14

TENTH PLAN (2002-2007) -- SECTORAL OUTLAYS

SECTORAL COMPOSITION OF TENTH PLAN OUTLAY OF Rs. 40,000 crores.

26%

38%

36%Agriculture and AlliedSectorsInfrastructure

Social Services

15

DEVELOPMENT STRATEGY OF THE GOVERNMENT OF TAMIL NADU

1. Double per capita income by 2010.

2. Attack poverty – Bring it down to less than 5%.

3. Provide employment. – Bring unemployment status to 5% by

2010.

4. Revive the primary sector.

5. Impart a new growth momentum to the manufacturing sector.

6. Facilitate the tertiary sector.

7. Human Development.

8. Fiscal consolidation.

9. Governance reforms to facilitate development.

16

STRATEGY FOR POVERTY ALLEVIATION AND REVIVING THE PRIMARY SECTOR

Address the problem of wastelands. Estimates indicate

2 million hectares of cultivable lands are lying waste

either as current fallows or permanent fallows.

Adopt an agri-clinical approach to evaluate each farmer

and his land and see how knowledge and inputs can be

provided to revive cultivation of wastelands.

Address major problem of low irrigation addition. This

involves multiple interventions which are as follows:

Encourage rainwater harvesting to replenish ground water and surface water sources.

Remodel and upgrade surface water sources such as irrigation tanks and village ponds with a basin wide approach.

17


Take up precision farming with low water use

Change over to higher value added crops to facilitate better farm incomes.

Promote irrigation through conventional farm pump sets for large farmers and solar photovoltaic pump sets for small and marginal farmers.

Push for Peninsular River Water grid – Tamil Nadu stands to gain substantially – World Bank to help in Peninsular River Water grid completion in X Plan period.

18


• Examine each and every one of 1.5 million existing farm

pump sets and mount extension programme to improve

farm incomes to counter income shock.

• Develop new technology packages for farm sector.

• Rejuvenate farm extension systems with a convergence

approach.

• Involve women in farming.

• Develop better market intelligence and communications

to farmers.

• Promote capital investment in agriculture. Revamp the

cooperative credit system for better outcomes.

19


• Promote rural industrialisation – New Anna Marumalarchi

Thittam and other non-farm activities in rural areas.

• Promote rural self-employment.

• Facilitate Self Help Groups to help themselves.

• Encourage subsidiary occupations such as animal

husbandry, fisheries.

• Promote Fisheries Mission activities.

• Promote Homestead farming in dry land areas with

strong animal husbandry component.

20

IMPARTING A NEW MOMENTUM TO THE SECONDARY SECTOR

• Focus on manufacturing.

• Tamil Nadu has to emerge as an export-led economy. Focus on special economic zones.

• Recognize contribution of SSI’s. Facilitate their revival and enhance their contribution.

• Undertake second generation reforms in the secondary sector. These include the following: Reduction of transaction time and costs at Ports & Customs.

Interest rate corrections.

Global integration.

Labour reforms and labour productivity.

Simplification of procedures and deregulation.

Provision of quality infrastructure.

Quality Energy Supply.

Technological modernization & upgradation.

Reforms in State level taxation

21


• Our strategy for industrial revival includes:

– Focussing on areas with comparative advantage and

productive strengths such as textiles, leather,

automobiles and ancillary industries, heavy

engineering etc.

– Focus on bio-technology, information technology

enabled services, off shoring.

– Radically improving the physical infrastructure.

– Upgrading quality of human capital and skill

formation.

– Streamlining administrative processes and

regulations so that they do not constrain growth

and proliferation of businesses in the State.

22


• Focus on Quality infrastructure

• The State Government has announced the

constitution of an Infrastructure Development Fund

(Rs. 200 crores).

• New legislation on infrastructure development

through public-private participation on the anvil.

23

IMPARTING A NEW MOMENTUM TO THE TERTIARY SECTOR

• This sector has done well in the recent past.

• Facilitate accelerated growth.

• Focus on ICT, ITES, BPO off shoring

opportunities.

• Promote Tourism growth as a key driver.

• Focus on urban development as growth driver.

24

INITIATIVES FOR HUMAN DEVELOPMENT

• The Budget for 2003-2004 spells outs the concept of a

comprehensive social safety net for the needy and poor with

an outlay of Rs.4232 crores.

• The effort will be to improve the social safety net in real

terms.

• Implement the Hon’ble Chief Minister's 18-point programme

for Women and Child Welfare.

• Mal-Nutrition Free Tamil Nadu entails whole life-cycle

approach to the concept of nutrition security.

• Entrepreneurial Development Programme for Women.

• Provide all support including Medicare for vulnerable groups

namely the aged, severely disabled etc.

25

FINANCIAL MANAGEMENT IN TAMIL NADU

• Tamil Nadu has always had a tradition of prudent

management of its Public Finances.

• Our vital fiscal parameters were easily among the best in

the country. Revenue deficit as percent of revenue receipts

was less than 3% and the Fiscal deficit was 1.6% of GSDP

in 1995-96.

• This fiscal advantage and strong economic fundamentals of

the State were hailed countrywide.

• Tamil Nadu in 1995-1996 availed the largest development

assistance from the World Bank and other multilateral

financial institutions.

• Achieving the development agenda set out by the State

Government was always realisable.

26

PUBLIC FINANCES IN TAMIL NADU

• The downslide in the public finances of the State

Government was rather sudden.

• It was triggered by the implementation of the Sixth

State Pay Commission’s recommendations in 1998 with

effect from 1.1.96. The State Government is still trying

to cope with its impact.

• The implementation of the recommendations of the

Eleventh Finance Commission from the fiscal 2000-2001

dealt a body blow to the State’s finances.

• Resort to borrowings to handle the huge recurring

revenue deficit has led to an increased interest burden.

27

FISCAL TRENDS IN TAMIL NADU

Revenue Deficit 311 1104 1364 3436 4400 3436 * 2739 * 5917# 3933Fiscal Deficit 1255 2445 2122 4777 5382 5076 4739 8105 6944

Revenue Deficit over Total Revenue Receipts 2.93 9.23 10.04 24.09 26.95 18.76 * 14.56 * 28.60 # 17.35

Revenue Deficit over Fiscal Deficit 24.78 45.15 64.28 71.93 81.75 67.69 * 57.80 * 73.00 # 56.64

Fiscal Deficit over Gross State Domestic Product 1.6 2.73 2.05 4.01 4.22 3.7 3.24 5.14 4.07Interest payments over Total Revenue Receipts 12.2 12.34 12.98 14.88 16.6 17.06 18.67 20.3 20.06

1998-99 1999-00 2000-01 2001-02

* Artificial compression due to unpaid bills.

# Take over of TNEB's dues has added to deficit

Accounting year 1995-96 1996-97 1997-98

(Percentage)

2002-03 RE 2003-2004 BE

(Rs. in crores)

28

THE ISSUE OF PENDING LIABILITIES

• States basically have a hard budget

• The ways & means control and overdraft regulations of the Reserve Bank will not permit any substantial carryover.

• Carrying over bills is counter productive – within a short period can lead to a fiscal breakdown.

• Fiscal 2000-2001 end witnessed carryover of about Rs.700 crores. Fiscal 2001-2002 end involved carryover of about Rs. 1900 crores. This included about Rs. 800 crores of local body grants. The payment of this has been dropped as a one time aberration caused by State’s fiscal problems.

• Good news: Fiscal 2002-2003 end involves virtually no carryover. All bills as at end of March 2003 have been settled.

• Data on bills carried over is monitored closely.

• Better still is to see whether there are any Treasury controls over and above normal controls.

• Bills carried over is not a substantive monitorable indicator.

29


Revenue Deficit and Fiscal Deficit Trends

0

2000

4000

6000

8000

10000

Revenue Deficit

Fiscal Deficit

Revenue Deficit 311 1104 1364 3437 4400 3435 2739 5917 3933

Fiscal Deficit 1256 2445 2122 4777 5382 5076 4739 8105 6944

1995-96 1996-97 1997-98 1998-991999-2000

2000-2001

2001-2002

2002-2003

2003-2004

30


Revenue Deficit as Percent of Fiscal Deficit

0

20

40

60

80

100

Revenue Deficit over FiscalDeficit

24.78 45.15 64.28 71.93 81.75 67.69 57.8 73 56.64

1995-96

1996-97

1997-98

1998-99

1999-00

2000-01

2001-02

2002-03

2003-2004

31


0

5

10

15

20

25

30

Revenue Deficit over Total Revenue Receipts

Revenue Deficit over Total Revenue Receipts 2.93 9.23 10.04 24.09 26.95 18.76 14.56 28.6 17.35

1995-96 1996-97 1997-98 1998-99 1999-00 2000-01 2001-02 2002-03 2003-2004

32


Fiscal Deficit over GSDP

0

2

4

6

Fiscal Deficit over GrossState Domestic Product

1.6 2.73 2.05 4.01 4.22 3.7 3.24 5.14 4.07

1995-96

1996-97

1997-98

1998-99

1999-00

2000-01

2001-02

2002-03

2003-2004

33


Interest Payments over Total Revenue Receipts

0

10

20

30

Interest payments over TotalRevenue Receipts

12.2 12.34 12.98 14.88 16.6 17.06 18.67 20.3 20.06

1995-96

1996-97

1997-98

1998-99

1999-00

2000-01

2001-02

2002-03

2003-2004

34

PLAN PERFORMANCE

PERFORMANCE OFANNUAL PLANS

5251.75

7000.00

5750.005700.00

5701.30

4501.00

3719.05

3200.00

4009.90

5750.00

5318.90

5776.52

5413.75

4515.81

4010.633726.37

3282.12

3000

3500

4000

4500

5000

5500

6000

6500

7000

7500

YEAR

(Rup

ees

in la

khs)

Approved outlay Expenditure

35

PLAN PERFORMANCE

PERCAPITA PLAN OUTLAY IN TAMIL NADU DURING PLAN PERIOD

29 53 83 62 126 248630

1110

1825

3971

6440

0

1000

2000

3000

4000

5000

6000

7000

FirstPlan

(1951-56)

ThirdPlan

(1961-66)

FourthPlan

(1969-74)

SixthPlan

(1980-85)

EighthPlan

(1992-97)

TenthPlan

(2002-2007)

(PLAN PERIODS)

(IN R

UPEE

S)

36

MANIFESTATIONS OF THE FISCAL CRISIS

• The manifestations are:

– Tamil Nadu’s planned development outlay has

stagnated.

– Investment on physical infrastructure has stagnated.

– Huge liquidity crunch upto end of 2002-2003.

– Pressure to cut back on social sector outlays.

– Asset maintenance languishing.

– Growth trajectory not encouraging.

37

BLUEPRINT FOR FISCAL REFORMS

• ‘White Paper on Tamil Nadu Government’s Finances’ presented in August

2001.

• A Medium Term Fiscal Reforms Programme has been prepared to correct the

debilating fiscal situation. It seeks to achieve the following goals:

– Rein-in the balooning revenue deficit and fiscal deficit.

– Reprioritizing the outlays in the State Budget towards production oriented and

social welfare sectors.

– Restructuring of public utilities.

– Budgetary Reforms.

– Good Governance.

• The State Government is signing up an MoU with the Government of India on

MTFRP.

• Tamil Nadu has gone in for a “big bang” approach – a whole slew of reforms

have been put through in one go.

• We are currently struck by SARM – Substantive and Accelerated Reform Mode.

38

STRATEGY FOR FISCAL REFORMS

MEASURES FOR REVENUE ENHANCEMENT

1. Tamil Nadu is one of the very few States which has made a significant tax effort in 2001-2003 2. 2001-2002 – Rs. 135.38 crores3. 2002-2003 – Rs.690 crores4. 2003-2004 – Rs.420 crores5. No other State has done such a massive tax effort in recent years.

TAX REFORMS AND REVENUE AUGMENTATION COMMISSION HEADED BY Dr. RAJA J. CHELLIAH CONSTITUTED.

OBJECTIVES: Recommend measures for augmentation of tax and other revenues, streamline tax administration system to ensure better compliance and collection, etc.Recommendations on Sales Tax and VAT acted upon and announced in the Budget Recommendations on the levy of Electricity Tax acted upon and form a part of the Budget 2003-2004. Other reports when received will be examined.

39


MEASURES FOR REVENUE ENHANCEMENT

Sales Tax and VAT

• Tamil Nadu has already moved

towards unified rate system.

• Resale tax- precursor to VAT –

introduced in 2002-03.

• Computerization of Sales Tax system

underway.

• A Samadhan Scheme announced in 2002-03

to unlock ST receipts unavailable on

account of litigations.

• Buoyancy in Sales tax restored. Near 15%

growth in 2002-2003 after 3.7 %

in 2001-2002.

• State ready for VAT.

NON-TAX REVENUES

• Visitor admission fee in hospitals and charging system for equipment introduced.• Legislative amendments for revision of irrigation rates enacted to take effect from 1.7.2003.• Department-wise revision of user charges/ non-tax revenues under examination.• Concept of payment wards introduced• Court fees proposed to be raised.• Charges for both rural water supply and urban water supply revised.

40


MEASURES FOR CONTROLLING EXPENDITURE

EMPLOYEE COMPENSATION

• Facility for encashment of surrender leave withdrawn. Estimated Savings: Rs.343 crores p.a.• Annual Pongal Bonus discontinued. Estimated savings: Rs.245 crores p.a.• Dearness allowance implemented with lag – annual savings Rs.300 crores.• 9632 live posts of Gang Mazdoors in Highways Deptt. and 13,491 live posts of Makkal Nala Paniyalars (People Welfare Workers) in RD Department abolished. Estimated Savings: Rs.100 crores p.a.• Expenditure compression of more than Rs.1000 crores per annum achieved.

RESTRUCTURING PDS

• Tamil Nadu had a total of 161 lakh ration card holders who took subsidized rice.• This has been reduced to 120 lakh BPL cards on 1.8.2002 through a multiple screening system and self-selection. • Changeover in the process of paddy procurement effected. Under the new system, procurement would be undertaken on behalf of Government of India and State’s own rice pool has been given up.• Rationalization of issue price of PDS rice is through. As against the earlier uniform issue price of Rs. 3.50/kg for 20 kg rice, the first 10 kg is now being sold at Rs. 3.50/kg and the subsequent 10kg at Rs. 6/kg.• Food subsidy reduced from Rs.1500 crores in 2001-2002 to Rs.600 crores in 2003-2004. Will contain at Rs.700 crores.

41



RESTRUCTURING PUBLIC SECTOR ENTREPRISES

• The Government has ordered the closure of 7 State PSUs. Winding up is underway. • VRS package for State PSU employees announced. Downsizing taken up.• Disinvestment Policy of the State Government has been finalized. • Policy statement on exit from Manufacturing sector announced.

POWER SECTOR REFORMS

• SERC constituted.• Tariff decisions of SERC accepted and implemented from 16th March 2003.• Agreement with Govt. of India on power sector reforms has been implemented.

RESTRUCTURING OF PUBLIC TRANSPORT SECTOR• Bus fares revised on 1.12.2001.• Decision taken to reduce the number of STUs from 21 to 7.• Competition policy public bus transport system announced.• Public sector bus companies turn around achieved in 2002-2003.

42



STAFF AND EXPENDITURE REVIEW COMMISSION APPOINTED

• The terms of reference include

analysis of staffing pattern and

identification of surplus employees,

formulation of an exit package and

restructuring of employee benefit

scheme.

• The SERC has submitted 10 reports covering 70 Deptts. This is being examined.

• Next step is to match unfilled vacancies With surplus declared by SERC and abolish the posts as a permanent correction.

RESTRUCTURING THE SUBSIDY REGIME

• Free Saree Dhoties scheme

with an annual outlay of

Rs. 100 cr. restructured into a

market-based scheme with an

annual outlay of Rs. 45 cr.

• Marriage assistance scheme

discontinued. Estimated savings:

Rs. 50 cr.

43


Pension Reforms

1. Contributory Pension scheme for new employees from

1.4.2003.

2. Pension entitlements reduced.

3. Commutation entitlement and commutation table

revised.

4. Payment of part of gratuity and encashment of leave

in Small Savings.

No other State has undertaken such major

Pension scheme changes.

44



OUTSTANDING DEBT AND GUARANTEES

• Mechanism for substitution of high-cost

debt from Govt. of India worked out.

• Resetting of outstanding high Cost debt

with HUDCO completed.

• Guarantee Redemption Fund with the

RBI being created.

BUDGETARY REFORMS

• Simplification and demystification of the

the Budgetary process.

• Fiscal Responsibility Bill.

• Improvement in Budget execution and

marksmanship.

• Focus on operational flexibility with fiscal

discipline.

Enforce financial accountability.

45


• Adopt a good governance code to enable reforms to be more palatable.• The State Government has already enacted the Tenders Transparency Act. • A Special Cell called ‘Procurement Procedure Cell’ has already been set up in Finance Department for framing policy and rules for overseeing Public Procurements following a World Bank study.• Draw up an action plan on Procurement Policy. • The State Government will attack corruption at the cutting edge level.• To cut down delays by using power of IT. • New system of contract delivery of services to be introduced.• Adopt Citizen’s Charters.• Examine citizen interfaces and improve service delivery.

46

Thank YouThank You

Documents

1 Tamil Nadu : Development Imperatives and Reforms Finance Department Government of Tamil Nadu