2013年-世界发展银行全球_Pakistan_Punjab_Province___Public_Financial_Management_and_Accountability_Assessment_84页_3mb

Summary Assessment of Public Financial Management and Accountability in Punjab Province, Pakistan (June 2012)

Core Content

The report presents a Public Financial Management and Accountability Assessment (PFMAA) of the Government of Punjab (GoPb), conducted in June 2012. It evaluates the PFM system across six key areas, including budget credibility, comprehensiveness and transparency, policy-based budgeting, predictability and control in budget execution, accounting and reporting, and external scrutiny and audit. Additionally, it examines donor practices and central government transfers, and provides an overview of the trajectory of change since the last assessment in 2007.

Main Points

1. Budget Credibility (PI 1-4)

• Overall Performance: Mixed, with improvements in aggregate expenditure and revenue out-turns but higher deviations at the sub-aggregate level.
• Reasons for Deviations: The 2010 floods and economic turmoil led to the diversion of funds for relief efforts, impacting the budget's credibility.
• Revenue Forecast: Sound, primarily due to federal transfers under the NFC Award. Own-source revenue performance is strong.
• Arrears Management: No progress has been made in consolidating expenditure payment arrears, which affects financial accountability.

2. Comprehensiveness and Transparency (PI 5-10)

• Budget Content: Comprehensive, including economic assumptions, development plans, and liabilities.
• Accounting Model: The New Accounting Model (NAM) is used, which aligns with international standards (COFOG and GFS).
• Transparency Issues: Lack of consolidated risk assessment and delayed legislative scrutiny of audit reports.
• Information Sharing: Deficiency in timely sharing of funds allocation information with district governments, affecting their budget preparation.

3. Policy-Based Budgeting (PI 11-12)

• Budget Process: Well-defined with a clear budget cycle and departmental ceilings.
• MTFF Implementation: Only five departments are currently implementing the Medium-Term Fiscal Framework (MTFF).
• Sector Strategies: Separate strategies for education and health are developed, while others provide a foundation but lack detailed costing.
• Debt Management: Regular debt sustainability analysis is conducted, but foreign exchange gains/losses are not accounted for.

4. Predictability and Control in Budget Execution (PI 13-21)

• Weaknesses: Procurement, tax system, and internal audit are identified as key areas of concern.
• Procurement: Lacks detailed procedures and guidelines under the PPRA Rules 2009.
• Tax Collection: Limited effectiveness due to weak enforcement, complex procedures, and lack of tax audit.
• Internal Audit: No comprehensive system is observed, which affects financial control.

5. Accounting, Recording, and Reporting (PI 22-25)

• Accounting Procedures: Sound and regular, with weekly/monthly reconciliation.
• Reporting Accuracy: In-year reports are accurate and timely, but commitments are not fully captured.
• GFMIS Connectivity: Available to all line departments, facilitating budget resource tracking.
• Non-tax Revenue: Emphasis is placed on improving the recording and reporting of non-tax revenue and development expenditure.

6. External Scrutiny and Audit (PI 26-28)

• Audit Completion: External audits are completed expeditiously, but legislative scrutiny is delayed.
• PAC Review: Significant delay in the review of audit reports by the Public Accounts Committee (PAC), with a backlog of compliance actions.
• Audit Reforms: The Auditor General of Pakistan (AGP) has improved the timeliness of audit report submissions, with 75% of audit reports now submitted on time.

7. Donor Practices (DI 1-3)

• Types of Aid: Includes foreign loans, budgetary support, and project-specific aid.
• Fiscal Year Mismatch: Donors have different fiscal year-ends, affecting the timely receipt of forecast information.
• Reliance on National Procedures: Donors are increasingly using national procedures, which improves transparency and accountability.

8. Central Government Practices (HLG-1)

• Funding Source: Federal Government is the main source of funds for Punjab.
• NFC Award: Funds are transferred under the NFC Award, but the last year's end-loading of funds impacts budget execution.
• Fiscal Stability: Timely and adequate transfers were observed, but the end-loading practice may affect fiscal discipline.

Key Findings

• PFM Weaknesses: Procurement, tax collection, and internal audit are the main areas of concern.
• Trajectory of Change: Since 2007, 9 indicators showed decline, 14 remained unchanged, and 8 showed positive progress.
• Reforms: Punjab has introduced various reforms, including the PRMP, tax reforms, and automation of payroll and land revenue systems.
• Need for Improvement: There is a need for better internal audit, regular tax audits, and improved donor coordination.

Conclusion

The report highlights the mixed performance of Punjab's PFM system and emphasizes the need for further reforms to enhance transparency, accountability, and efficiency in financial management. It also outlines the importance of addressing weaknesses in procurement, tax administration, and internal audit to ensure better fiscal discipline and service delivery.