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On June 1, 2020, the Cabinet Committee on Economic Affairs approved a revision in the definition of Micro, Small and Medium Enterprises (MSMEs).[1] In this blog, we discuss the change in the definition as approved by the Cabinet, and examine some of the common criteria used for classification of MSMEs.
Currently, MSMEs are defined under the Micro, Small and Medium Enterprises Development Act, 2006.[2] The Act classifies them as micro, small and medium enterprises based on: (i) investment in plant and machinery for enterprises engaged in manufacturing or production of goods, and (ii) investment in equipment for enterprises providing services. As per the Cabinet approval, the investment limits will be revised upwards and annual turnover of the enterprise will be used as additional criteria for the classification of MSMEs (Table 1).
Earlier attempts to amend the definition of MSMEs
The central government has sought to revise the definition of MSMEs in the Act on two earlier occasions. The government introduced the MSME Development (Amendment) Bill, 2015 which proposed to increase the investment limits for manufacturing and services MSMEs.[3] This Bill was withdrawn in July 2018 and another Bill was introduced. The MSME Development (Amendment) Bill, 2018 proposed to: (i) use annual turnover as criteria instead of investment for classification of MSMEs, (ii) remove the distinction between manufacturing and services, and (iii) provide the central government with the power to revise the turnover limits, through a notification.[4] The 2018 Bill lapsed with the dissolution of 16th Lok Sabha.
Global trends in criteria for the classification of MSMEs
While India will now be using investment and annual turnover as the criteria to classify MSMEs, globally, the number of employees is the most widely used criteria for classifying MSMEs. The Reserve Bank of India's Expert Committee on MSMEs (2019) cited a study by the International Finance Corporation in 2014 which analysed 267 definitions used by different institutions in 155 countries.[5],[6] According to the study, countries used a combination of criteria to classify MSMEs. 92% of the definitions used the number of employees as one of the criteria. Other frequently used criteria were: (i) turnover (49%), and (ii) value of assets (36%). 11% of the analysed definitions used alternative criteria such as: (i) loan size, (ii) years of experience, and (iii) initial investment.
Evaluation of common criteria used to define MSMEs
Investment: The 2006 Act uses investment in plant, machinery, and equipment to classify MSMEs. Some of the issues with the investment criteria include:
Due to their informal and small scale of operations, firms often do not maintain proper books of accounts and hence find it difficult to get classified as MSMEs as per the current definition.5
The investment-based classification incentivises promoters to keep the investment size restricted to retain the benefits associated with the micro or small category.7
Turnover: The 2018 Bill sought to replace the investment criteria with annual turnover as the sole criteria for the classification of MSMEs. The Standing Committee agreed with the proposal under the Bill to use annual turnover as the criteria instead of investment.7 It observed that this could overcome some of the shortcomings of classification based on investment. While turnover based criteria will also require verification, the Committee noted that the GST Network (GSTN) data can act as a reliable source of information for this purpose. However, it also observed that:7
With turnover as a criterion for classification, corporates may misuse the incentives meant for MSMEs. For instance, there is a possibility that a multi-national company may produce a large quantity of products worth a high turnover and then market it through various subsidiaries registered as Micro or Small enterprise under GSTN.
The turnover of some enterprises may fluctuate depending on their business, which may result in the change of classification of the enterprise during a year.
The Committee noted that there is a wide gap in turnover limits. For instance, an enterprise with a turnover of Rs 6 crore and an enterprise with a turnover of Rs 75 crore (as proposed in 2018 Bill) would both be classified as a small enterprise, which seems incongruous.
The Expert Committee (RBI) also recommended using annual turnover as the criteria for classification instead of investment.5 It observed that turnover based definition would be transparent, progressive, and easier to implement through the GSTN. It also recommended that the power to change the definition of MSMEs should be delegated to the executive as it will help in responding to changing economic scenarios.
Number of employees: The Standing Committee had highlighted that in a labour-intensive country like India, appropriate focus is required on employment generation and MSME sector is the most suitable platform for this.7 It had recommended that the central government should assess the number of persons employed in the MSME sector and also consider employment as a criterion while classifying MSMEs. However, the Expert Committee (RBI) stated that while the employment-based definition is an additional feature preferred in some countries, the definition would pose challenges in implementation.5 According to the Ministry of MSME, employment as a criterion has problems due to: (i) factors such as seasonality and informal nature of engagement, (ii) similar to investment criteria, this would also require physical verification and has associated cost overheads.7
Number of MSMEs
According to the National Sample Survey (2015-16), there were around 6.34 crore MSMEs in the country. The micro sector with 6.3 crore enterprises accounted for more than 99% of the total estimated number of MSMEs. The small and medium sectors accounted for only 0.52% and 0.01% of the estimated number of enterprises, respectively. Another dataset to understand the distribution of MSMEs is Udyog Aadhaar, a unique identity provided by the Unique Identification Authority of India (UIDAI) to MSME enterprises.[8] Udyog Aadhaar registration is based on self-declaration by enterprises. Between September 2015 and June 2020, 98.6 lakh enterprises have registered with UIDAI. According to this dataset, micro, small, and medium enterprises comprise 87.7%, 11.8% and 0.5% of the MSME sector respectively.
Employment in the MSME sector
The MSME sector employed nearly 11.1 crore people in 2015-16. The sector was the second largest employer after the agriculture sector. The highest number of employed persons were engaged in trade activity (35%), followed by persons engaged in manufacturing (32%).
Implications of change in the definition of MSMEs
The change in the definition of MSMEs may result in many enterprises which are currently classified as Small enterprises be reclassified as Micro, and those classified as Medium enterprises be reclassified as Small. Further, there may be many enterprises which are not currently classified as MSMEs, which may fall under the MSME classification as per the new definition. Such enterprises will also now benefit from the schemes related to MSMEs. The Ministry of MSME runs various schemes to provide for: (i) flow of credit to MSMEs, (ii) support for technology upgrade and modernisation, (iii) entrepreneurship and skill development, and (iv) cluster-wise measures to promote capacity-building and empowerment of MSME units. For instance, under the Credit Guarantee Fund Scheme for Micro and Small Enterprises, a credit guarantee cover of up to 75% of the credit is provided to micro and small enterprises.[9] Thus, the re-classification may require a significant increase in budgetary allocation for the MSME sector.
Other announcements related to MSMEs in the aftermath of COVID-19
MSME sector accounted for nearly 33.4% of the total manufacturing output in 2017-18.[10] During the same year, its share in the country’s total exports was around 49%. Between 2015 and 2017, the contribution of the sector in GDP has been around 30%. Due to the national lockdown induced by COVID-19, businesses including MSMEs have been badly hit. To provide immediate relief to the MSME sector, the government announced several measures in May 2020.[11] These include: (i) collateral-free loans for MSMEs with up to Rs 25 crore outstanding and up to Rs 100 crore turnover, (ii) Rs 20,000 crore as subordinate debt for stressed MSMEs, and (iii) Rs 50,000 crore of capital infusion into MSMEs. These measures have also been approved by the Union Cabinet.[12]
For more details on the announcements made under the Aatma Nirbhar Bharat Abhiyan, see here.
[1] “Cabinet approves Upward revision of MSME definition and modalities/ road map for implementing remaining two Packages for MSMEs (a)Rs 20000 crore package for Distressed MSMEs and (b) Rs 50,000 crore equity infusion through Fund of Funds”, Press Information Bureau, Cabinet Committee on Economic Affairs, June 1, 2020.
[2] The Micro, Small and Medium Enterprises Development Act, 2006, https://samadhaan.msme.gov.in/WriteReadData/DocumentFile/MSMED2006act.pdf.
[3] The Micro, Small and Medium Enterprises Development (Amendment) Bill, 2015, https://www.prsindia.org/sites/default/files/bill_files/MSME_bill%2C_2015_0.pdf.
[4] The Micro, Small and Medium Enterprises Development (Amendment) Bill, 2018, https://www.prsindia.org/sites/default/files/bill_files/The%20Micro%2C%20Small%20and%20Medium%20Enterprises%20Development%20%28Amendment%29%20Bill%2C%202018%20Bill%20Text.pdf.
[5] Report of the Expert Committee on Micro, Small and Medium Enterprises, The Reserve Bank of India, July 2019, https://rbidocs.rbi.org.in/rdocs/PublicationReport/Pdfs/MSMES24062019465CF8CB30594AC29A7A010E8A2A034C.PDF.
[6] MSME Country Indicators 2014, International Finance Corporation, December 2014, https://www.smefinanceforum.org/sites/default/files/analysis%20note.pdf.
[7] 294th Report on Micro Small and Medium Enterprises Development (Amendment) Bill 2018, Standing Committee on Industry, Rajya Sabha, December 2018, https://rajyasabha.nic.in/rsnew/Committee_site/Committee_File/ReportFile/17/111/294_2019_3_15.pdf.
[8] Enterprises with Udyog Aadhaar Number, National Portal for Registration of Micro, Small & Medium Enterprises, Ministry of Micro, Small and Medium Enterprises, https://udyogaadhaar.gov.in/UA/Reports/StateBasedReport_R3.aspx.
[9] Credit Guarantee Fund Scheme for Micro and Small Enterprises, Ministry of Micro, Small and Medium Enterprises, http://www.dcmsme.gov.in/schemes/sccrguarn.htm.
[10] Annual Report 2018-19, Ministry of Micro, Small and Medium Enterprises, https://msme.gov.in/sites/default/files/Annualrprt.pdf.
[11] "Finance Minister announce measures for relief and credit support related to businesses, especially MSMEs to support Indian Economy’s fight against COVID-19", Press Information Bureau, Ministry of Finance, May 13, 2020.
[12] "Cabinet approves additional funding of up to Rupees three lakh crore through introduction of Emergency Credit Line Guarantee Scheme (ECLGS)", Press Information Bureau, Ministry of Finance, May 20, 2020.
To mitigate the spread of coronavirus in India, the central government imposed a nation-wide lockdown on March 25, 2020. The lockdown necessitated the suspension of all economic activities, except the ones classified as ‘essential’ from time to time, and the ones that can be carried out from home. As a result, all economic activities which require persons to travel or work outside home, such as manufacturing of non-essential goods and construction, have stopped since then. While this has resulted in a loss of income for many individuals and businesses, the ongoing 40-day lockdown is also going to severely impact the revenue of the central and state governments, primarily the tax revenue that they would have generated from all such economic activities.
This note discusses the possible effect of the lockdown on the revenue of the central and state governments in 2020-21. At this stage, the effect of the pandemic and the lockdown are difficult to estimate. We do not know whether there will be partial restrictions when the current lockdown ends on 3rd May or the possibility of further action during the year. Therefore, this note can be used as a first estimate to compute the impact under various scenarios. For example, a reader who believes that the effect on GDP growth would be different than the IMF’s estimate used below can extrapolate the numbers to fit his assumptions.
The central government and most of the state governments passed their budget for the financial year 2020-21 during February-March 2020, before the lockdown. The central government estimated a 10% growth in the country’s nominal GDP in 2020-21, and more than half of the states estimate their nominal GSDP growth rate in the range of 8%-13%. Due to the unforeseen impact of the lockdown on the economy, the 2020-21 GDP growth rates are expected to be lower than these estimates. As a result, the tax revenue that the central and state governments will be able to generate are expected to be much lower than the budgeted estimates, during the period of lockdown.
Centre’s revenue
Table 1 shows the revenue expected by the central government from various sources in 2020-21. 73% of the revenue (Rs 16.36 lakh crore) is expected to come through taxes. Because of the impact of lockdown, the actual tax revenue realised at the end of the year could be much lower, depending on how much the nominal GDP growth in 2020-21 gets affected. To estimate the impact on tax revenue, we assume that the tax-GDP ratio (i.e. an estimate of the tax generated out of each unit of economic activity) in 2020-21 will remain the same as the budget estimate. This may be a conservative estimate of loss of revenue due to lockdown as many permitted activities such as agriculture, government services and essential services have zero or lower-than-average taxes.
Based on this assumption, a 1%-point fall in the nominal GDP growth rate could decrease centre’s net tax revenue by about Rs 15,000 crore in 2020-21, i.e. 0.7% of its total revenue. The IMF has projected GDP growth for 2020-21 at 1.9%; given the inflation target of 4%, nominal GDP growth could be about 6%. In that scenario where the nominal GDP growth falls by 4% point from 10% to 6% in 2020-21, net tax revenue loss could be about Rs 60,000 crore (2.7% of total revenue). As mentioned above, the tax-GDP ratio would likely be lower than the budget estimate because of the type of activities permitted during the lockdown. This would increase the adverse impact on tax revenue.
There is a further assumption being made above regarding tax-GDP. While GST tends to move with overall GDP, direct taxes would depend on income growth of individuals and profit growth of companies. In a lower GDP growth environment, the effect on these two items may be higher than the deceleration of nominal GDP, bringing down the tax-GDP ratio. Further, customs duties depend on the value of imports, which may have a lower growth. This would, to some extent, be mitigated by the increase in the rate of excise duty on petroleum products.
These computations have been made considering the 2019-20 revised estimate as the base and the 2020-21 budget estimate as being realistic when it was made. However, these numbers may also be lower. For instance, if we extrapolate the net tax revenue growth rate of April 2019 to February 2020 (as released by the Controller General of Accounts) to March 2020, the shortfall is of the order of Rs 1,62,000 crore or 11% of the revised estimate. Thus, the shortfall in tax collections in 2020-21 may be significantly higher.
Table 1: Central government's revenue in 2020-21 (Rs crore)
|
Source |
Revenue |
Share in Total Revenue |
|
Net Tax Revenue |
16,35,909 |
73% |
|
Non-Tax Revenue |
3,85,017 |
17% |
|
Dividends and Profits |
1,55,395 |
6.9% |
|
Capital Receipts |
2,24,967 |
10% |
|
Disinvestment |
2,10,000 |
9.4% |
|
Total Revenue |
22,45,893 |
- |
Note: Capital receipts and total revenue do not include borrowings.
Sources: Union Budget Documents; PRS.
Other than taxes, the centre’s receipts consist of non-tax revenue and capital receipts. A significant part of non-tax revenue is from dividends and profits of public sector enterprises (PSEs) and the RBI (Rs 1.55 lakh crore). If profitability gets impacted, then there could be an adverse impact in these figures. The major chunk of capital receipts is budgeted from disinvestment of PSEs (Rs 2.1 lakh crore). Equity markets have declined sharply over the last month. If equity markets remain volatile, the disinvestment process and consequently the disinvestment receipts could get affected. Note that disinvestment receipts were targeted at Rs 2,10,000 crore, significantly higher than the Rs 50,299 crore raised in 2019-20.
Devolution to States
Like the centre, states also rely on taxes for most of their revenue. As per their 2020-21 budget, on an average, nearly 70% of their revenue is estimated to come from taxes (45% from their own taxes and 25% from their share of centre’s taxes). Lower collections in centre’s taxes because of the lockdown will also impact states’ share in them (also known as devolution). Table 2 shows the share of states in centre’s tax revenue and how they could get impacted by a lower economic growth rate due to the lockdown.
Table 2: Impact of lower economic growth during the lockdown on devolution in 2020-21 (Rs crore)
|
State/ UT |
Share in divisible pool (%) |
Devolution |
Impact of 1% point drop in national nominal GDP growth rate on Devolution |
Revenue impact as a percentage of state’s revenue receipts |
|
Andhra Pradesh |
4.11 |
32,238* |
293 |
NA |
|
Arunachal Pradesh |
1.76 |
13,802 |
125 |
0.61% |
|
Assam |
3.13 |
26,776 |
243 |
0.26% |
|
Bihar |
10.06 |
91,181 |
829 |
0.45% |
|
Chhattisgarh |
3.42 |
26,803 |
244 |
0.29% |
|
Delhi |
- |
- |
- |
- |
|
Goa |
0.39 |
3,027 |
28 |
0.21% |
|
Gujarat |
3.4 |
26,646 |
242 |
0.15% |
|
Haryana |
1.08 |
8,485 |
77 |
0.09% |
|
Himachal Pradesh |
0.8 |
6,266 |
57 |
0.15% |
|
Jammu and Kashmir |
- |
15,200 |
138 |
0.16% |
|
Jharkhand |
3.31 |
25,980 |
236 |
0.31% |
|
Karnataka |
3.65 |
28,591 |
260 |
0.14% |
|
Kerala |
1.94 |
20,935 |
190 |
0.17% |
|
Madhya Pradesh |
7.89 |
61,841* |
562 |
NA |
|
Maharashtra |
6.14 |
48,109 |
437 |
0.13% |
|
Manipur |
0.72 |
5,630 |
51 |
0.28% |
|
Meghalaya |
0.77 |
5,999* |
55 |
NA |
|
Mizoram |
0.51 |
3,968 |
36 |
0.37% |
|
Nagaland |
0.57 |
4,493 |
41 |
0.28% |
|
Odisha |
4.63 |
36,300 |
330 |
0.27% |
|
Punjab |
1.79 |
14,021 |
127 |
0.14% |
|
Rajasthan |
5.98 |
46,886 |
426 |
0.25% |
|
Sikkim |
0.39 |
3,043 |
28 |
0.35% |
|
Tamil Nadu |
4.19 |
32,849 |
299 |
0.14% |
|
Telangana |
2.13 |
16,727 |
152 |
0.11% |
|
Tripura |
0.71 |
5,560 |
51 |
0.30% |
|
Uttar Pradesh |
17.93 |
1,52,863 |
1,389 |
0.33% |
|
Uttarakhand |
1.1 |
8,657 |
79 |
0.19% |
|
West Bengal |
7.52 |
65,835 |
598 |
0.33% |
|
Total |
100 |
8,38,710 |
7,624 |
0.22% |
Note: *Andhra Pradesh, Madhya Pradesh, and Meghalaya passed a vote on account, so their devolution data has been computed as the total devolution to states provided in the union budget multiplied by their share. The devolution data for all other states has been taken from the state budget documents, which may not match with the union budget data in case of a few states. Revenue receipts data not available for Andhra Pradesh, Madhya Pradesh, and Meghalaya. The total for revenue receipt share has been computed excluding these three states.
Sources: Union and State Budget Documents; 15th Finance Commission Report for 2020-21; PRS.
State GST
Out of the 45% revenue coming from state’s own taxes, 35% revenue is estimated to come from three taxes – state GST (19%), sales tax/ VAT (10%), and state excise (6%). State GST is levied on the consumption of most goods and services within the state. While state GST is the largest component of states’ own tax revenue, states do not have the autonomy to change tax rates on their own as the rates are decided by the GST Council. Thus, due to lower GST revenue during the lockdown period, if a state wishes to increase GST rates for the remaining part of the year, it cannot do this on its own.
Table 3 shows the possible impact of a 1%-point decrease in the growth rates of nominal GSDP (GDP of the state) and its impact on state GST revenue in the year 2020-21. These estimates are based on the assumption that the tax-GSDP ratio during the lockdown remains same as estimated for the 2020-21 budget. However, as discussed earlier, the tax-GDP ratio for taxes such as GST is likely to decline. The analysis estimates the minimum impact on states’ GST revenue and does not captures its full extent.
Table 3: Impact of lower GSDP growth during the lockdown on state GST revenue in 2020-21 (Rs crore)
|
State/ UT |
State GST revenue |
Impact of 1% point drop in nominal GSDP growth rate on State GST revenue |
Revenue impact as a percentage of state’s revenue receipts |
|
Andhra Pradesh |
NA |
NA |
NA |
|
Arunachal Pradesh |
324 |
3 |
0.01% |
|
Assam |
13,935 |
128 |
0.14% |
|
Bihar |
20,800 |
187 |
0.10% |
|
Chhattisgarh |
10,701 |
97 |
0.12% |
|
Delhi |
23,800 |
215 |
0.39% |
|
Goa |
2,772 |
26 |
0.19% |
|
Gujarat |
33,050 |
292 |
0.18% |
|
Haryana |
22,350 |
198 |
0.22% |
|
Himachal Pradesh |
3,855 |
35 |
0.09% |
|
Jammu and Kashmir |
6,065 |
55 |
0.06% |
|
Jharkhand |
9,450 |
85 |
0.11% |
|
Karnataka |
47,319 |
445 |
0.25% |
|
Kerala |
32,388 |
289 |
0.25% |
|
Madhya Pradesh |
NA |
NA |
NA |
|
Maharashtra |
1,07,146 |
957 |
0.28% |
|
Manipur |
914 |
8 |
0.05% |
|
Meghalaya |
NA |
NA |
NA |
|
Mizoram |
504 |
4 |
0.04% |
|
Nagaland |
541 |
5 |
0.04% |
|
Odisha |
15,469 |
139 |
0.11% |
|
Punjab |
15,859 |
141 |
0.16% |
|
Rajasthan |
28,250 |
255 |
0.15% |
|
Sikkim |
650 |
5 |
0.07% |
|
Tamil Nadu |
46,196 |
410 |
0.19% |
|
Telangana |
27,600 |
242 |
0.17% |
|
Tripura |
1,311 |
12 |
0.07% |
|
Uttar Pradesh |
55,673 |
525 |
0.12% |
|
Uttarakhand |
5,386 |
49 |
0.12% |
|
West Bengal |
33,153 |
298 |
0.17% |
|
Total |
5,65,461 |
5,104 |
0.17% |
Note: Andhra Pradesh, Madhya Pradesh, and Meghalaya passed a vote on account, so data not available. 2020-21 GSDP data for Delhi was not available, so the GSDP growth rate in 2020-21 has been assumed to be the same as the growth rate in 2019-20 (10.5%).
Sources: State Budget Documents; PRS.
Sales tax/ VAT and State Excise
These two taxes have been major sources of revenue for states, estimated to contribute 16% of states’ revenue in 2020-21. With implementation of GST, states can now levy sales tax only on petroleum products (petrol, diesel, crude oil, natural gas, and aviation turbine fuel) and alcohol for human consumption. However, the lockdown has severely impacted the consumption, and thus sale, of all of these goods as most of the transportation is prohibited and businesses selling alcohol are also shut. As a result, the revenue coming from these taxes is likely to see a much larger impact as compared to the other taxes.
In addition, alcohol is also subject to state excise. Table 4 shows the average monthly impact of the lockdown on revenue from state excise. That is, this estimates the loss of revenue for each month of lockdown, with the assumption that there is no production of alcohol for human consumption during such periods.
Table 4: Average monthly impact of the lockdown on state excise revenue in 2020-21 (Rs crore)
|
State/ UT |
State excise revenue |
Average monthly impact on state excise revenue |
Monthly revenue impact as a percentage of state’s revenue receipts |
|
Andhra Pradesh |
NA |
NA |
NA |
|
Arunachal Pradesh |
157 |
13 |
0.06% |
|
Assam |
1,750 |
146 |
0.16% |
|
Bihar |
0 |
0 |
0.00% |
|
Chhattisgarh |
5,200 |
433 |
0.52% |
|
Delhi |
6,300 |
525 |
0.95% |
|
Goa |
548 |
46 |
0.34% |
|
Gujarat |
144 |
12 |
0.01% |
|
Haryana |
7,500 |
625 |
0.69% |
|
Himachal Pradesh |
1,788 |
149 |
0.39% |
|
Jammu and Kashmir |
1,450 |
121 |
0.14% |
|
Jharkhand |
2,301 |
192 |
0.25% |
|
Karnataka |
22,700 |
1,892 |
1.05% |
|
Kerala |
2,801 |
233 |
0.20% |
|
Madhya Pradesh |
NA |
NA |
NA |
|
Maharashtra |
19,225 |
1,602 |
0.46% |
|
Manipur |
15 |
1 |
0.01% |
|
Meghalaya |
NA |
NA |
NA |
|
Mizoram |
1 |
0 |
0.00% |
|
Nagaland |
6 |
0 |
0.00% |
|
Odisha |
5,250 |
438 |
0.35% |
|
Punjab |
6,250 |
521 |
0.59% |
|
Rajasthan |
12,500 |
1,042 |
0.60% |
|
Sikkim |
248 |
21 |
0.26% |
|
Tamil Nadu |
8,134 |
678 |
0.31% |
|
Telangana |
16,000 |
1,333 |
0.93% |
|
Tripura |
266 |
22 |
0.13% |
|
Uttar Pradesh |
37,500 |
3,125 |
0.74% |
|
Uttarakhand |
3,400 |
283 |
0.67% |
|
West Bengal |
12,732 |
1,061 |
0.59% |
|
Total |
1,74,164 |
14,514 |
0.48% |
Note: Andhra Pradesh, Madhya Pradesh, and Meghalaya passed a vote on account, so data not available.
Sources: State Budget Documents; PRS.
Sales tax/VAT is collected from sale of alcohol and petroleum products. We do not have any data on the reduction of sale of these items -- news reports indicating sale of alcohol in some states while petroleum products would be used by providers of essential services. For estimating the impact on sales tax/ VAT revenue, we have assumed the following three scenarios: (i) 40% shortfall in tax collections, (ii) 60% shortfall in tax collections, and (iii) 80% shortfall in tax collections in any month of lockdown. Table 5 shows the average monthly impact of the lockdown on sales tax/ VAT revenue under the three scenarios.
Table 5: Impact of lockdown on sales tax/ VAT revenue in 2020-21 (Rs crore)
|
State/ UT |
Loss of sales tax/ VAT revenue per lockdown month |
As a percentage of state’s revenue receipts |
||||
|
40% shortfall |
60% shortfall |
80% shortfall |
40% shortfall |
60% shortfall |
80% shortfall |
|
|
Andhra Pradesh |
NA |
NA |
NA |
NA |
NA |
NA |
|
Arunachal Pradesh |
9 |
14 |
18 |
0.04% |
0.07% |
0.09% |
|
Assam |
178 |
267 |
356 |
0.19% |
0.29% |
0.39% |
|
Bihar |
194 |
292 |
389 |
0.11% |
0.16% |
0.21% |
|
Chhattisgarh |
138 |
207 |
276 |
0.16% |
0.25% |
0.33% |
|
Delhi |
207 |
310 |
413 |
0.37% |
0.56% |
0.75% |
|
Goa |
41 |
62 |
83 |
0.31% |
0.47% |
0.62% |
|
Gujarat |
774 |
1,162 |
1,549 |
0.48% |
0.72% |
0.95% |
|
Haryana |
357 |
535 |
713 |
0.40% |
0.59% |
0.79% |
|
Himachal Pradesh |
56 |
84 |
112 |
0.15% |
0.22% |
0.29% |
|
Jammu and Kashmir |
50 |
75 |
100 |
0.06% |
0.09% |
0.11% |
|
Jharkhand |
195 |
293 |
391 |
0.26% |
0.39% |
0.52% |
|
Karnataka |
593 |
889 |
1,186 |
0.33% |
0.49% |
0.66% |
|
Kerala |
775 |
1,163 |
1,551 |
0.68% |
1.01% |
1.35% |
|
Madhya Pradesh |
NA |
NA |
NA |
NA |
NA |
NA |
|
Maharashtra |
1,333 |
2,000 |
2,667 |
0.38% |
0.58% |
0.77% |
|
Manipur |
9 |
14 |
18 |
0.05% |
0.08% |
0.10% |
|
Meghalaya |
NA |
NA |
NA |
NA |
NA |
NA |
|
Mizoram |
3 |
4 |
5 |
0.03% |
0.04% |
0.06% |
|
Nagaland |
9 |
13 |
18 |
0.06% |
0.09% |
0.12% |
|
Odisha |
292 |
438 |
583 |
0.23% |
0.35% |
0.47% |
|
Punjab |
186 |
279 |
372 |
0.21% |
0.32% |
0.42% |
|
Rajasthan |
700 |
1,050 |
1,400 |
0.40% |
0.61% |
0.81% |
|
Sikkim |
7 |
11 |
15 |
0.09% |
0.14% |
0.18% |
|
Tamil Nadu |
1,868 |
2,802 |
3,736 |
0.85% |
1.28% |
1.70% |
|
Telangana |
880 |
1,320 |
1,760 |
0.61% |
0.92% |
1.23% |
|
Tripura |
15 |
22 |
30 |
0.09% |
0.13% |
0.17% |
|
Uttar Pradesh |
943 |
1,414 |
1,886 |
0.22% |
0.33% |
0.45% |
|
Uttarakhand |
66 |
98 |
131 |
0.15% |
0.23% |
0.31% |
|
West Bengal |
251 |
377 |
503 |
0.14% |
0.21% |
0.28% |
|
Total |
10,130 |
15,195 |
20,260 |
0.34% |
0.51% |
0.67% |
Note: Andhra Pradesh, Madhya Pradesh, and Meghalaya passed a vote on account, so data not available.
Sources: State Budget Documents; PRS.
How much can GST compensation help?
The shortfall in state GST revenue could get offset by the GST compensation provided to states by the central government. The GST (Compensation to States) Act, 2017, requires the central government to provide compensation to states for loss of revenue arising due to GST implementation until 2022. For this purpose, the Act guarantees a 14% annual growth rate in state GST revenue, which is much higher than the growth likely in the year 2020-21. As a result, the central government would be required to provide states a compensation equivalent to the shortfall in growth in their state GST revenue, in comparison to the 14% growth.
However, it is likely that there may not be sufficient funds to provide compensation to states in 2020-21. Compensation to states is given out of the GST Compensation Fund, which consists of collections of a cess levied specifically to generate funds for this purpose. The cess is levied on coal, tobacco and its products, pan masala, automobiles, and aerated drinks. The cess collections may see a shortfall as the sale of many of these goods is likely to be affected this year. Note that domestic automobile sales declined 18% in 2019-20 over the previous year while coal production stayed constant.
In the 2020-21 budget, the central government estimated to provide Rs 1,35,368 crore as compensation to states, which is close to the total compensation estimated by states in their budgets. However, due to the lockdown, the cess collections financing these grants are estimated to decrease, whereas the compensation requirement of states is estimated to increase due to lower GST collections. While there is a risk that any incremental requirement may not be met, states’ revenue can see a much larger impact if cess collections are not even sufficient to meet their existing amounts as per the 2020-21 budgets (Table 6). States, on an average, depend on GST compensation grants for 4.4% of their revenue in 2020-21. However, states such as Gujarat, Punjab, and Delhi expect almost 14-15% of their revenue in 2020-21 to come in the form of GST compensation grants.
Table 6: GST compensation grants estimated by states in 2020-21 (Rs crore)
|
State/ UT |
GST Compensation |
GST compensation as a percentage of state’s revenue receipts |
|
Andhra Pradesh |
NA |
NA |
|
Arunachal Pradesh |
0 |
0.0% |
|
Assam |
1,000 |
1.1% |
|
Bihar |
3,500 |
1.9% |
|
Chhattisgarh |
2,938 |
3.5% |
|
Delhi |
7,800 |
14.1% |
|
Goa |
1,358 |
10.2% |
|
Gujarat |
22,510 |
13.9% |
|
Haryana |
7,000 |
7.8% |
|
Himachal Pradesh |
3,338 |
8.7% |
|
Jammu and Kashmir |
3,177 |
3.6% |
|
Jharkhand |
1,568 |
2.1% |
|
Karnataka |
16,116 |
9.0% |
|
Kerala |
0 |
0.0% |
|
Madhya Pradesh |
NA |
NA |
|
Maharashtra |
10,000 |
2.9% |
|
Manipur |
0 |
0.0% |
|
Meghalaya |
NA |
NA |
|
Mizoram |
0 |
0.0% |
|
Nagaland |
0 |
0.0% |
|
Odisha |
6,200 |
5.0% |
|
Punjab |
12,975 |
14.7% |
|
Rajasthan |
4,800 |
2.8% |
|
Sikkim |
0 |
0.0% |
|
Tamil Nadu |
10,300 |
4.7% |
|
Telangana |
0 |
0.0% |
|
Tripura |
208 |
1.2% |
|
Uttar Pradesh |
7,608 |
1.8% |
|
Uttarakhand |
3,571 |
8.4% |
|
West Bengal |
4,928 |
2.7% |
|
Total |
1,30,894 |
4.4% |
Note: Andhra Pradesh, Madhya Pradesh, and Meghalaya passed a vote on account, so data not available.
Sources: State Budget Documents; PRS.
A similar scenario played out last year when due to the economic slowdown, the cess collections were not sufficient to meet states’ compensation requirements. As a result, states have received the GST compensation only till November 2019. Note that the GST (Compensation to States) Act, 2017 provides that the GST Council can recommend other funding mechanisms for the Compensation Fund. For instance, this can be done when there is a shortfall of money in the Fund for providing compensation to states.
Impact on State Finances
In light of such severe stress on the revenue side, states will have to either cut their budgeted expenditure or increase their borrowings to meet the budget targets. Note that because of the coronavirus pandemic and the lockdown, states are also making unforeseen expenditure in the health sector and for providing relief from the lockdown. As a result, many states have already started working on the former by drawing up plans to defer or cut their planned expenditure, or divert funds for planned expenditure towards these immediate requirements. With relatively less flexibility on the side of revenue expenditure, capital expenditure could see a larger cut in many states. For instance, revenue expenditure includes expenditure committed towards payment of interest, salaries, and pension. On average, this committed expenditure uses up 50% of states’ revenue. However, some states have already gone ahead and deferred or cut the expenditure towards payment of salaries. Also, with private consumption and investment expected to remain sluggish, reduction of government expenditure could lead to a further decline in GDP.
The other option for states is to increase their borrowings. However, states’ borrowings are limited by their FRBM laws at 3% of their GSDP (with a further 0.5% of GSDP if they fulfil some conditions). States also need the consent of the central government to borrow money. While most states had already budgeted their fiscal deficit for 2020-21 near the upper limit, it seems some states do have some fiscal space to borrow more (Table 7). However, with GSDP expected to take a hit because of the lockdown, fiscal deficit as a percentage of GSDP for all states could be higher than budgeted targets, even if they do not make any additional borrowings.
Table 7: Fiscal deficit estimates for 2020-21 as a percentage of GSDP
|
State/ UT |
2019-20 (Revised) |
2020-21 (Budgeted) |
|
Andhra Pradesh |
NA |
NA |
|
Arunachal Pradesh |
3.1% |
2.4% |
|
Assam |
5.7% |
2.3% |
|
Bihar |
9.5% |
3.0% |
|
Chhattisgarh |
6.4% |
3.2% |
|
Delhi |
-0.1% |
0.5% |
|
Goa |
4.7% |
5.0% |
|
Gujarat |
1.6% |
1.8% |
|
Haryana |
2.8% |
2.7% |
|
Himachal Pradesh |
6.4% |
4.0% |
|
Jammu and Kashmir |
NA |
5.0% |
|
Jharkhand |
2.3% |
2.1% |
|
Karnataka |
2.3% |
2.6% |
|
Kerala |
3.0% |
3.0% |
|
Madhya Pradesh |
NA |
NA |
|
Maharashtra |
2.7% |
1.7% |
|
Manipur |
8.9% |
4.1% |
|
Meghalaya |
NA |
NA |
|
Mizoram |
8.3% |
1.7% |
|
Nagaland |
9.0% |
4.8% |
|
Odisha |
3.4% |
3.0% |
|
Punjab |
3.0% |
2.9% |
|
Rajasthan |
3.2% |
3.0% |
|
Sikkim |
4.3% |
3.0% |
|
Tamil Nadu |
3.0% |
2.8% |
|
Telangana |
2.3% |
3.0% |
|
Tripura |
6.2% |
3.5% |
|
Uttar Pradesh |
3.0% |
3.0% |
|
Uttarakhand |
2.5% |
2.6% |
|
West Bengal |
2.6% |
2.2% |
|
Centre |
3.8% |
3.5% |
Note: Andhra Pradesh, Madhya Pradesh, and Meghalaya passed a vote on account, so data not available.
Sources: Union and State Budget Documents; PRS.
