2009年-世界发展银行全球_Mongolia_-_Consolidating_the_Gains_Managing_Booms_and_Busts_and_Moving_to_Better_Service_Delivery___A_Public_Expenditure_and_Financial_Management_Review_-_Core_Report_178页_14mb

Mongolia: Consolidating Gains, Managing Booms and Busts, and Moving to Better Service Delivery

Core Content Overview

This report, Public Expenditure and Financial Management Review (PEFMR), evaluates Mongolia's progress in public financial management (PFM) and public expenditure policy, with a focus on consolidating gains from economic growth, managing the volatility of mining revenues, and improving service delivery in key sectors such as education, health, and social protection. The report is structured in two volumes, with Volume I covering core findings and recommendations.

Key Findings and Main Points

Fiscal Trends

• Mongolia's economy has experienced rapid growth, with GDP increasing by an average of 9% over the last four years, driven by a boom in mining.
• Public revenues have more than doubled in real terms between 2002 and 2007, reaching $1.5 billion or 40% of GDP.
• The budget is heavily dependent on mining revenues, which now account for 36% of total public revenues.
• Public expenditures have also grown rapidly, reaching $1.5 billion in 2007, with a significant increase in social transfers and public wages.
• The fiscal stance has become pro-cyclical, with a sharp rise in public spending leading to inflationary pressures (30% in 2008).
• A balanced budget for 2009 was proposed, but further adjustments are needed due to declining copper prices.

Public Sector Financial Management (PFM)

• The Public Sector Management and Finance Law (PSMFL) implemented in 2002 significantly improved the legal and institutional environment for public finances.
• Key improvements include the centralization of revenue and expenditure management, enhanced budget execution, and the establishment of an integrated financial management information system (GFMIS).
• Despite these reforms, the implementation of performance-based management and accrual accounting remains limited.
• The PSMFL provides a framework for fiscal discipline, transparency, and improved service delivery, but challenges remain in its full application.

Education

• Education expenditures have increased, but the relative share has declined from 11% in 2007 compared to previous years.
• Funding for education comes from both domestic and donor sources, with donor assistance mainly focused on capital investment.
• There are significant spatial and income disparities in education outcomes, particularly in rural areas.
• The Conditional Cash Transfer (CCT) program has had a positive impact on school enrollment among the poor, but there are leakage issues.
• Good practices in budget deliberations and investment programs are highlighted, including the need for more targeted and efficient spending.

Health

• Health expenditures have increased, but the relative share has declined from 6% in 2007.
• The government has made progress in health service delivery, including improved immunization rates and infrastructure.
• Social Health Insurance (SHI) coverage is expanding, but challenges remain in its sustainability and effectiveness.
• The delivery of health services is hindered by inefficiencies, such as high hospital bed numbers and issues in hospital payment methods.
• There is a need for better purchasing mechanisms and improved primary health care services.

Social Protection

• Social assistance programs have seen a dramatic increase since 2005, now accounting for 29% of total expenditures.
• The Child Money Program (CMP) has been a key component, but its universal approach has led to high costs and sustainability concerns.
• There are significant leakage issues in CMP benefits, with a large portion going to non-eligible households.
• The government has made progress in establishing a legal framework for social protection, but further reforms are needed to ensure efficiency and equity.

Agriculture

• Agricultural GDP growth has been significant, but public spending on the sector has not kept pace.
• Donor support plays a crucial role in agricultural development, but integration with domestic priorities remains a challenge.
• The report emphasizes the need for a rethinking of the government's role in the sector and improved efficiency in budget formation and execution.

Key Future Priorities

• Strengthening Fiscal Frameworks: Implementing a multi-year fiscal framework to manage commodity booms and busts, ensuring savings during booms and spending during busts.
• Improving PFM Systems: Enhancing the implementation of performance-based management and accrual accounting to improve transparency and accountability.
• Enhancing Service Delivery: Focusing on improving the efficiency and effectiveness of public spending in education, health, and social protection.
• Managing Donor Assistance: Better aligning donor support with domestic priorities and ensuring that funds are used effectively.
• Addressing Regional Disparities: Managing the impact of migration on service delivery in urban areas and ensuring equitable access to services in rural regions.

Conclusion

Mongolia has made significant progress in establishing a robust PFM system and improving service delivery in key sectors. However, the country faces challenges in managing the volatility of mining revenues, ensuring the sustainability of social assistance programs, and improving the efficiency of public spending. The report recommends a more transparent, multi-year fiscal framework and a focus on improving the quality of service delivery through better PFM practices and targeted investments.