PAC pulls up Railways over gaps in passenger amenities despite promises
2-minute summary
The Public Accounts Committee (PAC), chaired by K.C. Venugopal, has strongly criticized the Ministry of Railways for persistent deficiencies in passenger amenities and sanitation across Indian railway stations. Highlighting the Comptroller and Auditor General (CAG) Report No. 31 of 2026, the committee noted that 96% of surveyed stations (491 out of 512) had deficient or non-functional bio-toilets—a project initially hailed as a game-changer. Furthermore, the audit flagged critical gaps in basic services: water-vending machines were deficient at 29 of 77 stations, Wi-Fi was lacking at 65 of 380 stations, and adequate drinking water taps were unavailable at 188 stations. Additionally, 1,558 platforms across the network remain at rail-level instead of being upgraded to high-level platforms. The PAC pointed out that the Ministry has consistently ignored parliamentary recommendations and performance audits conducted since 2007, relying on paper-based action-taken reports without delivering ground-level improvements. The Ministry of Railways has been directed to submit a comprehensive rectification plan within one month.
Why it's in the news
The Public Accounts Committee (PAC) has pulled up the Ministry of Railways over a CAG report revealing that 96% of surveyed railway stations had deficient bio-toilets, directing the ministry to explain why parliamentary recommendations on passenger amenities have been ignored since 2007.
Background and context
Indian Railways, one of the largest rail networks in the world, has undergone various modernization initiatives to improve passenger experience and environmental sustainability. A key component was the introduction of bio-toilets, developed in collaboration with the Defence Research and Development Organisation (DRDO), to eliminate the discharge of human waste onto tracks. However, independent audits by the Comptroller and Auditor General (CAG) in 2007, 2013, 2016, and the latest 2024-25 report have consistently flagged severe execution and maintenance gaps. The Public Accounts Committee (PAC), a parliamentary standing committee tasked with auditing public expenditure, has repeatedly warned that the executive's 'Action Taken Reports' often mask a lack of real progress on the ground, highlighting systemic issues in administrative accountability and public asset maintenance.
Constitutional provisions
- Article 148 — Provides for an independent office of the Comptroller and Auditor General (CAG) of India, who is the head of the Indian Audit and Accounts Department.
- Article 151 — Mandates that the reports of the CAG relating to the accounts of the Union shall be submitted to the President, who shall cause them to be laid before each House of Parliament.
Committees and reports
- CAG Report No. 31 of 2026 on Passenger Amenities and Sanitation at Stations — Highlighted widespread deficiencies in bio-toilets, drinking water taps, high-level platforms, and Wi-Fi facilities across Indian railway stations.
- Public Accounts Committee (PAC) Reports on Railway Cleanliness and Sanitation — Earlier parliamentary committee reports that flagged similar deficiencies in passenger amenities, which the Ministry of Railways allegedly ignored.
Government schemes
- Amrit Bharat Station Scheme — A scheme launched to modernize railway stations across India, focusing on improving amenities, access, and sanitation.
Previous UPSC questions on this theme
- Mains GS-2 2018 — Why do you think the committees are considered to be useful for parliamentary work? Discuss, in this context, the role of the Estimates Committee.
- Mains GS-2 2018 — "The Comptroller and Auditor General (CAG) has a very vital role to play." Explain how this is reflected in the method and terms of his appointment as well as the range of powers he can exercise.
Mains practice: Despite robust institutional mechanisms like the CAG and the Public Accounts Committee (PAC), executive accountability in public service delivery often remains weak. Analyze this statement in the context of persistent deficiencies in Indian Railways' passenger amenities.
The Public Accounts Committee (PAC) pulling up the Ministry of Railways over persistent deficiencies in basic passenger amenities—despite multiple CAG audits and PAC reports since 2007—highlights a critical gap in India's administrative accountability framework.
**Institutional Gaps in Executive Accountability:**
• **Advisory Nature of Recommendations:** The recommendations of Parliamentary Committees like the PAC are technically advisory. While ministries must submit Action Taken Notes (ATNs), there is no legal mechanism to compel compliance, leading to cosmetic reporting without ground-level changes.
• **Implementation and Maintenance Deficit:** While policies like installing bio-toilets or Wi-Fi are successfully planned and budgeted, post-installation maintenance is severely neglected. The CAG's finding that 96% of surveyed bio-toilets are deficient is a classic case of capital expenditure prioritisation over operational maintenance.
• **Lack of Consequences for Non-compliance:** Despite the PAC flagging issues over nearly two decades (2007, 2013, 2016, and 2026), administrative accountability remains diffused. No strict penal or career-progression disincentives exist for bureaucrats failing to meet these audit benchmarks.
• **Information Asymmetry:** Public awareness of grievance redressal mechanisms remains low (e.g., 22% of passengers being unaware of complaint registers), preventing citizens from acting as decentralized pressure groups.
**Way Forward:**
To bridge this gap, parliamentary recommendations must be backed by mandatory statutory timelines for implementation. Third-party social audits, real-time digital monitoring of amenities (like the RailMadad portal), and linking bureaucratic performance appraisals (APARs) directly to audit compliance are essential to transform paper-based assurances into tangible public service delivery.
Prelims practice questions
Q1. With reference to the Public Accounts Committee (PAC) of the Indian Parliament, consider the following statements: 1. It consists of 22 members, with 15 from the Lok Sabha and 7 from the Rajya Sabha. 2. The chairperson of the committee is appointed by the President of India. 3. By convention, the chairperson of the committee is selected from the opposition party. Which of the statements given above are correct?
- 1 and 2 only
- 2 and 3 only
- 1 and 3 only
- 1, 2 and 3
Answer: C. Statement 1 is correct: The PAC has 22 members (15 LS, 7 RS). Statement 2 is incorrect: The chairperson is appointed by the Speaker of the Lok Sabha, not the President. Statement 3 is correct: Since 1967, a convention has developed whereby the chairperson of the PAC is selected from the opposition.
Q2. With reference to the Comptroller and Auditor General (CAG) of India, consider the following statements: 1. The CAG submits audit reports relating to the accounts of the Union to the President, who causes them to be laid before Parliament. 2. The CAG is eligible for further office under the Government of India or any State Government after retirement. 3. The administrative expenses of the office of the CAG are charged upon the Consolidated Fund of India. Which of the statements given above are correct?
- 1 and 2 only
- 2 and 3 only
- 1 and 3 only
- 1, 2 and 3
Answer: C. Statement 1 is correct under Article 151. Statement 2 is incorrect: Under Article 148(4), the CAG is not eligible for further office under the Government of India or any State Government after retirement. Statement 3 is correct under Article 148(6).
Q3. In the context of eco-friendly initiatives by Indian Railways, how do 'bio-toilets' primarily function to decompose human waste?
- Using high-temperature thermal incineration to reduce waste to ash.
- Using chemical agents that neutralize pathogens and dissolve waste.
- Through aerobic bacteria that convert waste into carbon dioxide and compost.
- Through anaerobic bacteria that convert waste into water and gases like methane and carbon dioxide.
Answer: D. Bio-toilets developed by DRDO and Indian Railways use anaerobic bacteria (which do not require oxygen) to decompose human waste into water, methane, and carbon dioxide, making it eco-friendly and preventing direct discharge onto tracks.
Revision flashcards
- What is the composition of the Public Accounts Committee (PAC)? The PAC consists of 22 members: 15 elected from the Lok Sabha and 7 from the Rajya Sabha. Members are elected annually through the principle of proportional representation.
- Who appoints the Chairperson of the Public Accounts Committee (PAC), and what is the convention regarding this appointment? The Speaker of the Lok Sabha appoints the Chairperson. By convention since 1967, the Chairperson is selected from the Opposition party.
- Which Article of the Indian Constitution mandates the CAG to submit audit reports to the President? Article 151 mandates that the CAG submit reports relating to the accounts of the Union to the President, who lays them before both Houses of Parliament.
- What are the three types of audit reports submitted by the CAG to the Parliament? 1. Audit report on Appropriation Accounts, 2. Audit report on Finance Accounts, and 3. Audit report on Public Undertakings.
- What key technology is used in Indian Railways' bio-toilets to treat human waste? Anaerobic microbial inoculum (developed by DRDO), which uses anaerobic bacteria to break down waste into water, methane, and carbon dioxide without requiring oxygen.