Proceedings Presentation
of Country Reports Country: India Privatization
of State Owned Enterprises in India: A
Case Study of India Tourism Development Corporation Limited (ITDC) by
Ganapati Bhat[1] Research
Fellow Research
& Information System for the Non-Aligne and Other Developing Countries (RIS) Introduction The
public sector in India was the creation of the Industrial Policy adopted by
Pandit Jawaharlal Nehru. Immediately after independence, the Government of
India decided to industrialize the country, and took the lead and directly
invested in various sectors. Private sector was not in a position to
mobilize the kind of capital required to industrialize a vast country like
India. Therefore planned development was thought as an alternative to the
problem. India adopted a mixed economic development model, partially based
on the Soviet model of central planning and resource mobilization. Various
sectors were identified for governmental intervention and dominance and also
for total control in some of the sectors. Public sector was a panacia, at
that time, for mass poverty, inequality, regional imbalance, unemployment
and national and social security. This
policy of the Government of India was in the vogue for almost four decades,
unchallenged. However, the manner in which these public sector units are run
became a major concern for the general public. There was large scale
inefficiency, corruption, nepotism, overstaffing and wrong priorities and
delay in decision making became the hallmark of Indian public sector. PSUs
suffered large losses and government was forced to pump in millions of
rupees to keep the PSUs floating. PSUs were considered as a major drain on
the public exchequer and a waste of tax payers money. Government was left
with little money to spend on basic education, primary health and family
welfare. Lack of managerial autonomy, excessive interference, failure of the
government in meeting the obligations in time, long delay in project
implementation, lack of motivation, indiscipline, undue demand of workers,
taking over private sector sick companies are some of the causes for losses
in public sector. The
general feeling is that the control has passed over to a small group of
politicians and bureaucrats who cannot run the PSUs on the commercial
principle, to speak the least. Private sector also developed and showed the
capacity and inclination to venture into the areas where they were
prohibited earlier. This
paper gives a brief overview of the evolution of Disinvestment Policy in
India and the objective of disinvestment as envisaged by the government
policy in para 2. In para 3, 4 and 5 the experience of ITDC is presented. Evolution
of Disinvestment Policy During
the early 1990s, the fiscal deficit increased, external debt was heavy and
there was inflationary pressure. The collapse of the Soviet Union was one of
the most significant psychological blow to the ideological positions of the
hardcore votaries of public sector. All these things culminated into the new
thinking on the concept, utility and purpose of PSUs and new policy on
public sector was announced in 1991. Various
committees like Rangarajan Committee – in April 1993 – recommended
measures to disinvest the holdings of the government in the public sector. In
1996 Government of India appointed a commission under the Chairmanship of
Mr. Ramakrishnan to recommend and advise the government on disinvestment.
This is the most important Commission whose recommendations are generally
accepted by the government. The general recommendations of the Commission
are: (i)
Strategic Group
As
per the policy statements of Government, only four industries viz., (i) arms
and ammunitions and the allied items of defence equipment, defence aircrafts
and warships, (ii) atomic energy, (iii) minerals specified in the schedule
to Atomic Energy (Control of Production and use) Order 1953, and (iv)
railway transport are the exclusive preserve of the public sector. A perusal
of the above list would imply that these industries are important from the
national security angle. Thus, it may be more appropriate to term these four
industries as “Strategic”. The question of disinvestment in such
industries does not arise. The
Disinvestment Commission classified the industry into two categories (a)
Core Group (b) Non-Core Group. (ii)
Core Group
In
sectors which are capital or technology intensive, the most prevalent market
structure may be an oligopoly. With the entry of private sector into these
capital intensive areas, there may be a tendency towards an oligopolistic
market structure. Examples are telecom, power generation and transmission or
petroleum exploration and refining industries. It has been felt that the
presence of the public sector will be necessary for sometime as a
countervailing force and prevent concentration of private economic power. At
the same time a proper regulatory mechanism should be put in place in order
to regulate industries particularly in a non-competitive market for
protecting interests of consumers. In
addition, it may be appropriate to look at basic industries with extensive
and dispersed forward linkages. In some of these sectors, PSUs have a
considerable market presence and the private sector is yet to mature fully.
Hence it may be desirable to continue public sector presence in these basic
industries till such time that the market becomes fully competitive. By
this analysis, such industries may be classified as “core” and public
sector disinvestment be limited to a maximum of 49%. However, it may be
noted that the composition of “core” industries may change over a period
of time as further private investments make the market fully competitive and
PSUs may not be required to play a special role. In addition, it is expected
that a proper regulatory mechanism would be in place to protect the interest
of consumers. The question of disinvesting beyond 49% may be considered at
that time. (iii)
Non-Core Group
Over
the last four decades, private sector investments have grown considerably in
many industries. The presence of a large number of players including matured
private sector players, and the forces of competition in these industries
have made these markets fully contestable. These would ensure that the
consumer’s interests are well protected. It can therefore be concluded
that the initial objectives of the public sector in such industries have
been met. Further investments in such industries will be driven more by
demand – supply imbalances and Public investment may no longer be
necessary. It may be useful to categorize such industries as non-core. The
existing public sector in these industries may not have any unique or
special responsibilities. Therefore, it would be desirable to disinvest upto
74% or more in such cases. Criteria
for Disinvestment
As
a general principle the Commission recommends that where appropriate, PSUs
should be restructured before disinvestment in order to enhance enterprise
and the intrinsic share values. Given the rapidly changing economic
scenario, it is possible that some PSUs may already have initiated such
changes. In some other cases it is possible that the extent of restructuring
required may be minimal. Based
on the above principles and specific analysis of PSUs, the Commission’s
recommendations for disinvestment will be based on the following
considerations: v
Extent
of Restructuring required and the potential for improving share values; v
The
permissible extent of disinvestment with reference to the classification of
industry as core or non-core; v
The
size of the company and the phasing of disinvestment; v
Equity
fund raising programme of the concerned PSU; v
Categorization
of the Industry as High, Medium or Low Potential; v
Alternative
modalities of disinvestment Government
has accepted these recommendations and has set out the agenda for
privatization. The Primary
objectives for privatizing the PSEs are, therefore, as follows: v
Releasing
the large amount of public resources locked up in non-strategic PSEs, for
redeployment in areas that are much higher on the social priority, such as,
basic health, family welfare, primary education and social and essential
infrastructure; v
Stemming
further outflow of these scarce public resources for sustaining the unviable
non-strategic PSEs; v
Reducing
the public debt that is threatening to assume unmanageable proportions; v
Transferring
the commercial risk, to which the taxpayers’ money locked up in the public
sector is exposed, to the private sector wherever the private sector is
willing and able to step in – the money that is deployed in the PSEs is
really public money and is exposed to an entirely avoidable and needless
risk, in most cases; v
Releasing
other tangible and intangible resources, such as, large manpower currently
locked up in managing the PSEs, and their time and energy, for redeployment
in high priority social sectors that are short of such resources; The
other benefits expected to be derived from privatization are: v
Disinvestment
would expose the privatized companies to market discipline, thereby forcing
them to become more efficient and survive on their own financial and
economic strength or cease. They would be able to respond to the market
forces much faster and cater to their business needs in a more professional
manner. It would also facilitate in freeing the PSEs from Government control
and introduction of corporate governance in the privatized companies. v
Disinvestment
would result in wider distribution of wealth through offering of shares of
privatized companies to small investors and employees. v
Disinvestment
would have a beneficial effect on the capital market; the increase in
floating stock would give the market more depth and liquidity, give
investors easier exit options, help in establishing more accurate benchmarks
for valuation and pricing, and facilitate raising of funds by the privatized
companies for their projects or expansion, in future. v
Opening
up the public sector to appropriate private investment would increase
economic activity and have an overall beneficial effect on the economy,
employment and tax revenues in the medium to long term. v
In
many areas, e.g., the telecom sector, the end of public sector monopoly
would bring relief to consumers by way of more choices, and cheaper and
better quality of products and services – as has already started
happening. A
Case Study of Disinvestment Experiences of India Tourism Development
Corporation (ITDC)
With
a view to developing tourism in the country, the Government of India set up
two separate undertakings namely India Tourism Transport Undertaking Ltd.
and India Tourism Corporation Ltd. Subsequently these were
amalgamated in 1966 and India Tourism Development Corporation Ltd. (ITDC)
was formed. The main activities of ITDC were: v
Construction, management and
marketing of hotels and restaurants; v
Provision of shopping
facilities in the form of duty/tax free shops; v
Provision of tourist
transport facilities. ITDC
has 26 hotel chains all over the country and the hotels range from luxury
hotels to economy class. Duty free shops are the lucrative business of ITDC
contributing to 35% to 40% of its profits. The capital structure of ITDC was
Rs.67.5 crores of equity share capital with tangible networth of Rs.1480
crores. ITDC suffered heavy losses from 1999-2001. The Hotel Division of
ITDC made a cumulative loss of Rs. 105 crores. In some of the hotels loss
exceeded sales. Apart from the earlier mentioned reasons for failure of PSUs
the major reasons for the miserable performance of ITDC are: (i) Heavy
Employee Cost: Employee cost in ITDC are significantly higher than its
competitors. This is because of the presence of ITDC in various travel
related operations like tourism and travel which employ significant number
of staff. Secondly implementation of Fifth Pay Commission Report has
increased the salaries of the employees. (ii) Lack of leadership at the top:
ITDC continued to work without a full time Chairman and Managing Director
for last many years. The parent ministry i.e. Ministry of Tourism,
Government of India did not take any decision and appointed suitable person
in this crisis-ridden time period. As a result bureaucrats went on holding
additional charges causing enormous delay in taking any business decision.
(iii) Thirdly the talk of disinvestment was there in the air for a decade.
This was a great demotivating factor for the employees who were working in
the ITDC. There was lots of despondency which lead to lack of proper upkeep
and maintenance of the hotel leading to a bad name for the entire
organization which had a spiraling effect in the form of little occupancy in
the hotels. The hospitality industry was also on the down turn and ITDC
hotels suffered heavy losses. The Government of India decided to disinvest
in ITDC hotels. Disinvestment
Commission recommended thus: “On
the other hand, public sector as a whole does not have to play a role in
providing hospitality services in metro locations where the private sector
has established adequate presence in the market. In non-metro and other
locations where the private sector hotels are yet to establish a presence,
the public sector may be better suited to play the role of a facilitator
rather than direct provider of services. On
these considerations, the Commission recommended that the ITDC should be
suitably restructured in terms of its operations for the purpose of
disinvestment. The restructuring proposed is as follows: 1.
In respect of the hotels situated in prime locations like Delhi and
Bangalore, they may be handed over to established hotel chains through a
competitive bidding process to run on long term structured contract on
lease-cum-management basis. This will mainly take care of the problems of
transfer of property in case of lease hold lands on which the hotels are
situated. It would be ideal if a tripartite agreement between ITDC, trade
unions and the concerned parties is concluded in each case to take care of
the interests of the labour. The terms of contract and procedure for
competitive bidding may be determined by the Standing Empowered Group (SEG;
comprising of Cabinet Secretary, Secretaries of the Ministry of Fiance,
Department of Public Enterprises, Administrative Ministry of the PSU
alongwith the CEO of the concerned PSU) with the help of financial Advisers
and Consultants. The contract could have up-front fee and annual fee with an
in-built indexation for annual revisions. Such fees should be significantly
higher than the current level of profits of each of the hotels. The
realisation on account of the up-front fees and annual fees will accrue to
Government in the form of taxes and dividends. 2.
Other hotels may be demerged into separate corporate identities.
Shares will be issued in these companies to Government and other
shareholders, if any, in exchange for ITDC Shares. The disinvestment in the
new companies will be through sale of 100% Government share holding in them.
The SEG may again carry out this process with the help of Financial Advisers
for proper valuation and terms of competitive bidding. 3.
ITDC may continue to operate the business of duty free shops and
travel and tours business subject to the viability of the operations. This
should be decided by the Board of Directors of the Company.” ITDC’s
hotels strong points were that it was an established name in India. It was
operating a chain of hotels in different locations as compared to some
players in the hotel industry. Secondly, the ITDC owned properties in prime
locations all over the country. Given the scarcity of prime locations this
was a major strength of ITDC. Thirdly, tourism is one industry which was
expected to grow in India. However, ITDC had major weaknesses. They are: (i)
ITDC’s presence in all segments in hotel industry i.e. luxury, budget, and
economy had weakened its image in business circles. Secondly, ITDC had a
huge employee cost. Even if you acknowlege that the hotel industry is a
labour intensive one there was over staffing in ITDC hotels. Thirdly, ITDC
was run as an extension of Tourism Ministry without having its full-fledged
Board of Directors or with full time Chairman and Managing Director. It had
no flexibility of decision making in relation to business decision as well
as decisions relating to employee compensation. Problems
faced while disinvesting ITDC Hotels There
was a broad consensus across the political spectrum that government had no
business to be in hotel industry. However, there was lot of resistance when
actually the Disinvestment Ministry, which was created by the present
government exclusively to disinvest/privatize the state-owned companies
actually started the process of disinvesting ITDC hotels. The management and
the bureaucracy at various levels tried to spoil the sport. Subtle
resistance from civil servants to surrender their control over the milch
cow, severe magnitude of the task of privatization was a major stumbling
block. Compared to these, perhaps it could be said, that there was not much
resistance from labour even though there were some token protests. The
workers had reconciled to the fact that hotels will be privatized. They were
worried about the delay in the process of privatization because it was
hurting them most. Government had assured the workers and the share holders
agreement was well publicized and it contained the clauses for protection of
existing labour. There were other irritants like most of the hotels under
disinvestment were not having title deed i.e. they had no clear ownership of
the land on which the hotels were built. And those hotels which were on
lease hold land were almost on a rent free basis. Most of the hotels had
neither completion certificate nor fire safety certificate which are
mandatory for any private building. There were long standing litigation
about lease of land with the local governments and also with the sister
departments of Government of India. In most of the cases the past records
were almost not in existence. These were cited as the reasons for not going
ahead with disinvestment! Apart from this there were lot of ideological
criticism from various corner on the entire idea of privatizing the public
property. The much quoted “Selling the family’s silver to pay the
butler” was used to defeat the arguments for privatization. It was an
extremely difficult political decision to take. At the same time, the timing
of the disinvestment of hotels came when the world tourism industry was at
its lowest after 9/11. Process
of Disinvestment of ITDC Hotels The
disinvestment department was established by the present government which is
headed by a minister of cabinet rank. It has come out with more detailed
guideline and procedure for disinvestment. Global advisers were selected and
appointed to advise the government on the procedure and evaluation of the
disinvestment. Valuers were appointed to advise the government on value of
each of the properties of ITDC. The hotels were demerged in smaller
companies and most of the hotels were put on auction.
Discounted cash flow method was used to value the property and
government fixed a reserve price based on these valuations. They were sold
as going concerns. As it is mentioned earlier the government decided to sell
off all the hotels except the Ashok Hotel at New Delhi and Ashok Hotel at
Bangalore which was leased to an establish chain of hotels on management
contract. Except one hotel at Delhi which is being converted into an office
and another hotel at Delhi which is kept by the government for security
reasons, the rest of the hotels were put on sale. As on today, 19 hotels are
sold, four more are yet to be sold. The details are as under: INDIA
TOURISM DEVELOPMENT CORPORATION LTD.
Concluding
Remarks A
passionate debate is razing in India at present and no day passes without
vehement criticism against and forceful support for disinvestment in the
media and in Parliament. The economic slow down has shadowed the efforts of
the government which is trying to convince the general public about the
urgency of disinvestment. People have started questioning whether
privatization is a means or an end in itself. The recent scandals in the
private sectors world over has made the public to question the decision
making process in the private sector as well. ITDC disinvestment is a success story of privatization in India. Government is breathing a sigh of relief, that it has got rid off the burden of running the hotels. The change in the policy of the Government of India reflects the change in time world over. From a partially controlled and centrally planned economy, India is slowly emerging into the market economy. The role of the state is being re-defined based on the altered realities. This process is slow and tidy because India is an open society, largest functional democracy in the world. We have fearless press and opinion-making television journalism. Any government in power has to go by the consensus route for economic reforms in India and building consensus is never easy. [1] Deputy Secretary, Research and Information System for the Non-Aligned and Other Developing Countries (RIS), New Delhi.
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