Report of the 14th Finance Commission

The Commission shall make recommendations regarding the sharing of Union

taxes, principles governing Grant-in-aid to States and transfer of resources to local.

Terms of Reference and the matters that shall be taken into consideration by
the Fourteenth Finance Commission in making the recommendations are as under:

 the distribution between the Union and the States of the net proceeds of
taxes which are to be, or may be, divided between them under Chapter I,
Part XII of the Constitution and the allocation between the States of the
respective shares of such proceeds;
 the principles which should govern the grants-in-aid of the revenues of the
States out of the Consolidated Fund of India and the sums to be paid to the
States which are in need of assistance by way of grants-in-aid of their
revenues under article 275 of the Constitution for purposes other than
those specified in the provisos to clause (1) of that article, and
 the measures needed to augment the Consolidated Fund of a State to
supplement the resources of the Panchayats and Municipalities in the State
on the basis of the recommendations made by the Finance Commission of
the State.

Vertical Balance
 The approach to vertical devolution was governed by three factors; namely
 the spirit of constitutional provisions;
 the concerns about the fiscal space expressed by the states and the
union; and
 the need for clarity on the respective functional and expenditure
responsibilities of the union and states.
As already mentioned, the 14th Finance Commission took the view that there
was no scope to reduce the fiscal space available for discharging its
responsibilities in the Union List of the Constitution. Against this background,
the 14th Finance Commission took a consolidated view of the aggregate transfers
from the union and states while recognizing that the tax devolution should be
the primary route of transfer of resources to states since it is formula-based
and, thus, conducive to sound fiscal federalism. It was also recognized that to
the extent the formula based transfers do not meet the needs of the specific
states, they need to be supplemented by grants-in-aid on an assured basis and
in a fair manner.

 The 14th Finance Commission has factored in four important considerations in

arriving at the level of devolution:
 states are not entitled to the growing share of cess and surcharges in the
revenues of the union government, and the Constitution was not amended
despite earlier recommendations of the past finance commissions in this
regard;
  the importance of increasing the share of tax devolution in total
transfers;
 an aggregate view of the revenue expenditure needs of states without the
plan and non-plan distinction; and
 the space available for the union government. In brief, the tax devolution of
42% recommended by the 14 th Finance Commission when compared with
32% recommended by the previous Finance Commission needs to be seen in
the light of the changes mentioned above.

Horizontal Balance
 In regard to horizontal balance, the 14th Finance Commission was guided by the
broad criteria of the earlier finance commissions, namely,
 population and income to reflect needs;
 area and infrastructure distance to indicate, cost disabilities; and
 fiscal indicators relating to tax and fiscal discipline to assess resources.
There are three notable features of the criteria used by the 14 th Finance
Commission. In recent years, the TOR of the finance commission required use
of the population in 1971, whenever population was utilized as a factor for
determination of devolution of taxes and grants-in-aid. The TOR of the 14 th
Finance Commission, however, added that demographic changes that have
taken place subsequent to 1971 could also be considered.

Grants-in-Aid
 Previous Finance Commissions have enunciated four main considerations
governing grants-in-aid to the states;
 to meet their residuary budgetary needs after taking the devolution of taxes
into account;
 to facilitate the upgradation of standards of administrative and social
services, and
 to ensure minimum expenditures on such services across the country.
Grants-in-aid have been recommended in the past to meet the special needs,
burdens and obligations of the states and also to address the specific sectors
of national importance.
 A separate grant was given to the states for maintaining the ecology and
environment for promoting sustainable development. They have generally
been recommended for augmenting expenditures, rather than for
substituting what a state government was already spending.

 The 14th Finance Commission departed, to some extent, from previous practice,
and adopted four principles: First, the devolution of taxes from the divisible
pool should, as in the past; be based upon an appropriate formula which
should, to a large extent, offset revenue and cost disabilities. Second, the
assessment of expenditures should build in additional expenditures in the case
of those states with a per capita expenditure significantly below the all-state
average. The assessment of revenues should build in the scope for additional
revenue mobilization based on the current tax-GSDP ratio relative to the all-
state average. This will enable fiscally-disadvantaged states to upgrade their
 services without earmarking or specifying sectors. Third, if the assessed
expenditure need of a state, after taking into account the enabling resources for
augmentation, exceeds the sum of revenue capacity and devolved taxes, then
the state concerned will be eligible to receive a general purpose grant-in-aid to
fill the gap. Fourth, grants-in-aid for state specific projects or schemes will not
be considered, as these are best identified, prioritized and financed by the
respective states. Fifth, promotion of sustainable development is mainstreamed
by taking the area under forest cover as a factor in tax devolution itself.

 The Commission shall review the state of the finances, deficit and debt
levels of the Union and the States, keeping in view, in particular, the fiscal
consolidation roadmap recommended by the Thirteenth Finance Commission,
and suggest measures for maintaining a stable and sustainable fiscal
environment consistent with equitable growth including suggestions to amend
the Fiscal Responsibility Budget Management Acts currently in force and while
doing so, the Commission may consider the effect of the receipts and
expenditure in the form of grants for creation of capital assets on the deficits;
and the Commission shall also consider the recommend incentives and
disincentives for States for observing the obligations laid down in the Fiscal
Responsibility Budget Management Acts.

 In making its recommendations, the Commission shall have regard, among

other considerations, to-
 the resources of the Central Government for five years commencing on
1st April 2015, on the basis of levels of taxation and non-tax revenues likely
to be reached during 2014-2015;
 the demands on the resources of the Central Government, in particular, on
account of the expenditure on civil administration, defence, internal and
border security, debt-servicing and other committed expenditure and
liabilities;
 the resources of the State Governments and the demands on such resources
under different heads, including the impact of debt levels on resource
availability in debt stressed states, for the five years commencing on 1 st April
2015, on the basis of levels of taxation and non-tax revenues likely to be
reached during 2014-2015;
 the objective of not only balancing the receipts and expenditure on revenue
account of all the States and the Union, but also generating surpluses for
capital investment;
 the taxation efforts of the Central Government and each State Government
and the potential for additional resource mobilization to improve the tax-
Gross Domestic Product ratio in the case of the Union and tax-Gross State
Domestic Product ratio in the case of the States;
 the level of subsidies that are required, having regard to the need for
sustainable and inclusive growth, and equitable sharing of subsidies
between the Central Government and State Governments;
 the expenditure on the non-salary component of maintenance and upkeep of
capital assets and the non-wage related maintenance expenditure on plan
 schemes to be completed by 31st March, 2015 and the norms on the basis of
which specific amounts are recommended for the maintenance of the capital
assets and the manner of monitoring such expenditure;
 the need for insulating the pricing of public utility services like drinking
water, irrigation, power and public transport from policy fluctuations
through statutory provisions;
 the need for making the public sector enterprises competitive and market
oriented; listing and disinvestment; and relinquishing of non-priority
enterprises;
 the need to balance management of ecology, environment and climate
change consistent with sustainable economic development; and
 the impact of the proposed Goods and Services Tax on the finances of Centre
and States and the mechanism for compensation in case of any revenue
loss.

 In making its recommendations on various matters, the Commission shall

generally take the base of population figures as of 1971 in all cases where
population is a factor for determination of devolution of taxes and duties and
grants-in-aid; however, the Commission may also take into account the
demographic changes that have taken place subsequent to 1971.

 The Commission may review the present Public Expenditure Management

systems in place including the budgeting and accounting standards and
practices; the existing system of classification of receipts and expenditure;
linking outlays to outputs and outcomes; best practices within the country and
internationally, and make appropriate recommendations thereon.

 The Commission may review the present arrangements as regards financing of

Disaster Management with reference to the funds constituted under the
Disaster Management Act, 2005 (53 of 2005), and make appropriate
recommendations thereon.

 The Commission shall indicate the basis on which it has arrived at its findings
and make available the State-wise estimates of receipts and expenditure.

 The Commission shall make its report available by the 31 st October, 2014,
covering a period of five years commencing on the 1st April, 2015.

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