Railway stations across the country continue to struggle with basic passenger amenities, with a comptroller and auditor general of India (CAG) audit finding deficiencies at 458 of 512 stations inspected across 16 railway zones.
The deficiencies were not confined to smaller or low-traffic stations. The audit found shortfalls in essential facilities even at some of the Railways' highest-earning and busiest stations, including Chhatrapati Shivaji Maharaj Terminus (CSMT), Howrah, Sealdah, New Delhi and Mumbai Central.
The audit presents a critical picture of the state of basic passenger facilities, despite detailed Railway board norms having been in place for decades. CAG said the deficiencies were persistent and widespread and pointed to systemic weaknesses in planning, monitoring and prioritisation rather than isolated failures at individual stations.
Only 54 of 512 stations fully met the prescribed minimum essential amenities (MEA) standards tested by the auditors. That means fewer than 11% of the inspected stations had no shortfall in the amenities examined.
Basic Facilities Missing or below Prescribed Levels
The audit examined 16 of the 18 prescribed MEAs. The most significant shortfalls were found in some of the most basic facilities passengers depend on at stations.
Fans were deficient at 42% of the stations inspected, water coolers at 40%, drinking water taps at 27%, urinals at 22%, seating arrangements at 15%, platform shelters at 13%, latrines at 12% and clocks at 12%.
The problem was not simply that facilities were inadequate in number. At some stations, facilities were not provided at all.
Drinking water taps were deficient at 138 of the selected stations. At four stations, no such taps had been provided, while 134 had fewer taps than the prescribed norms. CAG also found that adequate drinking water taps were not available at 188 stations, despite an earlier assurance by the ministry of railways that adequate taps had been provided.
Waiting halls were absent at 21 stations, despite norms requiring them at all categories of stations. There were also seating shortfalls at 75 stations and urinal deficiencies at 111 stations.
System-wide Data Shows Scale of Problem
The deficiencies found during physical inspections were reinforced by the Railways' own passenger amenities management system (PAMS) data.
CAG analysed PAMS data as of February 2025 covering stations across all categories and railway zones. The data showed shortfalls in amenities throughout the network.
According to PAMS data, 2,035 stations had deficient provision of water taps, 1,291 stations had deficiencies in platform shelters, 1,178 stations had inadequate seating and 403 stations had deficiencies in urinals.
The system also showed 3,562 stations with deficient provision of fans, covering 5,035 platforms. Water coolers were deficient at 364 stations covering 521 platforms, while public address systems were deficient at 1,983 stations.
PAMS data further showed that amenities had not been provided at all at hundreds of stations. Public address systems were not provided at 1,983 stations, fans at 3,562 stations, water taps at 1,440 stations and water coolers at 1,118 stations.
CAG said the deficiencies were spread across all zones and station categories, indicating that the problem was systemic.
Even Premier Stations Not Spared
The audit found that even stations in the highest revenue and passenger-footfall category were not fully compliant with mandatory norms.
Among 18 selected NSG-1 stations, 17 had deficiencies in one or more of the remaining nine MEAs after seven of the 16 amenities tested were found to be available without deficiency.
Drinking water taps were deficient at 12 of these 18 stations, while fans and water coolers were deficient at eight stations each. Signage was deficient at five stations. Shortfalls were also found in seating, urinals, latrines, dustbins and electronic train indicator boards.
The report specifically names CSMT, Howrah, Sealdah, New Delhi and Mumbai Central among major terminals where deficiencies were found in essential facilities.
Among 59 selected NSG-2 stations, 51 had deficiencies in 12 of the 16 MEAs examined. Drinking water taps were deficient at 19 stations, water coolers at 22 and fans at 22. Signage was deficient at 18 stations. CAG also found shortcomings in seating, platform shelters and sanitary facilities.
The problem continued in NSG-3 stations. Of 82 stations examined, 78 had deficiencies in 12 of the 16 MEAs. Water coolers were deficient at 42 stations, fans at 35, drinking water taps at 22, signage at 33 and seating at 15.
At 10 stations earning more than ₹700 crore annually and handling between 10.3mn (million) and 114.7mn passengers a year, the audit still found deficiencies in MEAs.
Seven Years after Deadline, Mandatory Amenities Still Incomplete
The findings are particularly significant because the Railways had already prescribed a deadline for providing minimum essential amenities.
The Railway board's April 2018 instructions required MEAs to be ensured at all stations by 31 August 2018, followed by augmentation to recommended and desirable levels.
Yet, CAG found that mandatory amenities continued to suffer significant shortfalls even seven years after that deadline. The audit said no revised timeline for achieving full compliance had been prescribed.
CAG also pointed out that its earlier audit report No13 of 2016 had highlighted significant shortcomings in passenger amenities. Nearly a decade later, many of the same deficiencies remain despite assurances given by the ministry of railways to the standing committee on railways and through action taken notes.
Only 54 of the 512 stations inspected had no shortfall in the MEAs tested. Even the top ten high-earning, high-footfall stations were not fully compliant. CAG said the persistence of these deficiencies indicated systemic weaknesses in planning, monitoring and prioritisation.
Accessibility Remains Major Concern for Divyangjan Passengers
The audit also found serious deficiencies in facilities meant for Divyangjan passengers, raising questions about compliance with accessibility requirements and the Rights of Persons with Disabilities Act, 2016.
Among 5,920 stations where barrier-free ramps were required, deficiencies were found at 1,959 stations, including six NSG-1 stations.
Water taps suitable for Divyangjan passengers were deficient at 4,639 of 5,920 stations. Divyangjan-friendly toilets were unavailable or deficient at 1,759 stations, including four NSG-1 stations.
Platform-edge markings, another accessibility requirement, were deficient at 336 of the 693 stations where they were required.
The audit also found that 35% of the 374 Divyangjan passengers interviewed said station amenities were inadequate. Their complaints included non-functional or closed toilets, lack of low-height drinking water facilities, absence of parking, non-slippery pathways, lifts, portable ramps and low-height ticket counters, as well as problems with battery car services and announcements regarding the location of Divyangjan coaches.
CAG rejected the ministry's explanation that facilities were being provided in phases, noting that basic Divyangjan amenities had been prescribed as early as 1999. Even after 25 years, significant deficiencies remained.
Medical Emergency Preparedness Found Severely Inadequate
One of the more serious findings concerns emergency medical care at stations.
Of the 512 stations inspected, only 17 had both an emergency medical room (EMR) and AIIMS-recommended medical assistance boxes.
At 15 stations, an EMR existed but medicines and consumables did not meet AIIMS recommendations. Another 39 stations had no EMR but had an AIIMS-recommended medical box.
At a staggering 441 stations, neither an EMR nor the recommended medical box was available.
Folding stretchers were also unavailable at 37 stations. CAG concluded that the Railways had yet to comply with its own instructions on emergency medical care for passengers.
Toilets, Sanitation Remain Problematic
The problems do not end with the provision of toilets. The audit found deficiencies in the availability, operation and supporting facilities of toilets.
Wash-basins near urinals were not provided at 161 stations. Separate ladies' toilets were absent at 14 stations, while exhaust fans were missing from toilets at 39 stations.
CAG also found unauthorised entry points at 259 stations.
Railway board instructions issued in April 2018 required all unauthorised entry points into stations to be closed. Yet, the audit found such access points at more than half of the 512 stations inspected.
The ministry accepted the audit observation but did not provide a specific timeframe for closing the unauthorised entry points.
Poor Sanitation despite Expenditure
The audit found that sanitation deficiencies persisted despite significant expenditure on station cleaning.
Non-functional toilets and unhygienic toilets and urinals were observed, while garbage management and sanitation deficiencies continued at station premises. CAG noted that penalties imposed on cleaning contractors did not absolve either the contractors or the Railways of their responsibility to ensure that contractual conditions were actually met and passengers received the intended sanitation benefits.
The audit also found problems with drinking water quality monitoring.
Water supply systems were not inspected at the prescribed intervals. There were shortfalls in testing for residual chlorine, bacteriological contamination and chemical parameters.
Testing detected low or high chlorine levels and the presence of total coliform bacteria, including E. coli, while several parameters required under the uniform drinking water quality protocol were not tested.
CAG consequently concluded that the quality of drinking water at some stations was unsatisfactory.
Station Improvement Works Move at a Slow Pace
The audit also examined 395 passenger amenity works at 325 non-Amrit Bharat stations.
Of the 365 works for which sufficient records were available after excluding foreclosed or terminated works and those without records, only 148, or 41%, were completed within the stipulated timeframe.
As many as 217 works, or 59%, were delayed beyond the target date. Twenty-nine works faced delays of more than three years.
The reasons included defective planning in 47 works, non-availability of material, skilled labour and funds in 29 works, the Covid-19 pandemic and force majeure in 49 works, and contractor-related issues in 21 works.
More troublingly, the reasons for delay were not available for 71 of the delayed works.
CAG identified 11 passenger amenity works with inordinate delays. For example, work involving improvements to the facade, circulating area, platform surface and washable apron at Pataliputra station was delayed by more than four years even though physical progress had reached 98%.
Funds Available but Amenities Still Missing
The audit also raises questions about the planning and utilisation of funds.
CAG found persistent under-utilisation of the Budget grant for passenger amenities, ranging from 36% to 44% between 2019-20 and 2023-24, including non-COVID years.
According to the audit, this points towards shortcomings in planning and execution rather than simply a lack of funds.
The ministry's response attributed delays in some projects to statutory clearances, utility shifting, speed restrictions near tracks and high-voltage power lines and the COVID-19 pandemic.
CAG, however, said the ministry's response did not address the specific issue of persistent under-utilisation of funds, particularly since under-utilisation exceeded 35% even in non-COVID years.
The situation is similar in station sanitation spending. In 2022-23 and 2023-24, eight railway zones spent more than their budget grant, while three zones under-utilised their grants. Under-utilisation ranged as high as 37% in North Western Railway in the period examined.
No Station-wise Transparency Mechanism despite NGT Directions
The audit also flagged a failure to operationalise station-wise webpages required under directions of the national green tribunal.
These webpages were intended to provide passengers with information on amenities, cleanliness and sanitation mechanisms, action plans and measurable indicators, along with an avenue for public comments.
As of March 2024, no railway zone had operationalised such webpages. CAG said the RailMadad portal could not be treated as a substitute because it did not provide the required station-specific information.
The Wider Picture: A Failure of Implementation
The central issue emerging from the CAG report is not the absence of rules. Indian Railways has had prescribed standards for passenger amenities since 1952, with the framework repeatedly revised and expanded.
The Railway board's 2018 instructions were intended to establish a clear hierarchy of minimum essential, recommended and desirable amenities, with the mandatory minimum facilities to be provided first.
Yet, the audit shows that even the minimum layer remains incomplete at a large number of stations.
CAG's findings also challenge the argument that deficiencies are merely a temporary consequence of redevelopment and station modernisation. The ministry told the audit that some shortfalls were temporary because stations were undergoing redevelopment, upgradation or other works.
CAG, however, found that deficiencies existed irrespective of whether development or upgradation work was in progress. It said clear guidelines were needed on acceptable levels and the permissible duration of deficiencies during redevelopment.
This creates a fundamental passenger-service concern: modernisation projects may promise upgraded stations in the future, but passengers continue to use existing facilities today. A redevelopment project cannot by itself explain prolonged gaps in basic drinking water, toilets, seating, fans, sanitation or accessibility.
CAG's overall conclusion is blunt. Nearly a decade after its earlier audit highlighted similar deficiencies, mandatory passenger amenities continue to fall short across railway zones.
The audit said the persistence of these deficiencies, despite repeated instructions and assurances, reflects systemic weaknesses in planning, monitoring and prioritisation.
For passengers, the findings translate into something far more immediate than administrative shortcomings: inadequate access to drinking water, insufficient seating and shelter, non-functional or unhygienic toilets, poor accessibility for Divyangjan passengers, inadequate emergency medical preparedness and questionable drinking water quality.
The report, therefore, raises a larger question about the gap between the Railways' prescribed standards and the facilities passengers actually receive at stations. With 89% of the audited stations showing at least one deficiency in minimum essential amenities, the CAG findings suggest that the problem is not limited to a handful of poorly maintained stations but extends across the system.
