Digital Transformation in Public Financial Management: A Report on Governance, Integrity, and Technology
CA. (Dr.) R. S. Murali
Introduction
Public Financial Management (PFM) serves as the engine room of the modern state. It is the essential operational framework for collecting, allocating, and accounting for public resources, sustaining the social contract between the state and its citizens. When PFM systems fail, the foundation of governance itself erodes. This article addresses the urgent need to transform PFM using information technology, focusing on the digitisation and digital transformation aspects rather than PFM in isolation.
Imperative for Digitisation
The global community currently faces a significant integrity crisis. International Monetary Fund (IMF) models estimate annual global losses of approximately US $4.5 trillion—nearly 5% of world GDP—due to the inefficient use of public funds within public financial systems. Roughly US $1.7 trillion of this loss occurs at the budgetary central government level. Traditional paper-based systems are structurally incapable of mitigating these risks as they lack immutable, verifiable audit trails. Digital PFM is no longer an optional upgrade but a structural requirement for fiscal stability and public trust.
The Landscape of Government Digital Maturity in 2025
As of 2025, digital maturity is defined by "meaningful participation"—the ability of a state to deliver essential services through sophisticated, integrated platforms. The World Bank’s GovTech Maturity Index (GTMI) 2025 shows a global average increase to 0.589, up from 0.552 in 2022. However, a widening gap exists between high-maturity (Group A) and low-maturity (Group D) economies. While advanced states integrate frontier indicators like AI Ethics and Green Tech, developing nations often struggle with legacy system inertia.
Table 1: Digital Maturity Indicators - 2025
| Indicator | Strategic Focus | Global Status 2025 |
|---|---|---|
| AI Ethics & Governance | Ethical utilization of automated decision-making and bias mitigation. | 70% of government bodies are piloting or planning AI use. |
| Green Tech Policies | Integration of environmental sustainability into digital architecture. | High correlation with Group A maturity. |
| Digital Identity (ID) | Seamless authentication using National Digital IDs. | Fundamental to "whole-of-government" approaches. |
| Cloud-Based PFM | Secure cloud enclaves replacing fragmented legacy servers. | Essential for real-time monitoring and data integrity. |
Key Issues in Digital Transformation
Technology is not an unbiased instrument; it engages directly with organizational law and social fairness. Several perspectives must be considered:
- Legal/Administrative Perspective: "Blackbox" algorithms challenge judicial review, which depends on understanding decision-making logic. To alleviate this, authorities should adopt a "duty of candour," elucidating system logic and potential prejudice before legal proceedings.
- Social Perspective: A technological gap leaves nearly 2.6 billion individuals offline, risking new types of alienation. Addressing this requires moving beyond traditional infrastructure to FinTech and Telecom collaborations (MNOs/MVNOs) to reach the underserved.
- Ethical Perspective: The rise of "dark patterns"—manipulative UI/UX designs—erodes trust. A study of 53 Indian applications found 52 used deceptive tactics like interface interference or drip pricing.
Case Studies: Triumphs and Challenges
Global Triumphs:
- Estonia: Uses KSI (Keyless Signature Infrastructure) Blockchain alongside its X-Road infrastructure to create tamper-proof government records for everything from tax filings to health data.
- Singapore: Employs a whole-of-government approach to AI for real-time anomaly detection to identify procurement irregularities.
Global Challenges:
- Moldova: A 2014 bank fraud siphoned 12% of GDP through shell companies, exposing weak digital oversight.
- Toronto (Sidewalk Labs): A smart city project was shelved due to concerns over privacy and the political legitimacy of a private company controlling public policy and data.
India Triumphs:
- UPI: A global leader, processing over 15 billion transactions monthly as of late 2024.
- Kanpur GIS Mapping: tripling annual house tax revenue by using geocoding to identify unrecorded properties.
- Aadhaar-Linked Payments: authenticating Direct Benefit Transfers (DBT), saving over US $1 billion in LPG subsidies alone.
India Challenges:
- Systemic Exclusion: Technical failures in Aadhaar biometric authentication have occasionally denied essential food rations to vulnerable populations.
- Cybersecurity: Aadhaar's centralized database has faced repeated security failures and data exposure risks.
Synthesis of Case Learnings: The 3PT Framework
Future reforms should be guided by a "3PT" framework: Policy, Process, People, and Technology.
- Policy Perspective: Transformation requires comprehensive legislation for e-signatures, data privacy, and blockchain records to eliminate manual loopholes.
- Process Perspective: Process Re-engineering (BPR) must occur before automation; automating manual inefficiencies is counterproductive. A phased, "test-and-learn" rollout using pilots is recommended.
- People Perspective: Success requires a shift toward a data-driven culture and strategies to hire and retain specialist functional and IT talent using market-based salary scales.
- Technology & AI Perspective: Governments should move from reactive monitoring to AI-driven predictive stewardship to detect fiscal stress and default patterns.
The Role of Accounting Professionals
In the era of AI, Human-in-the-Loop (HITL) is the final safeguard against judgmental atrophy. The accountant's role must evolve from bookkeeper to Digital Integrity Officer and Forensic AI Auditor. Professionals are critical for validating AI audit flags, ensuring the "auditability" of complex digital ledgers, and maintaining fiscal accuracy.
Conclusion
Digitisation is a structural necessity for modern governance. Success requires a balanced approach, pairing advanced technologies like Blockchain and AI Auditing with robust compliance mechanisms and predictive, data-driven stewardship.
The 16th Finance Commission and the Future of Local Self-Governments in India
V N Alok
Introduction
Local self-governments, both the Panchayats and the Municipalities, have a long history in India. While Panchayats have ancient roots, Municipalities have governed urban areas since the 17th century. Recognizing their primacy in providing basic services, the Constitution placed ‘local government’ in the State List of the Seventh Schedule. Until the 1993 Constitutional Amendments, the transfer of funds and functions to these bodies was largely ad hoc.
The 73rd and 74th Constitutional Amendments (1993) formally recognized Panchayats and Municipalities as institutions of self-government, inserting Parts IX and IX A into the Constitution. This mandated State Legislatures to devolve functions and finances, creating the need for structured fund transfers as local expenditure typically exceeds generated revenue. Articles 243 I & Y necessitate every State to constitute a State Finance Commission (SFC) every five years to review these financial positions. Furthermore, Article 280 was amended to mandate the Union Finance Commission (UFC) to suggest measures to augment State Consolidated Funds to supplement the resources of these local bodies.
Union Finance Commission and Local Governments in the Past
Since 1993, seven UFCs have provided grants-in-aid to local governments.
- 10th UFC: Recommended Rs. 100 per capita for the rural population (Rs. 4,381 crore) and Rs. 1,000 crore for Municipalities, totaling 1.38% of the Union divisible tax pool.
- 11th & 12th UFCs: Successively increased grants by approximately three times each.
- 13th UFC: Shifted from ad hoc grants to a percentage share of the divisible pool (1.42% for Panchayats; 0.51% for Municipalities).
- 14th UFC: Reverted to ad hoc grants, providing Rs. 2,00,292 crore for Panchayats and Rs. 87,149 crore for Municipalities.
Over time, the importance assigned to urban governance has grown. The share of Municipalities in total local government grants has risen from 19% in the 10th UFC to 45% in the 16th UFC.
Recent Background for the 16th UFC
The 15th UFC (2021-26) proposed Rs. 2.37 lakh crore for Panchayats and Rs. 1.21 lakh crore for Municipalities. It introduced special grants (Rs. 70,000 crore) for primary healthcare due to COVID-19 and performance-linked grants for million-plus cities via a Challenge Fund. Eligibility for these grants required states to set up SFCs, follow their recommendations, and ensure local bodies published audited accounts online.
Transfers to Local Government by the 16th UFC
Under Prof. Arvind Panagariya, the 16th UFC has scaled up allocations to Rs. 4.35 lakh crore for Panchayats and Rs. 3.56 lakh crore for Municipalities for the five-year period starting April 1, 2026.
Key Targeted Municipal Components:
- Urbanisation Premium (Rs. 10,000 crore): Supports planned rural-to-urban transitions by helping states build administrative structures in expanding areas.
- Special Infrastructure Component (Rs. 56.1 thousand crore): Boosts wastewater management systems in 22 cities with populations between 1-4 million.
Both rural and urban grants are split 80:20 (Basic:Performance). Of the basic grant, 50% is tied to sanitation, waste, and water management. The remaining 50% and the entire performance grant are untied, though they cannot be used for salaries or establishment expenses.
Focus of UFCs on Good Accounting Practices
Successive commissions have driven reforms in financial reporting. The 14th UFC made submission of audited accounts a condition for performance grants, and the 15th UFC introduced mandatory online publication of both provisional and audited accounts. The 16th UFC continues these requirements while noting that more work is needed to ensure timely, exact audits.
Implications and Revenue Mobilisation
The 16th UFC has rebalanced basic grants to a 50:50 tied-untied ratio (from the 15th UFC's 60:40), giving local bodies more flexibility to address community-specific needs.
A major shift in the 16th UFC is linking performance grants to growth in Own Source Revenue (OSR) for both Panchayats and Municipalities.
- Panchayats: Expected to increase OSR annually by a minimum of 2.5%.
- Municipalities: Requirement is a 5% annual growth, emphasizing revenue from rent, holdings, and service fees.
Institutional Reforms: SFCs and Census
While UFCs are constitutionally required to base transfers on SFC reports, only six states (Assam, Haryana, Himachal Pradesh, Kerala, Tamil Nadu, and Rajasthan) had constituted their seventh SFC by 2024. The 16th UFC mandates that the Action Taken Report (ATR) must be tabled in the State Legislature within six months of receiving an SFC report to improve compliance.
Additionally, the 16th Census (begun April 2026) has frozen all administrative units until March 31, 2027. The resulting delimitation of constituencies may affect grant disbursal, requiring new arrangements for smooth fund transfers.
Conclusion
The 16th Finance Commission continues the trend of increased allocations coupled with a stronger accountability framework. Success depends on states complying with conditions such as regular local elections, publishing annual accounts, and providing a 20% matching contribution.
Key Future Directions:
- Panchayats: Continuing advancement through the eGram Swaraj portal and the cash-based Model Accounting System (MAS).
- Municipalities: Standardizing practices through the National Municipal Accounts Manual (NMAM) 2.0 in consultation with ICAI.
- Legislative Needs: Successive UFCs have recommended raising the constitutional ceiling on professional tax (currently Rs. 2,500, last revised in 1988) and amending Article 285 to allow property tax on Union government properties.
When The Legislature Erases A Law - Do ‘Omissions’ Count as a ‘Repeal’ Under the General Clauses Act?
An Analysis Through the Lens of Proposed Omission of Section 13(8)(b) of the IGST Act, 2017 by the Finance Bill 2026 CA. Madhav Kumar Jha
Introduction
The Finance Act, 2026, has introduced a significant legal development under the Goods and Services Tax (GST) framework by omitting Section 13(8)(b) of the Integrated Goods and Services Tax Act, 2017 (IGST Act). This section previously governed the place of supply (POS) for intermediary services, setting it as the location of the supplier. This meant that Indian intermediaries serving foreign clients were often taxed domestically, excluding them from being considered an "export of services".
The omission of this provision causes the determination of POS to fall back upon the general provision in Section 13(2) of the IGST Act. Consequently, what was a taxable supply within India transforms into a zero-rated export of services, eligible for refunds of input tax credit or integrated tax paid. While this is a welcome liberalization, it triggers profound retrospective legal questions because the omission lacks a saving clause. This leaves the fate of eight years of pending proceedings, demands, and disputes uncertain.
Liberalisation Without a Safety Net: The Problem Section 13(8)(b) Leaves Behind
Intermediary classification has historically been complex and litigation-prone, depending entirely on the substance of the transaction. Tax authorities frequently applied the "intermediary" tag mechanically, shifting the POS to India and leading to the denial of GST refunds. While the 2026 amendment corrects this structural anomaly, the absence of a saving clause triggers a centuries-old common law doctrine regarding statutory erasure.
The Common Law Foundation and The General Clauses Act, 1897
Under common law, the Doctrine of Statutory Obliteration holds that when a provision is repealed or omitted, it is treated as if it had never been enacted. However, this does not disturb "transactions past and closed" that reached complete finality while the provision was in force.
For matters still in litigation, Section 6 of the General Clauses Act, 1897, provides a statutory saving mechanism. It stipulates that unless a "different intention" appears, a repeal shall not affect previous operations of the enactment, rights acquired, or legal proceedings already instituted. The critical debate is whether the word "omission" used in the Finance Act 2026 falls within the meaning of "repeal" as defined in Section 6.
The Four Pillars of the Debate: Journey Through Case Law
- Rayala Corporation (P) Ltd. v. Director of Enforcement (1969): A Constitution Bench held that Section 6 did not apply to an "omission" effected by a Ministry notification, categorically stating that "repeal" does not encompass "omissions".
- Kolhapur Canesugar Works Ltd. v. Union of India (2000): Another Constitution Bench affirmed that in the absence of a saving clause, all actions must stop where the repeal finds them, and that Section 6 does not automatically apply to the omission of a rule.
- M/S Fibre Boards (P) Ltd. v. CIT Bangalore (2015): A two-judge bench challenged prior precedents, noting that Section 6A of the General Clauses Act uses "repeal" to describe acts accomplished through "express omission". They argued the prior benches were per incuriam for not noticing Section 6A and held that express omission does indeed qualify as a repeal.
- Hikal Limited v. Union of India (Bombay High Court, 2025): This recent GST-related case held that Section 6 only responds to instruments carrying parliamentary authority (Acts or Regulations) and not to omissions made through subordinate legislation like Rules or notifications.
The Legal Landscape Today
The law currently operates on a bifurcation:
- Subordinate Legislation: Pending proceedings generally lapse upon omission unless a saving clause exists, as seen in the Rayala, Kolhapur, and Hikal cases.
- Central Acts: For provisions omitted through a Finance Act (like Section 13(8)(b)), the Fibre Boards analysis suggests Section 6 is attracted, meaning pending proceedings should survive.
However, a constitutional tension remains because the Fibre Boards decision was by a two-judge bench, whereas the cases it effectively overrides were decided by five-judge Constitution Benches.
The Second Side of the Coin
While the omission provides relief for service exporters, it creates new compliance consequences for Indian businesses receiving inbound intermediary services from abroad. Shifting the POS to the recipient’s location under Section 13(2) makes Reverse Charge Mechanism (RCM) liability unambiguous.
Conclusion
The implementation of this bare omission without a saving clause has opened a significant arena of legal uncertainty. Until a Constitution Bench of the Supreme Court definitively determines whether "repeal" includes "express omission" for the purposes of Section 6, stakeholders must navigate an unsettled landscape. A savings clause in the Finance Act 2026 could have resolved this five-decade-old debate and prevented unnecessary litigation.
Gist of Opinions
(Expert Advisory Committee)
The May 2026 issue of The Chartered Accountant features several opinions from the Expert Advisory Committee (EAC) regarding complex accounting treatments under the Indian Accounting Standards (Ind AS) framework.
1. Accounting Treatment under Ind AS 37 for Extended Producer Responsibility (EPR) for End of Life of Vehicles
Facts of the Case: ABC Limited, a listed automotive manufacturer, prepares financial statements under Ind AS. The newly enacted Environment Protection (End-of-Life Vehicles) Rules, 2025 (ELV Rules) mandate that producers fulfill EPR obligations for vehicles introduced in the market by purchasing EPR certificates. This obligation continues even if the producer ceases operations and is linked to vehicles sold in the past 15 to 20 years. While related Environment Compensation (EC) Cess Rules and specific cost caps have not yet been notified, the querist argued that a present legal obligation exists as of April 1, 2025, due to past sales.
Queries:
- What is the "obligating event" under Ind AS 37?
- What is the correct accounting treatment for vehicle sales made from F.Y. 2005-06 (non-transport) and F.Y. 2010-11 (transport)?
- Should cumulative provisioning for past sales be charged to the statement of profit and loss or adjusted against retained earnings?
Committee's Opinion:
- Obligating Event: The Committee determined that the introduction of vehicles in earlier years becomes an obligating event only when the ELV Rules come into effect, creating a mandate for EPR targets on those past sales.
- Reliable Estimate: Per Ind AS 37, except in extremely rare cases, an entity can determine a range of possible outcomes to make a reliable estimate of the obligation, even if some specific Cess Rules are pending notification.
- Recognition: The company must recognize a provision as soon as the ELV Rules take effect for all already introduced vehicles.
- P&L Treatment: Under Ind AS 1 (Presentation of Financial Statements), this provision must be charged to the Statement of Profit and Loss. Adjustment to retained earnings is inappropriate as this does not constitute a change in accounting policy or the correction of a prior-period error.
2. Change in Measurement Technique for Expected Credit Loss (ECL)
Facts and Query: The company proposed transitioning its ECL measurement model for financial assets/trade receivables from an "internal grid matrix" to a "scientific actuarial valuation". The querist viewed this as a fundamental shift in the measurement model and asked if it should be treated as a change in accounting policy requiring retrospective application.
Committee's Opinion: The Committee restricted its view to the transition itself rather than the specific calculations. It noted that for trade receivables, companies typically measure loss allowances at lifetime ECL under Ind AS 109. The Committee evaluated whether this shift qualifies as a change in accounting policy or a change in accounting estimate based on Ind AS 8 (Accounting Policies, Changes in Accounting Estimates and Errors).
3. Classification of an Employee Family Benefit Scheme (EFBS)
Query: Whether a specific EFBS should be classified as a defined benefit scheme under Ind AS framework.
Committee's Opinion: Referring to Ind AS 19 and the Basis for Conclusions (BC 253) of IAS 19, the Committee noted that employee benefits encompass all forms of consideration given in exchange for service, including those provided to an employee's family members.
4. Lease Assessment for Railway Quarters under Ind AS 116
Context and Opinion: The Committee assessed whether specific arrangements for railway quarters/units constitute a lease. It concluded that an identified asset exists since specific units are designated. Furthermore, the "right to substitute" held by the Railways was found to be non-substantive, as it was intended for mutual convenience rather than a practical ability to substitute assets throughout the period. Consequently, the arrangement was assessed as a lease under Ind AS 116.
Notes on EAC Opinions:
- These opinions represent the view of the EAC and do not necessarily reflect the official opinion of the ICAI Council.
- Opinions are based on specific facts provided by the querist and current prevailing laws.
- The complete text of these and other opinions can be accessed at: https://eacopinion.icai.org/.
Bridging Compliance and Capital: Chartered Accountants as Catalysts for MSME Expansion
Dr. Kalpana Kataria & Dr. Abhishek Kumar Singh
Introduction
The Micro, Small and Medium Enterprises (MSME) sector contributes approximately one-third to India’s GDP and is a cornerstone of the “Make in India” initiative. Recognized as one of the four key engines of economic growth alongside Agriculture, Investment, and Exports, the sector has gained momentum through a sustained government focus on formalization. This policy thrust has significantly enhanced credit penetration, enabling enterprises to access formal financial systems. However, maintaining this growth is essential for the vision of Viksit Bharat by 2047, as the ecosystem remains vulnerable to macroeconomic disruptions, limited capital access, and inadequate technological infrastructure. Strengthening this sector is crucial for inclusive development and a self-reliant economy.
Micro, Small and Medium Enterprise (MSME) Overview
The Indian MSME sector is highly diverse, with approximately 94% of enterprises operating informally and remaining unregistered. Nationally, MSMEs produce around 6,000 products, predominantly in manufacturing sectors like food, textiles, chemicals, and machinery. Currently, the sector contributes approximately 30% to the national Gross Value Added (GVA) and accounts for about 35.4% of total manufacturing output. Globally, MSMEs represent 90% of all businesses and 50% of GDP. In India, over 63 million enterprises employ more than 110 million individuals and account for over 40-45% of exports.
Fig. 1: Key Characteristics of MSMEs
- Employment Generation: Second-largest job provider after agriculture, covering diverse demographics.
- Economic Contribution: Substantial contributions to GDP, exports, and industrial output.
- Diversity: Wide variation in size, technology adoption, and service offerings.
Challenges for MSMEs
MSMEs face numerous hurdles, including outdated technologies, difficulties in accessing formal finance, intense market competition, and supply chain inefficiencies. There is a noted mismatch between credit demand and supply due to collateral constraints. While credit guarantee schemes and invoice discounting platforms like TReDS (Trade Receivables Discounting System) have improved access, many enterprises still rely on informal lending. Furthermore, a study of four core functional areas (Marketing, ICT Adoption, Capacity Building, and Cost Optimization) revealed that advanced ICT tools remain underutilized due to high costs and a lack of skilled manpower.
Contributions of Chartered Accountants (CAs)
Chartered Accountants are pivotal as strategic enablers and resilience builders for MSMEs navigating tighter regulatory regimes and accelerated digitalization.
- Financial Stewardship and Access to Capital: CAs establish robust systems for bookkeeping, budget forecasting, and cash-flow management. They enhance creditworthiness by preparing auditable financial statements; notably, MSMEs supported by CAs are reportedly twice as likely to secure institutional loans. They also guide MSMEs in tapping equity markets, such as the NSE Emerge platform.
- Regulatory Compliance and Governance: CAs mitigate the heavy compliance burden (estimated at ₹13 lakh annually per unit) by managing GST filings, income tax, labor laws, and statutory audits. They ensure MSMEs adhere to global accounting standards like IFRS, which enhances investor confidence.
- Strategic Advisory and Value Creation: Beyond compliance, CAs identify cost efficiencies and investment opportunities. They drive digital transformation by facilitating the adoption of tools like the Udyam Portal and AI-enabled accounting.
- Policy Enablers & Collaborative Advocacy: CAs translate government schemes (e.g., Mudra, PMEGP) into practical business strategies. They also influence the ease of doing business by advocating for tax rationalization and simplified documentation.
Case Studies and Strategic Horizons
- Banking and MSME Sector Conclave 2025: Highlighted CAs' role in bridging information asymmetry between small businesses and banks.
- Boutique Firm Transformation: A firm in Ahmedabad moved from compliance provider to strategic partner by delivering interactive Power BI dashboards, resulting in a 40% rise in advisory fees.
- Small-Town Scaling: A two-partner firm in Nagpur used ICAI's alliance model to collaborate with a Mumbai firm, allowing them to service listed entities.
Fig. 3: Strategic Planning for CAs and MSMEs
- Broaden Digital Advisory: Deepen competencies in AI, blockchain, and cybersecurity.
- Facilitate Inclusive Financing: Catalyze access for underserved segments like women-led and rural enterprises.
- Simplify Compliance Pathways: Advocate for regulatory simplification.
- Drive Sustainable Innovation: Support green frameworks and ESG compliance.
- Strengthen Professional Ecosystems: Utilize mentorship clinics and incubation centers.
Conclusion
In a post-pandemic landscape marked by rising competition and supply chain disruptions, MSMEs require a strategic, tech-savvy partnership rather than mere transactional support. CAs provide this through a multidimensional support system. As India aims to become a $35 trillion economy by 2047, the CA-MSME partnership will serve as a foundational pillar, ensuring financial discipline, transparency, and resilience in a competitive global environment.