2010年-世界发展银行全球_Ghana_-_Assessment_of_Stage_1___Use_of_Country_Procurement_Systems_in_Bank-Supported_Operations_-_Proposed_Piloting_Program_116页_2mb

Summary of Ghana - Assessment of Stage 1

Core Content

This document is a draft report from the World Bank's Stage 1 Assessment of Ghana's public procurement system, conducted as part of the Proposed Piloting Program for the use of country systems in Bank-supported operations. The assessment was carried out in two missions: the first in May 2009 and the second in March–April 2010. The objective was to evaluate the quality of Ghana's procurement system and determine whether it meets the necessary standards to be used in Bank-supported projects.

Main Report Structure

The report is divided into several chapters:

• Introduction: Outlines the importance of institutional development and procurement reform in development effectiveness.
• Chapter 1: Reviews the overall Public Financial Management (PFM) environment in Ghana, including recent diagnostics and performance measurements.
• Chapter 2: Summarizes the procurement diagnostic work and the progress made since the 2003 Country Procurement Assessment Report (CPAR).
• Chapter 3: Details the Government of Ghana's Public Procurement Reform Strategy, including the PPA's strategic plan and MOFEP's action plan.
• Chapter 4: Presents the country-level procurement assessment, based on the OECD-DAC methodology, which is structured around four pillars and 54 sub-indicators, with a scoring system from 0 to 3.

Key Findings and Recommendations

1. PFM System Overview

• The PFM system in Ghana is improving due to political commitment and reform implementation.
• The PEFA assessment (2006 and 2009) indicates that the system is performing at an average or above average level.
• The 2009 ERPFM draft report highlights the government's goal to reduce the fiscal deficit from 14.9% of GDP in 2008 to 9.4% in 2009.
• Several actions are recommended to improve the efficiency of budgetary operations, including strengthening the Medium Term Expenditure Framework (MTEF), improving procurement planning, and enhancing audit functions.

2. Procurement Diagnostic Work

• The 2003 CPAR recommended improvements across the procurement system, including legal and institutional frameworks, procedures, oversight, and anti-corruption measures.
• The 2007 ERPFM assessment showed substantial progress since 2003, with key achievements such as:
  • Enactment of the Public Procurement Act (Act 663, 2003).
  • Establishment of the Public Procurement Authority (PPA).
  • Development of standard bidding documents and software for procurement planning.
  • Creation of appeals and complaints panels.
  • Introduction of the PPME (Public Procurement Model of Excellence) tool for performance monitoring.

3. Government Public Procurement Reform Strategy

• The PPA's 2009–2011 Strategic Plan aims to:
  • Strengthen the PPA's role in administering the procurement system.
  • Ensure compliance with the Public Procurement Act.
  • Build a world-class, efficient, and effective procurement system.
  • Increase confidence among local businesses.
• The MOFEP's Short and Medium Term Action Plan (S/MTAP: 2006–2009) supports these goals by focusing on mainstreaming new processes, consolidating oversight, and strengthening information systems.

4. Country Level Procurement Assessment

Methodology

• The assessment used the OECD-DAC methodology and was based on four pillars and 54 sub-indicators.
• A scoring system from 0 to 3 was applied, where:
  • Score 3 = Full achievement.
  • Score 2 = Some improvements needed.
  • Score 1 = Substantial work required.
  • Score 0 = Failure to meet standards.

Pillar I: Legislative and Regulatory Framework

• Current Assessment (2010): The legal and regulatory framework is partially compliant with international standards.
• Key Findings:
  • The Public Procurement Act (Act 663, 2003) provides a legal basis for procurement, but its application is limited and some provisions are not in line with international standards.
  • Procurement methods and thresholds are not clearly linked to the Act and operational practices.
  • The Minister of Finance has the power to override standard procedures, which may lead to non-compliance with transparency and efficiency principles.
  • Advertising rules and time limits are unclear and should be made mandatory on the PPA website and in circulated newspapers.
  • Tender evaluation criteria include vague and irrelevant factors, such as balance of payment and national security.
  • Complaint and appeal processes are limited, with certain exceptions preventing suppliers from appealing at any stage.
  • Debarment procedures are not in place and should be established.

Pillar II: Institutional Framework and Management Capacity

• The institutional framework is developing, but capacity remains a challenge.
• The Internal Audit Agency (IAA) is being re-oriented from pre-payment auditing to risk-based auditing.
• The Ghana Audit Service (GAS) is now able to rely on the work of the IAA when the standards are robust.
• A rollout plan for internal auditors is in progress, aiming to recruit 1000 internal auditors.
• The IAA Annual Report 2009 highlights that salary levels are a constraint for attracting and retaining qualified auditors.
• The Financial Tribunal under the Financial Administration Act (FAA) should be constituted and operationalized to improve sanctions mechanisms.

Pillar III: Procurement Operations and Market Practices

• Procurement operations are increasingly efficient but still require improvements in transparency and compliance.
• The PPME tool is a valuable asset for monitoring procurement performance, but needs refinement in terms of key performance criteria (KPC) and public disclosure of performance ratings.
• The Government's self-assessment of 2006 is noted as a good starting point, but further sampling and formula refinement are required for accuracy.
• Large spenders and high-volume contracts should be prioritized for performance evaluation to ensure value for money and risk mitigation.

Pillar IV: Transparency and Integrity of the Procurement System

• The procurement system is not fully transparent, and integrity mechanisms need strengthening.
• The external audit process has seen positive progress, but the presentation of the Auditor General's report to Parliament was not completed in 2006 and 2007 due to institutional resistance.
• The 2009 Acting Auditor General has helped improve synergy between internal and external audit functions.

Summary of Scoring and Way Forward

• The assessment scores for the four pillars are compared against the Benchmark UCS Mandatory Score.
• Action Plan is outlined to address the deficiencies identified in the assessment.
• The plan includes responsibilities, dates to complete actions, and cost estimates.
• The next stages of the piloting program will depend on the results of Stage 1.
• Stage 2 will check whether procurement policies are consistent with the Bank's standards.
• Stage 3 will assess compliance, performance, capacity, and fiduciary risks of the executing agencies.

Conclusion

The assessment concludes that while Ghana has made progress in its procurement reforms, significant improvements are still needed to meet the standards required for the use of country systems in Bank-supported operations. The Government of Ghana is recognized for its commitment to reform, and the World Bank commends its efforts. However, the legal framework, institutional capacity, transparency, and compliance mechanisms require further attention and action to ensure the sustainability and effectiveness of public procurement in the country.