2011年-世界发展银行全球_Nepal___Public_Expenditure_Review_-_Roads_65页_1mb

报告摘要

Summary of Nepal Public Expenditure Review - Roads (June 2011)

Core Content

This report presents a Public Expenditure Review (PER) on the road sector in Nepal, focusing on institutional arrangements, fiscal outcomes, and recommendations for improving public expenditure management. It is part of a programmatic effort to support the Government of Nepal's Three Year Plan and align resources with development goals.

Main Points

Fiscal Outcomes

Nepal has maintained prudent fiscal management, keeping the net domestic financing requirement and primary deficit at sustainable levels.
The debt-to-GDP ratio is the lowest in the region, at 37% in fiscal 2010, and is expected to remain within this range.
Current expenditure has increased to 14% of GDP, while fixed capital expenditure has declined, indicating a shift in resource allocation.
Transfer payments have become a growing portion of public expenditure, increasing from 4.4% to 8.1% of GDP, raising concerns about governance and efficiency.
The revenue collection target of 15.9% of GDP is likely to be missed due to slowing import growth, VAT collection issues, and revenue dependency on trade.

Road Sector Outcomes

Accessibility targets are within reach, with 91% of Hill people and nearly 100% of Tarai people within a 2-4 hour walking distance from a dirt road.
Rural roads are the top priority, with 33% of road sector investment directed towards them, and strategic roads follow with 26%.
Maintenance and rehabilitation have gained importance, now matching the investment level of strategic roads.
However, only 14 out of 75 district headquarters have all-weather roads, and only 40% of the population has access to paved roads within 20 minutes.
The proportion of poor condition strategic roads increased to 22.4% in fiscal 2010, from 18% in fiscal 2008.

Key Challenges

Inadequate budget realism leads to budget virement, which can distort resource allocation.
Transfer payments are increasing and raise concerns about governance and efficiency, with 30% of transfers falling under audit observations.
Informal sector marginalization in road construction, especially NGOs and CBOs, has been caused by state-dominated institutions.
Mechanical dozers are reducing local participation in road construction.
Ambiguous definitions of rural and agricultural roads and lack of monitoring under the Three Year Plan have led to duplication of efforts.
Low maintenance budgets are insufficient to cover the rate of road expansion.

Key Recommendations

Policy and Institutional Reforms

Adopt a single, umbrella law for road-sector development, starting with the completion of the local roads network (LRN) strategy.
Clarify responsibilities between the DoR and DoLIDAR for rural roads.
Review transfer policies to enhance downstream accountability, tying vertical transfers to improved accountability indicators.
Restore realism in the budget by reducing budget virement through early approval of annual work plans and halting virement altogether after nine months of the fiscal year.
Strengthen the Road Fund Board for road network maintenance.

Planning and Execution Improvements

Implement the District Transport Master Plan (DTMP) to control LRN expansion.
Assign unique codes to each road for monitoring physical and financial progress.
Delegate road asset management to DoLIDAR at the national level and District Development Committees (DDCs) at the local level.

Governance and Efficiency

Improve transparency and accountability in the use of funds to enhance public expenditure efficiency.
Enhance PFM systems to reduce costs due to multiple reporting and duplication.
Address institutional challenges such as informal sector exclusion and lack of monitoring mechanisms.

Institutional Arrangements

The road sector is managed by the Department of Roads (DoR) and the Department of Local Infrastructure Development and Agricultural Roads (DoLIDAR).
The Local Self-Governance Act (LSGA) and Local Bodies (Financial Administration) Regulations (LBFAR) define local governance and financial administration.
The Medium-Term Expenditure Framework (MTEF) and Budget Management Information System (BMIS) are used for fiscal planning and budget management.
Public Accounts Committee (PAC) and Internal Audit (IA) ensure accountability and oversight.

Economic Context

Nepal is in the middle of a political transition, with the Constitution Assembly (CA) extended in May 2011.
Economic growth slowed to 3.5% in fiscal 2011, the lowest since the end of the conflict.
Commercial services have been the main growth driver, with 5.8% annual growth.
Remittances are a significant source of income, now 20% of GDP (informal flows may push this to 25%).
Inflation has remained between 10-12%, with food inflation and imported inflation from India contributing significantly.
Investment in the social sector has been a priority, but economic sector funding is increasing due to the Three Year Plan focus on connectivity and access to economic capital.

Conclusion

The report emphasizes the need for improved public expenditure management in the road sector, particularly through institutional reforms, realistic budgeting, and enhanced accountability. It also highlights the importance of infrastructure investment for inclusive growth and the challenges posed by political instability and governance issues. The road sector is critical for achieving national accessibility targets and improving economic productivity, and the government must address inefficiencies and lack of coordination to ensure effective implementation.