It is the expenditure NOT used to create assets e.g. expenses on salaries or other administrative costs.
A broad category of things that fall under such expenditures in India are –
Interest payment by the government on the internal and external loans
Salaries, Pension and Provident Fund paid to government employees
Postal Deficits of the government
Law and order expenditures (i.e., police & paramilitary)
Expenditures on social services (includes all social sector expenditures as education, health care, security, poverty alleviation, etc.) and general services (tax collection, etc.)
Grants by GoI to Indian states and foreign countries.
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