2012年-世界发展银行全球_Government_of_Tajikistan_Public_Expenditure_and_Financial_Accountability_Assessment_141页_4mb

Summary of the 2012 PEFA Assessment of Tajikistan

Core Content

The 2012 Public Expenditure and Financial Accountability (PEFA) Assessment of Tajikistan provides a comprehensive review of the country's public financial management (PFM) systems, highlighting both progress and areas requiring further improvement. The assessment was financed by the World Bank and Swiss Aid, with support from the UK Department for International Development (DfID). It was executed under a World Bank contract and compares the 2012 findings with the 2007 PEFA assessment to evaluate the evolution of Tajikistan's PFM performance.

Main Findings and Key Points

Overall Improvement

• General Trend: The assessment shows significant improvement in most performance indicators (PIs) compared to the 2007 report.
• Rating Changes: Several indicators have moved up in rating, while others remain unchanged or show minor improvements.
• Key Reforms: The report notes that various PFM reforms are either newly implemented or in the process of implementation, including a new Chart of Accounts, a new Supreme Audit Act, and the adoption of the Medium Term Expenditure Framework (MTEF).

Budget Credibility (PIs 1-4)

• PI-1 (Aggregate Expenditure Out-turn): Improved from B to A. Budget estimates have become more accurate, with deviations less than 5% (except for 2009).
• PI-2 (Composition of Expenditure Out-turn): Improved from C to C+. There are still differences between original plans and actual allocations, but the system is moving toward better alignment.
• PI-3 (Aggregate Revenue Out-turn): Improved from A to B. Revenue has marginally exceeded budget expectations in recent years, and forecasting has become more reliable.
• PI-4 (Payment Arrears): Performance unchanged. While there is a better understanding of liabilities, arrears tracking remains inadequate.

Comprehensiveness and Transparency (PIs 5-10)

• PI-5 (Budget Classification): Improved from D to B. The budget now includes administrative and program classifications, though they are not yet fully operational.
• PI-6 (Comprehensiveness of Budget Documentation): Unchanged at A. Recent budget documentation meets most of the 9 information benchmarks.
• PI-7 (Unreported Extra-Budgetary Operations): Improved from C+ to B+. Extra-budgetary expenditure is low, and the system for recording development partner loans and state debt has improved.
• PI-8 (Transparency of Inter-Governmental Fiscal Relations): Improved from B to B+. Transparency in fiscal transfers between sub-national (SN) governments has increased.
• PI-9 (Monitoring of Fiscal Risk): Improved from C to C+. A new agency now monitors fiscal risk, though consolidated risk reporting is still lacking.
• PI-10 (Public Access to Fiscal Information): Improved from D to C. The government has made initial progress in making fiscal information accessible through websites, but external audit is still in development.

Policy-Based Budgeting (PIs 11-12)

• PI-11 (Orderliness and Participation in Budget Process): Improved from B to B+. The parliamentary budget commission is now more involved early in the process.
• PI-12 (Multi-Year Fiscal Planning): Performance unchanged at D+. While some multi-year planning has been introduced, the system is not yet fully integrated or operational.

Predictability and Control in Budget Execution (PIs 13-21)

Revenue Administration (PIs 13-15)

• PI-13 (Transparency of Taxpayer Obligations): Improved from C to B. Legislation has been tightened and simplified, with an active awareness campaign.
• PI-14 (Effectiveness of Tax Registration and Assessment): Improved from D+ to C. A database is in place, but integration with other systems is needed.
• PI-15 (Effectiveness in Tax Collection): Improved from NR to D+. The new system of direct tax collection into the Single Treasury Account is a significant improvement.

Budget Execution & Cash/Debt Management (PIs 16-17)

• PI-16 (Predictability of Funds for Expenditures): Performance unchanged at D+. Cash planning is not based on real needs, and there is a tendency for in-year adjustments.
• PI-17 (Recording and Management of Cash Balances, Debt, and Guarantees): Performance unchanged at C+. Daily cash balance information is available, but reconciliation practices need to be more standardized.

Internal Controls (PIs 18-21)

• PI-18 (Payroll Controls): Performance unchanged at D+. The system is robust but not automated, leading to limited reconciliation improvements.
• PI-19 (Procurement Controls): Improved from C to C+. Legal framework is in place, but the complaints handling system lacks independence.
• PI-20 (Internal Controls for Non-Salary Expenditures): Performance unchanged at C+. There is a good understanding of expenditure rules, but controls need strengthening.
• PI-21 (Internal Audit): Improved from D+ to C+. Internal audit is developing, with more training applied, but still not fully operational to international standards.

Accounting, Recording, and Reporting (PIs 22-25)

• PI-22 (Timeliness and Regularity of Reconciliation): Improved from B to B+. The Single Treasury Account has improved reconciliation processes.
• PI-23 (Availability of Information on Resources to Service Delivery Units): No comprehensive data has been collected in the last 3 years, which is a concern for ensuring effective resource allocation.
• PI-24 (In-Year Budget Reports): Timely and regular reports are produced, enabling effective monitoring at all levels.
• PI-25 (Consolidated Government Statement): Timely preparation and submission to Parliament, with full information on revenue, expenditure, and financial assets/liabilities.

External Scrutiny and Audit (PIs 26-28)

• PI-26 (External Audit): Not yet in place, but the Law on the Supreme Audit Institution (SAI) was adopted in 2011.
• PI-27 (Legislative Scrutiny): Improved. The parliamentary committee is more involved in the budget process.
• PI-28 (Public Access to Audit Reports): No progress has been made. The absence of an operational SAI affects transparency and accountability.

Key Reforms and Initiatives

• PFM Reform Program: Aims to strengthen the PFM system, including the introduction of a new Chart of Accounts and a new Supreme Audit Act.
• Single Treasury Account: Implemented to improve cash management and reconciliation.
• Medium Term Expenditure Framework (MTEF): A new initiative that is expected to enhance budgeting with a multi-year perspective.
• Tax Code Revisions: A new tax law was drafted and is set to take effect in 2013, simplifying the tax system and improving transparency.
• Procurement System: Evolving with a legal framework, but the complaints handling system lacks independence.
• Internal Audit: Developing with more training, but needs to implement international standards for better performance.

Areas for Improvement

• Arrears Management: Needs better tracking and aging of liabilities.
• Automated Systems: Lack of automation in payroll and internal audit systems hampers efficiency and accuracy.
• Consolidated Risk Reporting: No system exists for consolidated fiscal risk assessments at the sub-national level.
• Tax Collection: While there is progress, the system still needs refinement, particularly in penalties and audits.
• Public Access to Information: Although improved, external audit and full transparency remain critical gaps.

Conclusion

The 2012 PEFA assessment highlights that Tajikistan has made notable progress in improving its public financial management systems since 2007, particularly in budget credibility, comprehensiveness, and transparency. However, several areas—such as internal audit, tax collection, and risk management—require further development to meet international standards and ensure sustainable fiscal accountability. The continued implementation of PFM reforms and the development of a robust legal and institutional framework will be essential for achieving long-term improvements.