INTRODUCTION TO PUBLIC FINANCE MANAGEMENT Module 3.1: Special issues: Payroll, Procurement and IT

Fraud Corruption Why improving Payroll and Procurement systems? 2 Largest expenditure items of Government

Fraud Action that misleads to obtain financial benefit Inside PFM system Corruption Giving or receiving financial benefit to influence decisions/actions Usually outside PFM system Why improving Payroll and Procurement systems?

Not paying employees and suppliers in a timely (and accurate) way reduces allocative efficiency (hampering public service delivery). Poor Allocative efficiency can lead to macro problems and reduces credibility of the budget. Why improving Payroll and Procurement systems?

Payroll procedures, processes and risks Procurement methods and best practice Use of IT, challenges of large IT projects Module Outline 5

Payroll procedures, processes and risks Procurement methods and best practice Use of IT, challenges of large IT projects Module Outline 6

Effective control is achieved by segregation of three sets of data files: Personnel and payroll data is to be updated promptly & may be linked or one database Payroll Management funded posts - payroll personnel database

Payroll Management - 2 Personnel files are dynamic – starters, transfers, and terminations Restricted access to data, clear authorization Audit trails for all changes Controls over standing data on wage rates, taxation etc Payroll audits and checks undertaken regularly 8

Ministry of Public Administration – controls the number and grades of posts and the personnel budget Public Service Commission – manages the appointment and promotion of staff (nominal roll) Above two functions may be combined Central Payroll (Ministry of Finance) – often decentralised Personnel management 9

(i) Degree of integration and reconciliation between approved staff lists, personnel records and payroll data. (ii) Timeliness of changes to personnel records and the payroll (iii) Internal controls of changes to personnel records and the payroll. (iv) Existence of payroll audits to identify control weaknesses and/or ghost workers. PEFA on Payroll (PI 18 in 2011 PEFA becomes PI 22 in 2015 PEFA test) 10

ActionAid study in 2006 showed that out of a sample of 41 countries with an IMF loan agreement, 18 had a ceiling on the wage bill Largest group of public sector workers are teachers, the second largest are health workers “Wage bill ceilings have been used to protect macroeconomic stability and still may be needed in exceptional cases, but their use should become less frequent” (IMF Board 2007) IMF public sector wage ceilings 11

Payroll procedures, processes and risks Procurement methods and best practice Use of IT, challenges of large IT projects Module Outline 12

Procurement is the process of: Identifying what is needed – procurement plan Determining who is the best person or company to supply this need – ordering/contracting Ensuring what is needed is delivered to the right place, at the right time, for the best price, and that all of this is done in a fair and open manner. Procurement 13

Planning Tendering advertising opening tender evaluation Quality control check delivery to order estimate value of work done Payment certification of payment retention, mobilization fee Procurement Process procurement plan specification/ bid documents Procurement methods and best practice

Standard list of suppliers Written quotations Formal tenders – pre-qualification Exceptions: Single source procurement Restricted tendering Procurement approaches 15

Integration of procurement into budget No initiation of procurement without available funds Segregation of duties. Transparency from the bidding stage to contract award (including bid prices) Effective Competition Procurement management

Effective competition in the selection of the contractors: Controls over contract slicing Adequate advertising Sealed bids Tender specification of both compliance criteria as well as evaluation criteria Prompt evaluations Adequate period for complaints/appeals after contract award Procurement management

Ministerial tender boards – letting contracts Central tender boards – letting larger contracts Public Procurement Authority – regulation, monitoring, complaints & training Central Purchasing Organisation Institutional arrangements 18

( i) Monitoring the efficiency and effectiveness of the procurement system shifted from the PEFA 2011 focus on regulatory framework to PEFA test 2015 focus on whether procurement is monitored (ii) Use of competitive procurement methods. (iii) Public access to complete, reliable and timely procurement information. (iv) Effectiveness of an independent administrative procurement complaints system. PI-19 in PEFA 2011 becomes PI-23 in PEFA test 2015 " Efficiency, transparency, competition and complaint mechanism in procurement” 19

The procurement system also contributes to many aspects of the PFM system. Its effectiveness is influenced or affects 12 other PEFA 2015 test indicators PI-2, PI-8, PI-9, PI-11, PI-12, PI-16, PI-21, P-24, PI-25, PI-27, PI-29 and PI-30 Broader Impact of Procurement system

Assessing Procurement Systems 21 Procurement methods and best practice

Existing legal framework that regulates procurement in the country Institutional architecture of the system Operation of the system and competitiveness of the national market Integrity of the procurement system. Base-Line Indicators address four pillars 22

Payroll procedures, processes and risks Procurement methods and best practice Use of IT, challenges of large IT projects Module Outline 23

Single integrated computer system for: all financial aspects: budgeting, general ledger, procurement payroll etc. all governments: local, provincial and national May bring government into 21st century and facilitate other major changes, but: 2003 World Bank survey – only 21% successful; took seven years to complete and cost on average $12.3million Integrated Financial Management Information System (IFMIS) 24 Use of IT, challenges of large IT projects

Payables Modules of an IFMIS Purchasing Receivables General Ledger Invoices/Payments Revenue tax & non-tax Approved Budget Estimates (e.g. MOH) Fixed Assets Commitment Control Cash & Debt Management Reconciliation Budget preparation Salary payments Payroll

Risks increase where: The project is more complex Capacity of local officials to critically assess all aspects of the project is limited The project is led or heavily influenced by external or foreign consultants Informed political support and the willingness to provide appropriate resources is not available IFMIS can be a high risk approach to development 26 Use of IT, challenges of large IT projects

Before starting … Acronyms list PDMS – Payroll Deductions Management System HRIMS – Human Resources Information Management Systems. MEDAID – Medical Aid S & T – Subsistence and Travel IRD – Inland Revenue Department ASYCUDA – Automated Systems for Customs Data and Administration GL- General Ledger AP – Accounts Payable AR – Accounts Receivable AM- Asset Management PO- Purchase Order CM- Cash Management HC - Housing Collateral Med Aid - Medical Aid DSA – Daily Subsistence Allowance Debt MGMT- Debt Management

ISLANDS OF DATA An example of Namibia 28 GENERAL LEDGER PAYROLL FUNDS CONTROL BANK RECON MANUAL CHEQUE S & T BUDGET COBOL NATURAL / ADABAS DELPHI EXCEL / MANUAL UNIFACE / INFORMIX DAMARA LOZI GERMAN FANIKALO AFRIKAANS T T PDMS HRIMS GREEK / SPANISH T CUSTOMS/ ASYCUDA ABAL ZULU IRD/TAXES PROGRESS SETSWANA MEDAID NATURAL / ADABAS LOZI T T DEBT MANAGEMENT TRANSLATOR

INTEGRATED DATA 29 ENGLISH G L DEBT MGMT ORACLE PDMS HRIMS ASYCUDA IRD BANKS EXTERNAL SYSTEMS C M P O A P A R AM BUDGET DSA Payroll Med Aid HC

Payroll risky area for Fraud Procurement is a risky area for fraud and corruption Standard internal controls can reduce this International standards and guidance available Do not be seduced by IT – it is not always the answer Key messages 30