2003年-世界发展银行全球_Ghana___Country_Procurement_Assessment_Report_Volume_2_Main_Report_109页_776kb

Ghana Country Procedure Assessment Report (CPAR) - 2003 Summary

Core Content

This report presents an assessment of public procurement procedures in Ghana, conducted in 2003 by the Ghana Country Department, Africa Region. It covers legal framework, contract management, public sector management, capacity building, private sector participation, anti-corruption measures, and risk assessment, providing a comprehensive overview of the state of public procurement in the country.

Main Findings

Legal Framework

• Ghana has a documented public procurement policy dating back to colonial times.
• The Constitution mandates sound economic management, including procurement, under "Directive Principles of State Policy."
• Core procurement laws are those that directly regulate procurement activities, while non-core laws are broader and may include provisions indirectly related to procurement.
• The Public Procurement Board (PPB) and Ghana National Procurement Agency (GNPA) are key institutions responsible for procurement, though their roles have evolved over time.
• A Public Procurement Bill was submitted to Parliament for enactment, aiming to improve the legal and regulatory environment.

Contract Management

• The assessment methodology involved reviewing contracts and analyzing procurement processes.
• Stores management and supplier's credits were found to be areas requiring improvement.
• Labor standards in works contracts were generally not well enforced.
• There were issues with contract delays, wrong deliveries, and inconsistent payment schedules.
• The value for money outcomes were mixed, with some contracts showing poor performance and inefficiencies.

Public Sector Management

• The public sector is organized into Central Management Agencies (CMAs), Ministries, Departments and Agencies (MDAs), District Assemblies (DAs), Sub-vented Agencies, and State Owned Enterprises (SOEs).
• Procurement Policy/Planning and standards formulation were identified as critical areas needing reform.
• Procurement processing, management, and monitoring institutions lacked clarity and coordination.
• The Supply and Materials Management Class (SMMC) plays a key role in managing procurement for various institutions.
• Project Management Units (PMUs) were involved in managing procurement and implementation.
• Enforcement and grievance redress institutions were weak and needed strengthening.
• The procurement function in MDAs and DAs lacked proper institutional arrangements and oversight.

Capacity Building and Training

• Training programs were identified as essential for improving the skills of procurement professionals.
• The number of procurement professionals was found to be low, with a need for more trained personnel.
• The Chartered Institute of Purchasing and Supplies (CIPS) membership was low in Ghana compared to other countries.
• A training program was recommended to enhance the capacity of procurement staff and improve their performance.

Private Sector Participation

• The private sector plays a significant role in public procurement, with local and foreign contractors active in the market.
• Consulting firms are also involved, though their numbers are limited.
• The role of private sector facilitating procuring entities was highlighted as important for improving efficiency and transparency.
• Financial institutions such as the Bank of Ghana (BOG) and Amalbank were involved in issuing guarantees and managing procurement-related financial flows.

Anti-Corruption Measures

• Corruption was identified as a major issue, with the Ghana Anti-Corruption Coalition (GACC) highlighting its debilitating effects on governance.
• The Transparency International Corruption Perceptions Index (CPI) ranked Ghana 50th out of 102 countries in 2002, with a CPI score of 3.9.
• The current government has emphasized a zero tolerance policy on corruption.
• Anti-corruption programs and measures were reviewed, including the involvement of private sector organizations and the establishment of grievance redress mechanisms.
• The report recommended strengthening anti-corruption enforcement and improving public oversight.

Customs and Ports Clearance Procedures

• The country's customs and ports clearance procedures were noted to be cumbersome and could increase transaction costs.
• There was a recommendation to revise customs procedures to reduce costs and improve efficiency.

Risk Assessment

• Risks were identified on both the contractor/supplier and public sector sides.
• Procurement-related risks included delays, poor performance, and lack of transparency.
• Mitigation options were suggested, including better monitoring, control, and transparency in public expenditure.
• The Public Procurement Reforms were in the final stages, with the Public Procurement Bill submitted to Parliament.

Action Plan

• The Action Plan outlines steps to improve procurement practices, including the implementation of procurement reforms.
• Training programs were recommended to enhance the capacity of procurement staff.
• Monitoring and supervision of the action plan were emphasized to ensure compliance and effectiveness.

Key Recommendations

• Strengthen the legal and regulatory framework for public procurement.
• Improve contract management practices, including timely delivery and proper payment schedules.
• Enhance public sector management through better planning, monitoring, and enforcement.
• Increase capacity building and training for procurement professionals.
• Facilitate private sector participation and collaboration.
• Strengthen anti-corruption measures and grievance redress mechanisms.
• Revise customs and ports clearance procedures to reduce transaction costs.
• Implement the Public Procurement Bill to formalize and improve procurement processes.

Conclusion

The CPAR 2003 report highlights the need for comprehensive reform in Ghana's public procurement system. While the country has a strong legal and policy foundation, implementation and enforcement remain weak. The report emphasizes the importance of transparency, accountability, and collaboration between the public and private sectors to improve procurement efficiency and reduce corruption risks.