2010年-世界发展银行全球_Public_Financial_Management_Reform_in_the_Middle_East_and_North_Africa___An_Overview_of_Regional_Experience_-_Overview_and_Summary_86页_1mb

Summary of Public Financial Management Reform in the Middle East and North Africa

Core Content

This report provides an overview of public financial management (PFM) reforms in the Middle East and North Africa (MENA) region, analyzing the progress and challenges faced by ten countries: Algeria, Egypt, Iraq, Jordan, Lebanon, Morocco, Syria, Tunisia, the West Bank and Gaza, and Yemen. The study draws on a variety of sources, including PEFA assessments, country financial accountability assessments, public expenditure reviews, and interviews with reformers, to evaluate the effectiveness of PFM reforms and identify key lessons for future initiatives.

The report is structured into three main parts:

1. Introduction: Discusses the importance of PFM and the context of reform in the MENA region.
2. Substantive Reform Agenda: Reviews the types of PFM reforms implemented across the region, grouped under six stages of the budget cycle.
3. Implementation of Reforms: Highlights the lessons learned from the implementation process and offers guidance for future reform efforts.

Main Views

Importance of PFM

PFM is a critical function of government, involving the mobilization and deployment of financial resources to achieve policy objectives. In 2007, MENA countries spent approximately $407 billion on public functions. Effective PFM ensures that government spending is:

• Affordable: Aligned with monetary and fiscal policy objectives and sustainable in the long term.
• Efficient: Maximizes output from given inputs.
• Effective: Supports the realization of government goals.
• Transparent: Conducted in accordance with laws and regulations, with checks and balances to ensure financial integrity.

Regional PFM Performance

Using the PEFA framework, the report compares MENA countries with other low-middle income countries globally. The findings show that:

• MENA PFM systems are broadly comparable to those of other countries at similar income levels.
• Morocco and Jordan rank the highest in aggregated PEFA scores (around B, 2.87).
• West Bank and Gaza (WBG) and Iraq rank lower (around C-), though formal PEFA assessments do not include minus rankings.
• The region tends to perform better in accounting, recording, and reporting but worse in budget credibility.
• The tightest scores were in budget credibility, indicating relative consistency across MENA countries.
• The largest discrepancies were found in budget comprehensiveness and transparency.

Key Reforms and Challenges

The report categorizes PFM reforms into six stages of the budget cycle:

1. Strategic Budgeting
2. Budget Preparation
3. Resource Management
4. Internal Control and Audit
5. Accounting and Reporting
6. External Accountability

Each section evaluates the reform efforts and their outcomes, highlighting both successes and challenges.

Key Information

Strategic Budgeting

• Macro-fiscal Capacity: Most MENA countries lack strong macro-fiscal units in their Ministries of Finance. Some have started to establish these units, but they face challenges in attracting qualified staff and are often limited to monitoring taxes and preparing monthly reports.
• Medium Term Expenditure Frameworks (MTEFs): Countries are trying to develop forward estimates of expenditures at the sectoral level. However, these efforts are resource-intensive and have not yielded significant results. Often, they are implemented through pilot projects with limited Ministry of Finance involvement.
• Budget Integration: Efforts to integrate budgets to improve efficiency are ongoing, but dual budgeting systems remain common, with separate allocations for operating and capital expenditures.

Budget Preparation

• Broadening Budget Coverage: Some countries have made progress in expanding the scope of their budgets to include more sectors and activities.
• Improving Transparency and Classification: Efforts to improve transparency and standardize budget classification have been made, but progress varies widely.

Resource Management

• Treasury Operations: Reforms in treasury systems have been implemented, focusing on improving efficiency and coordination.
• Tax and Customs Administration: Significant reforms have taken place in Egypt and other countries, with notable improvements in tax collection and customs procedures.
• Procurement Reform: There is a need for more systematic and transparent procurement processes, though progress is uneven.

Internal Control and Audit

• Expenditure Controls: Development of expenditure controls is a key area of reform, with varying degrees of success.
• Internal Audit: Strengthening internal audit systems is essential for ensuring accountability and improving financial management practices.

Accounting and Reporting

• Accounting Policy Reforms: Efforts to adopt international standards and improve internal accounting practices have been made.
• Performance Focus: Introducing a performance-oriented approach to budgeting is seen as a positive development, though implementation remains a challenge.

External Accountability

• External Audit: Strengthening external audit institutions is important for ensuring transparency and accountability in public finances.

Implementation Lessons

The report outlines ten key implementation lessons, including:

1. Political Economy Analysis: Understanding the political and economic context is crucial for successful reform.
2. PFM as a Means, Not an End: Reforms should be seen as part of a broader governance strategy.
3. Context Matters: Reforms should be tailored to the specific context and administrative traditions of each country.
4. Muddling Through: Incremental changes may be more effective than grand strategies.
5. Basic Systems First: Establishing foundational systems is essential before pursuing more advanced reforms.
6. Quick, Simple, and Mutually Reinforcing Reforms: Reforms should be designed to be quick, simple, and complementary.
7. Avoid Large Financial Management Systems: These systems can be complex and difficult to implement.
8. Internal Challenges: Leadership, coordination, skills, and incentives are critical for reform success.
9. External Stakeholders: While useful, external support should not be relied upon exclusively.
10. Strategic Donor Support: Donors should be more strategic, selective, modest, and flexible in their support.

Conclusion

The report emphasizes the importance of understanding the political economy context, building strong internal capacity, and implementing reforms in a pragmatic and incremental manner. It also highlights the need for donor support to be more targeted and adaptable to local conditions. Overall, the study provides a comprehensive analysis of PFM reforms in the MENA region, offering valuable insights and lessons for both countries and the donor community.