14



CHAPTER 14

ENTITLEMENT FUNCTIONS


 (A) PAY

14.1 Entitlement functions embrace regulation and authorization of pay and allowances of Gazetted Officers, reporting and issue of payment authorities of pension and gratuity to retired Government servants, reporting and issue of payment authorities of family pension and maintenance of provident fund accounts of officers and employees as per the respective laws, regulations and orders. These functions are exercised by the Comptroller and Auditor General for certain historical reasons and they do not strictly fall within the sphere of his prescribed duties. In the Centre , these functions stand fully transferred to the respective Ministries/Departments after departmentalisation of accounts in 1976-77 except in relation to the Indian Audit and Accounts Department. Similar is the position in the capital stations of the States e.g. Andhra Pradesh, West Bengal, Gujarat, Tamil Nadu and Maharashtra, where Pay and Accounts Officers are working under the Governments concerned. Some of the State Governments concerned. Some of the State Governments have taken over fully or partly these functions. Thus the procedure described in the subsequent paragraphs apply only where the entitlement functions continue to be with the Comptroller and Auditor General.

Pay and Allowances of Gazetted Officers

14.2 All payments are recorded in a salary register in which one or two folios are allotted to each Government servant. The main features of this register are two sets of cages in one of which are entered the emoluments to which the Government servant is entitled, as varied from time to time by each order published in the Government Gazette or otherwise communicated, and in the other are recorded the amounts drawn by him month by month as a check on any second claim. There are subsidiary cages for the record of:-
 (a) orders authorizing each alteration of emoluments;
(b) particulars of the various posts held, or of any leave granted;
 (c) explanations of (i) peculiar payments  which would include any payments not immediately identifiable reference to the entry in the emoluments column and (ii) broken periods for which emoluments are paid at different rates;
 (d) particulars of objections raised and their adjustment;
 (e) adjustment of long term advances.
14.3 It is apparent that the most important part of the work is the record of each entry in the cages for emoluments permissible. Each alteration must be based on an order published in the Government Gazette or otherwise communicated, and the various service rules have to be applied carefully in determining the emoluments permissible in accordance with the orders passed by Government. Every alteration of emoluments, therefore, has to be passed by the Gazetted-Officer-in Charge of the Section. At the same time an intimation is sent to the Government servant concerned and to the officer in charge of the treasury at which he draws his pay, specifying the amount which he may draw in accordance with the order of Government. This intimation is called a Pay/leave salary slip.

 14.4 A fresh slip is issued on the following occasions:-

(i) Whenever any increment is stopped;
 (ii) Whenever an efficiency bar, or any other bar against the grant of a particular increment is removed; and
(iii) Whenever there is a change of any kind in emoluments, otherwise than by accrual of an increment, in the ordinary course e.g.
(a) when a gazetted Government servant passes outside or beyond the time scale, or
(b) whenever he passes from one overlapping time scale to another or from one time-scale to another, or
(c) whenever he proceeds on leave of any kind, or
 (d) when he returns from leave of any kind except in cases where he returns to the same post, or
(e) whenever he is appointed to a temporary post or reverts there from;
 (iv) whenever the stage of the time-scale at which there is a pause is reached; and
(v) whenever an officer is transferred from one post to another involving change of designation, even if, there is no change in his emoluments.
In the case of time-scale of pay with efficiency bars at certain stages, pay at a rate above the stage at which an efficiency bar is fixed cannot be authorized until a declaration is received from the authority empowered to make the promotion that it has satisfied itself that the Government servant in question is fit to cross the efficiency bar.
14.5 In order to avoid delay in the drawl of increments by officer and unnecessary work perpetual or permanent pay slip are issued in respect of officers holding permanent posts indicating there in the scale of pay and the date of annual increment. Similarly, in the case of officers holding regular temporary posts, the dates of increments falling during the currency of such posts are also included in the pay slip issued. Such pay slips will, however, become invalid in the event of the officer proceeding on leave, undergoing a period of suspension, remaining otherwise absent from duty or being transferred, promoted or reverted to another post before the increment accrues. However, in both the cases the increment above the Efficiency Bar stage is not to be included in the pay slips.

Check against Sanctioned Posts

14.6 The orders affecting the cadre of a service passed by Government have first to be checked and it has to be seen that they are free from objection. In some States it is the custom for Government to send the orders in draft to the Accountant General (Accounts and Entitlements) so that they may be checked before issue. Before issuing a pay slip to the incumbent of a post, it is invariably seen that there exists a sanction to the post. It is necessary for the cadre controlling authorities to review periodically and ensure that the total number of men in position does not exceed the sanctioned posts in respect of each grade or class of the service.

Leave Accounts

14.7 For each Gazetted Government servant a leave account is kept in the Accounts and Entitlement Office, showing the period during which the Government servant was on duty, the leave earned by him, the leave actually taken, and the balance at his credit. From the entries in the account it is possible to calculate the leave admissible to Government servant on any given date.

History of Services or Service Card

14.8 Finally, a history of services or service card is maintained for each Gazetted Government servant, in which are recorded his headquarters, stations, substantive appointments/ Officiating appointments involving change of duties, dates of alterations of appointments, grants of leave of all kind, absence without leave or in excess of leave or joining time. Fund Account Number, Home Town, fact of receipt of nomination for family pension and Death-cum-retirement Gratuity. Pension calculations are based on this record. History of services is issued at such intervals as may be prescribed in consultation with State Government.
അവസാനമായി, ഓരോ ഗസറ്റഡ് സർക്കാർ ജീവനക്കാരനും വേണ്ടി സേവനചരിത്രമോ
 സേവന കാർഡിഡോ സൂക്ഷിക്കുന്നു, അതിൽ അദ്ദേഹത്തിന്റെ ആസ്ഥാനം, സ്റ്റേഷനുകൾ, സബ്‌സ്റ്റാന്റീവ് നിയമനങ്ങള്‍/ ചുമതലകൾ മാറുന്ന  പകരം കൃത്യനിര്‍വ്വഹണ നിയമനങ്ങള്‍ , നിയമനങ്ങളിൽ മാറ്റം വരുത്തിയ തീയതികൾ, എല്ലാത്തരം അവധി ഗ്രാന്റുകൾ, അഭാവം എന്നിവ രേഖപ്പെടുത്തിയിട്ടുണ്ട്. അവധി കൂടാതെ അല്ലെങ്കിൽ കൂടുതൽ അവധി അല്ലെങ്കിൽ ചേരുന്ന സമയം ഇല്ലാതെ. ഫണ്ട് അക്ക അക്കൗണ്ട്  നമ്പർ, ഹോം ടൗണ്‍, ഫാമിലി പെൻഷനായി നാമനിർദ്ദേശം സ്വീകരിച്ച വസ്തുത, ഡെത്ത്-കം-റിട്ടയർമെന്റ് ഗ്രാറ്റുവിറ്റി. ഈ റെക്കോർഡിനെ അടിസ്ഥാനമാക്കിയുള്ളതാണ് പെൻഷൻ കണക്കുകൂട്ടലുകൾ. സേവനങ്ങളുടെ ചരിത്രം അത്തരം ഇടവേളകളിൽ സംസ്ഥാന സർക്കാരുമായി കൂടിയാലോചിച്ച് നിർദ്ദേശിക്കാവുന്നതാണ്.

Action on Gazettes

14.9 On receipt of a gazette with the notifications Registers and History of Services or Service Cards;
(1) note all the necessary details in the Audit Registers and History of Services or Service Cards;
  (2) issue Pay-slip for alterations in pay and allowances where necessary, filling in at the same time, the money columns in the Audit Register when necessary;
(3) when leave has been sanctioned, compare the amount of leave sanctioned with that shown in the office copy of the leave report;
(4) in the case of transfer, see that the report is received of making over, as well as of receiving charge, note in the Audit Register, and check joining time;
(5) in the case of a Gazetted Government servant transferred from another audit circle call for a statement of his service.
(b) When Government orders sanctioning alterations of Pay, leave, transfer etc., are issued in advance of the notifications in the Gazette, they should be acted upon in the same manner as the modifications themselves. The entries in the Register in respect of first appointment and final relinquishment of charge of a Gazetted Officer on retirement or quitting service should, however, be compared with Gazetted notification when the latter is received and the Accountant should certify against the notifications concerned that he has made the necessary comparison.

 (B) REPORTING AND ISSUE OF PAYMENT 
AUTHORITIES OF PENSION AND GRATUITY


14.10 Pension Rules supported by executive instructions have been framed by the respected State Governments governing grant of different classes of pension, commuted value of pension, service/retirement family pension etc., granting the procedure for preparation and transmission of pension papers to the Accountant General and circumstances under which provisional or anticipatory pension could be authorized. Keeping these rules and instructions in view pension papers are prepared by the Heads of Offices from where the Government servants retire and sent to the Accountant General concerned. On receipt of these papers the completeness of the documents and correctness of the calculations are examined. After ensuring the accuracy of the figures and determining the actual amount of pension/gratuity a report regarding the admissibility thereof is prepared and forwarded to the Pension Audit Section.

Issue of Pension Payment Order/Gratuity Payment Order

14.11 Pension Payment Order is not issued more than a fortnight in advance of the date on which the officer is due to retire. The Pension Payment Order consists of 2 halves (1) the pensioner’s half and (2) disburser’s half. The name of the pensioner, the class of pension, date of birth, address, date of commencement of pension, amount of pension, D.A. admissible and place of payment are filled up in both the halves by the Accountant, checked by his superior with reference to the Pension Verification report and then submitted to the Branch Officer for approval. 
ഉദ്യോഗസ്ഥൻ വിരമിക്കേണ്ട തീയതിക്ക് രണ്ടാഴ്ചയിൽ കൂടുതൽ പെൻഷൻ പേയ്‌മെന്റ് ഓർഡർ നൽകില്ല. പെൻഷൻ പേയ്‌മെന്റ് ഓർഡറിൽ 2 ഭാഗങ്ങൾ (1) പെൻഷനറുടെ പകുതിയും (2) വിതരണക്കാരന്റെ പകുതിയും അടങ്ങിയിരിക്കുന്നു. പെൻഷനറുടെ പേര്, പെൻഷന്റെ ക്ലാസ്, ജനനത്തീയതി, വിലാസം, പെൻഷൻ ആരംഭിച്ച തീയതി, പെൻഷന്റെ അളവ്, അനുവദനീയമായ ഡി.എ , പണമടച്ചുള്ള സ്ഥലവും അക്കൗണ്ടന്റ് രണ്ട് ഭാഗങ്ങളിലും പൂരിപ്പിക്കുന്നു, പെൻഷൻ സ്ഥിരീകരണ റിപ്പോർട്ടിനെ പരാമർശിച്ച് മേലുദ്യോഗസ്ഥൻ പരിശോധിക്കുകയും അംഗീകാരത്തിനായി ബ്രാഞ്ച് ഓഫീസർക്ക് സമർപ്പിക്കുകയും ചെയ്യുന്നു.

If any condition is imposed by the Pension verification section in the endorsement it is also incorporated in both the halves. The allocation of pension as indicated in the Pension Verification report is also noted in both the halves. This is necessary to ensure correct classification of pension charges in the Treasury account and proper settlement of balances between Governments. After the Branch Officer’s approval and assignment of number to the Pension Payment Order, entries are made in the Pension Payment Order register and noting is also made in the Pension Verification case regarding issue of Pension Payment Order. These are attested by the Branch Officer. Both the halves, attested photo, signature of the pensioner etc., are then dispatched to the Account Officer (Pension)/Treasury Officer (as the case may be) with a covering letter. A copy of the covering letter is also sent to the pensioner and to the pension sanctioning authority.
14.12 When both pension and family pension have been reported, joint Pension Payment Order is issued, the pension payable to the pensioner and the family pension payable to the eligible beneficiary (wife/husband) in the event of death of the pensioner are indicated in the joint Pension Payment Order. When the pensioner dies, the family pension is paid by the Treasury Officer, after getting a death certificate, to the eligible pensioner without any reference to Accounts Office.


Payment of Death-cum-Retirement Gratuity

14.13 Death-cum-Retirement Gratuity is also released to the pensioner by the Pension Audit Section with reference to endorsement therefor in the pension case made by the Pension Verification Section. Recoveries to be made as indicated by the reporting section are also noted in the Gratuity Payment Order. Details of recoveries (advances, Interest thereon, overpayment of pay and allowances, house rent etc.) are shown in the Gratuity Payment Order. Net payment is arrived at and this is expressed in words and figures. A protective endorsement (under Rupees…..) which is the nearest higher rupee is also made at the top of the Gratuity Payment Order. Where dues to Cooperative Societies, local bodies etc. are recovered, an endorsement is made to the effect that out of the amount payable, the due amounts might be sent by demand drafts to the concerned authorities. After Gratuity Payment Order is approved, a number is assigned to the authorization and entries are made in the gratuity register. The entries in the register and notings in the case about the issue of authorization are attested by the Branch Officer. When the Death-cum-Retirement gratuity is payable to more than one person in shares, separate authorization is issued in respect of each eligible gratuitant.


Transfer of Place of Payment of Pension

14.14 After a pension has been drawn for some time, if the pensioner desires a change of place of payment within the same audit circle, it can be done by the A.O. (Pension) /T.O. concerned without the intervention of Accounts Office but the fact of transfer is intimated to the Accountant General. When first payment itself is desired in a State other than the one in which the Government servant retired, authorization is issued to the Accountant General of the State concerned under special seal. In this case, authorization is issued in the form of a letter and this holds good for gratuity payment also.

Anticipatory/Provisional Pension

14.15 When a Government servant is likely to retire before his pension can be finally assessed and settled in accordance with the prescribed rules the Accounts Officer/Head of Office may arrange for authorizing anticipatory/provisional pension and gratuity, if the rules so permit and subject to the conditions prescribed in the rules. Normally such payment of provisional / anticipatory pension is to continue for six months only. The orders for anticipatory/provisional pensions are recorded in a Special Register, which is reviewed by the Accountant General personally to see that no undue delay occurs in the final settlement of the amount of pension in such cases.
Pensions to Freedom Fighters, Old Persons, Artists, Men of Letters etc.
14.16 Various Governments have introduced their own schemes/rules for payment of pension to these categories of persons. While in some States authorities for payment are issued by the Accountants General, in others departmental authorities disburse the pensions.


                (C) PROVIDENT FUND

14.17 The procedure prescribed in the ensuing paragraphs is applicable to the Provident Fund, the accounts of which are maintained by the Accountant General

Admission of Subscribers

14.18 Under the rules framed by the Union Government and many state Governments, it is compulsory for all Government servants to subscribe to the General Provident Fund. An application in the prescribed form has to be obtained from the subscriber and sent to the Accounts Office maintaining the Provident Fund Accounts concerned. A distinctive Account Number is assigned to each subscriber and the particulars thereof are communicated to the subscriber either direct or through the Head of his office.
14.19 In assigning distinctive numbers to each subscriber, separate series of numbers are allotted for each department/Accounting Circle to which a subscriber belongs. For example, the subscribers belonging to the Police/Education Department are assigned numbers with alphabetical letters as POL/EDN. The Accounts Circle where the Provident Fund Accounts are maintained is indicated by appropriate suffixes. For example, the accounts maintained by the Accountant General Tamil Nadu/Accountant General, Maharashtra may be having a suffix Tamil Nadu/Maharashtra to denote the Accounting Circle concerned
14.20 The number so assigned and the particulars of names and designation of the subscribers are recorded in the General Index Register at the time numbers are allotted. A separate General Index Register is kept for each Department. Each Register is updated as and when new subscribers are admitted. Each General Index Register will have a corresponding Alphabetical Index Register. In the case of transfer of a subscriber from one Department to another and when new departmental numbers are assigned to old subscribers the new number is shown as the enumerator and the old number shown as denominator in the General Index Register so as to facilitate easy back reference of the past records of the subscriber concerned.

Nominations

14.21 Under the provident Fund Rules, subscribers are to furnish nomination to the Accounts Officer maintaining the Provident Fund accounts for payment of the balances in the event of death of the subscriber. Some State Governments have issued orders intrusting the work of acceptances and custody of nominations to the Departmental Officers themselves. Accepted nominations are recorded in the prescribed Register under proper attestation besides making an entry of the fact of receipt of nomination in the General Index Register against the concerned subscriber’s Account Number. A separate Nomination Register is kept for each distinctive departmental series.
Note- A subscriber should not, if he objects, be pressed to disclose the name of the wife when she is the nominee. Payment should be made simply on the proof of identity being furnished.
14.22 The nominations are kept under lock and key in the personal custody of the Branch Officer in-charge of the Fund Section to be selected by the Accountant General. The verification of all the nominations is carried out in three batches so as to complete it in a cycle of three years.
14.23 An index containing a complete list of all the Nomination Registers in use in all sections in Fund Group is opened centrally and kept by the Fund Miscellaneous Section. This index is used to secure completion of the verification cycle.
14.24 When a revised nomination is received, the superseded one is cancelled and returned to the subscriber. The fact of cancellations is recorded then and there under proper attestation both in relevant Register of Nominations and the General Index Register.

Subscriptions

 14.25 When a subscription is paid for the first time or a revised rate is adopted, it is seen that the amount of subscription is within the minimum and maximum rates prescribed by the rules of the Fund. In the case of subscriptions paid subsequently, it is seen that the amount paid agrees with the rate adopted in the first month of the year except when a variation of rate is allowed during the course of the year under the rules of the Fund. For all months of the year it is also seen that all compulsory subscriptions are paid except when on exemption computation or a lower rate is allowed. Central Government servants due to retire on superannuation shall exempt from making any subscription to General Provident Fund during the last three months of his service. The discontinuance of subscription would be compulsory and not optional.
Note- Any overpayment or short payment of subscription to the Fund in any one month may be adjusted by deduction from or addition to the subscription in the subsequent months, wherever possible. There is, however, no warrant for refusal of cash payment or recovery if a subscriber so desires.

Temporary Withdrawals

14.26 On receipt of the sanction of a temporary withdrawal, its particulars are noted in the relevant column of the ledger card indicating, inter-alia, the amount of the advance sanctioned, the number of instalments in which recovery is to be made, the amount of each instalment and the month of last recovery.
The raising of debits in the accounts and the regularity of the recovery of advances are watched in the course of check of monthly posting of ledger cards. While conducting the check/review, it is seen: -
(a) that there is no delay in the receipt of debits on account of temporary withdrawals.
(b) that  recovery of principal ( and interest where prescribed) are being made in accordance with the sanction; and 
(c) that the recoveries are regular.

Final Withdrawals

14.27 Final withdrawal of the entire accumulation in the subscriber’s provident fund in the case of quitting of service, death, etc., is authorized by the Accounts Officer in accordance with the Provident Fund Rules, a note of such authorization, duly attested by the Branch Officer being kept in the respective ledger card. In the case of payments relating to subscribers authorized through their Heads of Office, the receipts of a certificate of disbursement is watched and when received it is noted in the subscriber’s account. The progress of finalization of all cases of final withdrawal of entire accumulation is watched through a suitable Register.

Maintenance of Provident Fund Account

14.28 The Provident Fund Account of a Government servant is maintained by the Accounts Officer of the Government of whose cadre the Government servants has a permanent lien or a provisionally permanent lien. If he has no lien of either kind, the account is maintained by the Accounts Officer of the Government on whose cadre he is borne at the time. All credits and debits is respect of the fund transaction of a subscriber are brought to account in the books concerned by the Accounts Officer who maintains the subscriber’s account. In the case of a Government servant who proceeds on deputation out of India, the officer who accounted for his pay immediately before he proceeded on deputation will maintain his Provident Fund Account. In the case of a Government servant who is transferred to Foreign Service, the Accounts Officer, who watches the recovery of his foreign service contributions will maintain his Provident Fund Account. Fund transactions arising in one state which are adjustable in accounts of another state are passed on to the Accounts Officer of the latter circle monthly through the Settlement Account. In the case of State Government employees on deputation to Central Government or vice-versa, monthly subscriptions are to be remitted on cash settlement basis to the Accounts Officer of the respective Government which is maintaining the provident fund accounts.

Transfer of Accounts

 14.29 On the permanent transfer of a subscriber from one Government to another, the provident Fund balances at his credit is required to be transferred to the other Government and a copy of his ledger account together with Nomination form in original is to be forwarded to the Accounts Officer of that Government.

Ledger Cards

14.30 The accounts of subscribers are maintained in loose ledger cards, one card being opened for each subscriber. The fact of admission to the Fund and the receipt and acceptance of nomination in favour of a nominee or nominees when required is noted at the top of the ledger and the entries attested under the dated initials of the Branch Officer. The entries relating to Name Number etc. and the fact of discontinuance of subscriptions which are noted at the top of the Form are attested by the Section Officer. All the opening entries in the new ledger cards, viz. Compulsory subscriptions, opening balances, protected rate of interest, advances outstanding, details of insurance policies, acceptances of nominations, stoppage of subscriptions, etc. are also attested by the Section Officer. While copying the entries in the new ledger card, the up to date missing credits/debits are also to be noted and the opening balance in the new ledger card should be indicated in words as well as in figures. These accounts are maintained manually or by machine method.

Posting of Accounts

 14.31 The following are the sources from which the Fund accounts are posted:
(i) Covering Schedules (one for each district in the prescribed form supported by the Corresponding fund schedules.
(ii) Schedules of cash recoveries by districts either supported by fund schedules or themselves containing all the necessary information in respect of the subscribers concerned.
(iii) Schedules supported by vouchers of withdrawals received from treasuries.
 (iv) Separate covering statements in respect of credit and debit item in Settlement Accounts supported by fund schedules and vouchers of withdrawals, respectively.
(v) Statements similar to those in item (iv) in respect of fund transactions appearing in the Transfer Ledger Abstracts maintained by the Accountant other than the departmental Accountant.
14.32 The documents mentioned in item (i) are passed on by the departmental clerks/Accountants to the Fund Section after recording a certificate of agreement on each schedule. An additional certificate Pay for 31st March also checked with the bills, is recorded on the schedules attached to pay bills for March and attested by the Section Officer. The documents mentioned at items (ii) to (v) are passed on by the Accountant concerned to that section with a similar certificate of agreement with the Cash Accounts, List of Payments, etc. as the case may be. The Fund Section sees that all the necessary information required for audit is furnished in the fund schedules.
14.33 On receipt of these documents, the credits and debits are posted in the ledger cards. The total postings made under credits as well as debits in the ledger cards are compared through Broad Sheets with the monthly accounts figures and the difference represents unposted credits and debits. The adjustment of these items is watched through the mechanism of Master cards/Register of Unposted items. Postings in the ledger cards are checked by the Section Officer.

Annual Closing

14.34 The work of calculation of interest due on each account begins slightly before the completion of March postings and is completed within a month, a transfer entry being prepared and incorporated in the March or supplementary accounts crediting the Provident Fund Head and debiting ‘0249 Interest Payments etc’. The interest calculation made by each clerk/Accountant with the help of interest tables is got checked, independently by a separate clerk/Accountant. The calculations are also checked by the Section Officer and the Branch Officer to the extent prescribed. The amount of interest for the year as well as total deposits, refunds and withdrawals are posted in the space provided for the purpose in the remarks column of the ledger card and the closing balance for the year worked out in respect of every ledger card. The ledger card should be reviewed and up-to-date missing credits/debits should be noted in the appropriate columns of the ledger cards.

Special Procedure on Contributory Provident Fund

14.35 The contributory Provident Fund Accounts are maintained in ledger, where ledger amounts are posted in manuscripts. In cases where machine methods are adopted for the purpose, the accounts are maintained with suitable manuscript additions and alternations. When contributions are adjusted at the end of the year, these are posted in the Broadsheet, against the respective account number, in a separate line from that of the subscriptions, a distinguishing line, if considered necessary being used. Interest on contributions is similarly posted separately from that on subscriptions. At the time of annual closing of the Broadsheet, the closing balances of deposits and Government contributions are brought out separately.

Annual Account Statements to Subscribers

14.36 Statements of subscribers’ annual accounts are prepared and dispatched to them not later than 31st August each year. In addition to the opening balance, deposits interest for the year, withdrawal etc. the up-to-date missing credits should also be indicated in the annual account statements. The closing balance in the annual account statements should be recorded in words as well as in figures. The statements pertaining to Gazetted subscribers whose entitlements are regulated by the Accountants General through the issue of pay slip are sent to them direct with a request for sending acknowledgements for their receipt. Those pertaining to other subscribers are sent collectively with a covering memo, to their respective Head of offices who are called upon to send a certificate to the effect that all the account statements received by them have been delivered to the respective subscribers. A strict watch is kept over the receipt of these acknowledgements and certificate.