2007年-世界发展银行全球_Tajikistan_-_Public_Expenditure_and_Financial_Accountability_Assessment___Performance_Report_83页_591kb

Tajikistan: Public Expenditure and Financial Accountability Assessment Summary

Core Content

This report provides an assessment of Tajikistan's Public Financial Management (PFM) system based on the PEFA Performance Measurement Framework, covering the period from October 2006 to May 2007. It evaluates the country's PFM performance, the impact of PFM weaknesses, and prospects for reform planning and implementation.

Main Points

1. PFM Performance Assessment

• The assessment is based on 28 + 3 PEFA indicators.
• The report is divided into four main sections: Introduction, Country Background, PFM Performance Against Indicators, and Government Reform Process.
• Four data sources were used: primary fiscal data, field missions with international and local consultants, a self-assessment report by the Government of Tajikistan (GOT), and other existing reports.

2. PFM Indicators Overview

3. Key Findings

• Budget Credibility (PI-1 to PI-4):

  • Revenue forecasts are conservative, leading to discrepancies between budget plans and actual outturns.
  • Payment arrears are low but lack clear categorization.
  • There is a need for more transparency in allocating additional expenditures and greater parliamentary involvement.

• Comprehensiveness and Transparency (PI-5 to PI-10):

  • Budget classifications are generally aligned with the 1986 GFS standard, but administrative classification is missing.
  • The Social Protection Fund is integrated with the budget but managed separately.
  • Fiscal risks from SOEs and quasi-fiscal activities are not adequately monitored.
  • Annual budget reports are comprehensive but lack analytical content on new policies.
  • Public access to fiscal information is limited and incomplete.

• Policy-Based Budgeting (PI-11 and PI-12):

  • A multi-year expenditure framework (MTEF) is being re-established, but implementation remains weak.
  • The budget process is orderly, but internal deadlines and policy-budget linkages are not well developed.
  • Capital budgeting is fragmented and needs better integration with recurrent budgets.

• Predictability and Control in Budget Execution (PI-13 to PI-21):

  • Tax collection remains weak, with significant arrears, especially from large enterprises.
  • Payroll controls and internal audit functions are underdeveloped.
  • Procurement reforms are ongoing, but institutionalization is lacking.
  • Cash flow forecasting and management need improvement as revenue discrepancies decrease.

• Accounting, Recording, and Reporting (PI-22 to PI-25):

  • Basic accounting systems are in place, but a modern double-entry system is a priority.
  • Budget execution reports are not submitted for annual external audit.
  • Accounting standards do not meet international norms and are not systematically disclosed.

• External Scrutiny and Audit (PI-26 to PI-28):

  • External audit is weak and lacks independence.
  • Audit is primarily focused on compliance rather than performance or value for money.
  • The SFCC was dissolved and merged into a new committee, which has raised concerns about the separation of audit and anti-corruption functions.
  • Parliament does not fully review audit findings, and audit reports are only submitted in summary form.

• Donor Practices (D-1 to D-3):

  • Donor assistance is still project-based, with limited use of national systems.
  • There is a need for greater donor coordination and alignment with national priorities.
  • Increasing the share of budget support could encourage a more comprehensive approach to development needs, but requires stronger PFM systems.

4. Impact of PFM Weaknesses

• PFM systems aim to achieve macro-fiscal discipline, strategic resource allocation, and operational efficiency.
• Tajikistan has made progress in macro-fiscal discipline, but the system remains fragile due to systemic risks and weaknesses.
• Strategic allocation of resources and operational efficiency require significant improvements.
• The introduction of an MTEF is seen as a key reform to enhance strategic planning, but it is still in early stages.

5. Prospects for Reform

• A new round of second-generation PFM reforms is being planned, focusing on:
  • Establishing an MTEF and strengthening financial planning.
  • Reforming revenue administration and budget classification.
  • Improving payroll controls and procurement systems.
  • Enhancing internal and external audit functions.
  • Strengthening intergovernmental fiscal relations and donor alignment.
• The reform agenda is broad and ambitious, requiring careful prioritization and sequencing.
• The Government of Tajikistan has shown commitment to PFM reform, but donor support and government leadership are essential for success.
• Improving predictability, transparency, and systemic efficiency is critical for future PFM improvements.

Key Recommendations

• Strengthen the independence of external audit institutions.
• Implement a modern financial management system with double-entry accounting.
• Enhance public access to fiscal information and promote transparency.
• Improve tax collection and revenue administration.
• Ensure policy-budget linkages and strategic allocation of resources.
• Develop a comprehensive multi-year expenditure framework.
• Promote donor coordination and alignment with national priorities.

Conclusion

Tajikistan has made some progress in improving its public financial management, but significant challenges remain. The country is in the process of reforming its PFM system, with a focus on increasing transparency, improving operational efficiency, and enhancing strategic resource allocation. Continued government ownership and donor collaboration are essential to ensure the success of these reforms.