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Budgeting in Austria Christina Schilhan Course on Macroeconomic Implications of Fiscal Issues, Joint Vienna Institute, April 2011.

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Presentation on theme: "Budgeting in Austria Christina Schilhan Course on Macroeconomic Implications of Fiscal Issues, Joint Vienna Institute, April 2011."— Presentation transcript:

1 Budgeting in Austria Christina Schilhan Course on Macroeconomic Implications of Fiscal Issues, Joint Vienna Institute, April 2011

2 Introduction Christina Schilhan Senior legal counsel in Budget Reform Task Force Directorate for Budget and Public Finance Austrian Federal Ministry of Finance 2

3 Austrian Budget Reform 1.Overview of the Austrian Federal Budget Reform: 1 st stage since 2009 2 nd stage as of 2013 2.Budget Process 3.Conclusion 3

4 Macro Fiscal Policy competences in Austria Ministry of Finance (MoF) has macro-fiscal policy competence Competences: according to the Constitution and Organic Budget Law Overall-coordination (of federal government but also with lower levels of government) Setting of the fiscal stance Setting-up of federal budget and budget rules Taxes and fees Economic policy assessments of laws 4

5 Federal Budget Reform As MoF has the competence of organic budget law, MoF decided to plan a federal budget reform. Primary motivation: Improved budgetary decision-making Addresses the following weaknesses of the current system: – No binding medium-term perspective – Prevailing focus on inputs – Control monopoly of classic Cameralistics The budget as a comprehensive steering instrument for resources, outputs and outcomes Integrative and comprehensive approach Implementation in two stages: 2009 and 2013 5

6 Austrian Federal Budget Reform - Overview 6

7 Implementation: 2 Stages, 3 Legislative Amendments Amendment of... Constitution: 1 st and 2 nd stage: Objectives, Tools, Principles Budget Law (1 st stage since 2009): New budget management on macro-level New Organic Budget Law (2 nd stage as of 2013): New budget management on micro-level Unanimously adopted in Parliament in Dec. 07 Unanimously adopted in Parliament in Dec. 09 7

8 Efficiency True and fair view Transpa- rency Budgetary Principles in the Austrian Constitution Focus on outcomes 8

9 Characteristics of Budget Reform in Austria I First Stage as of 2009: System until 2009Existing System since 2009 Annual budgets Just medium term planning Results: not legally binding Unused funds: End of year – flexibility only in exceptional cases Annual budgets Medium term expenditure framework (MTEF) Expenditure ceilings: legally binding Fixed: 4 years in advance Unused funds - reserves: full end of the year- flexibility (Each minister his/her own finance minister) 9

10 MTEF law sets expenditure ceilings For 4 years For 5 headings (headings cover several ministries) and For about 30 budget chapters (ministry specific) MTEF sets ceilings for the highest permissible personnel capacity for each line ministry MTEF = binding for budget planning and execution Heading level: binding for 4 years Budget chapter level: binding for 1 year Medium-Term Expenditure Framework (MTEF) 10

11 2 kinds of ceilings: nominally fixed: ̴ 75% of expenditure Variable: According to predefined indicators for expenditure areas with high exposure to economic cycle, Depending on tax receipts, Refunded by EU, Payments from due liabilities Rolling forward planning: 4 th year is added annually Medium-Term Expenditure Framework (MTEF) 11

12 Medium-Term Expenditure Framework (MTEF) Headingy+1y+2y+3y+4 1General Government Affairs, Court and Security 2Employment, Social Services, Health and Family 3Education, Research, Art & Culture 4Economic Affairs, Infrastructure and Environment 5Financial Management and Interest 12 MTEF is accompanied by an explanatory Strategy Report for planning and policy making purposes.

13 Win-Win-Situation for Budget Discipline and Line Ministries Clear commitment to medium-term fiscal discipline, in exchange for Increased flexibility and improved medium-term planning for ministries, since: Unused funds at the end of the year may be carried forward to future periods (December-Fever stopped) Same rules apply for receipts over budget during the current year No earmarking of these reserves MTEF: survived the stress-test during the financial crisis 13

14 2 nd Stage of Budget Reform – Overview System until 2013New system starting in 2013 Accounting and budgeting: C ash-based Budget structure: Detailed legally binding appropriations (> 1000) Input-orientation Accounting and budgeting: Two binding perspectives: cash + accrual Budget structure: Legally binding global budgets (~ 70) Performance budgeting: Incl. gender equality as integral part of the budget process on all levels of administration 14

15 2 nd Stage of Budget Reform - Overview System until 2013New system starting in 2013 Budget discipline: Weak incentives and penalties No long term fiscal projection Budget discipline: Incentives and penalties considerably strengthened Long term fiscal projection ( > 30 years) Results: Comprehensive reform package implying huge cultural change for administration and politics. 15

16 New Budget Structure Total Budget Headings Budget Chapters Global Budgets Detail Budgets Cost Accounting Transparent budget structure as a prerequisite for other reform elements MTEF: 5 Headings ~ 30 1-5 global budgets Flexible steering tool Shown in the budget documents Enacted by Parliament Binding within public administration 16

17 Accrual accounting and budgeting Operating Statement (direct linkage with federal cost accounting system) Statement of Financial Position (Balance Sheet) Cash Flow Statement Orientation on IPSAS (International Public Sector Accounting Standards) Purpose: to provide relevant financial information 17

18 Aims to be achieved with Performance Budgeting 1.Show which outputs and outcomes are to be achieved with underlying budget 2.Facilitation of priority setting for politics and subsequently in the public administration 3.Strengthened performance accountability for line ministries and budget managing bodies 4.Transparent presentation of results achieved by the public administration for the public and the Parliament The budget as a strategic policy instrument 18

19 Gender Budgeting Constitutional budgetary principle as of 2013: Outcome orientation including gender budgeting Integrated approach: Gender dimension is considered on all budget management levels such as strategy report (medium term), budget chapters, global budgets & detail budgets Does not mean to allocate separate budgets for men & women Implementation of gender mainstreaming in budgeting: Requires gender analysis Definition of objectives (external/societal versus internal/ministry specific) Formulation of activities in order to achieve the objectives Monitoring 19

20 Annual Budget Statement as of 2013 per Chapter 1/2 Mission Statement: Cash Flow Statement Ceiling MTEF Budget n+1 Budget n Actual n-1 Receipts Expenditures – fix ceiling Expenditures – variable ceiling Total expenditures Net cash balance Operating Statement Budget n+1 Budget n Actual n-1 Revenues Expenses Net balance Legally binding 20

21 Annual Budget Statement as of 2013 per Chapter 2/2 Outcome objective 1: Why this objective: What will be done to achieve this objective: What would success look like: Max. 5 outcome objectives per chapter 1 outcome objective directly addressing gender equality Overall objective: Integrated view on budget and performance information 21

22 Annual Budget Statement as of 2013 per Global Budget 1/2 Comment: On global budget level, total expenses (operating statement) and total expenditures (cash flow statement) are legally binding. Global Budget xx.01 Operating StatementBudget n+1 Budget n Actual n-1 Revenues from operating activities and transfers Revenues from financing activities Revenuesl Personnel expenses Operating expenses Transfer expenses Expenses on financial activities Expenses …variable expenses thereof Net balance Global Budget xx.01 Cash Flow StatementBudget n+1 Budget n Actual n-1 Receipts from operating activities and transfers Receipts from investment activities Receipts from repayments of loans Receipts Personnel and operating expenditures Expenditures from transfers Expenditures from investment activities Expenditures from loans Expenditures …variable expenditures thereof Net cash balance Legally binding 22

23 Annual Budget Statement as of 2013 per Global Budget 2/2 Activities/Outputs (max. five incl. gender-activity) Contribution to outcome objective/s no. What will be done to achieve the outcome objectives? Activities/Outputs: What does success look like? Milestones/Indicators for n+1 What does success look like? Results for year n according to performance-report Comments on activities/outputs of the preceding budget statement, which are no longer listed in the present budget statement Recent recommendation of the Court of Audit Response of the ministry 23

24 Austrian Budget Reform 1.Overview of the Austrian Federal Budget Reform: 1 st stage since 2009 2 nd stage as of 2013 2.Budget Process 3.Conclusion 24

25 The Budget Cycle for MTEF and annual budget 4. Court of Audit creates a federal statement of accounts (annual report) 2. Parliament -adopts the Draft Law Resolution -adopts the Federal Statement of Accounts 1. Ministry of Finance creates and the Federal Government passes a federal (medium term and annual) budget draft 3. Ministry of Finance and the Line Ministries execute the federal budget law Federal Statement of Accounts Federal Budget Law Federal Budget Draft Statement Budget Control 25 Annual report as a prerequisite for Annual budget

26 Impact-Oriented Budget Management – Definition of Roles Line Minister: responsible for performance budgeting & performance controlling on ministry level Head of agency/budget managing body: responsible for budget management of their detail budgets, implementation of measures to achieve performance objectives Ministry of Finance: defines the framework for impact- oriented budget management & performance budgeting Federal Chancellery: responsible for performance controlling and for the personell plan of the budget Court of Audit: responsible for annual financial statements, audits, advisory role to the government. New: summary of recommendations from recent audits put in the budget bill on global budget level 26

27 27 Budget process at a glance Parliament decision (May) Top-down MoF communicates financial targets Annual budget in line with MTEF – same process as for MTEF Parliament (April) Execution of the budget Budget controlling Budget negotiations Budget passed by parliament becomes law (December) Auditing Parliament: Budget Speech (October) MTEF in spring Annual budget in autumn Forecast Line ministries: Fixing of Performance Targets

28 Budget process in detail 1/3 Step one: budget estimates – made by MoF Based on economic forecasts of an independent research institute (Austrian Institute for Economic Research – WIFO: Supplemented by facts of actual situation Used as background information for policy-making and as basis for planning only On the level of budget chapters (not for line items or programmes) Forecastings horizon: current year + 4 years (cycle of the MTEF) According to EU-requirements and national requirements Made once a year, periodically, substantial macroeconomic changes According to macro-economic factors: annual trends in GDP, inflation, unemployment rate In areas of specific interest: tax revenues, interest expenditures, annuitant, family benefits, education explicit distinction between mandatory and discretionary spending in base line estimates 28

29 Budget process in detail 2/3 Step two: definition of budget goals per year (according to EU- standards) according to budget steering measures Step three: consolidation target (difference of step one + two) defined Step four: how to allocate consolidation to each line ministry: decision on expenditure cuts: across the board versus targeted cuts which line ministry contributes how much relation of expenditure cuts and increases in revenues 29

30 Budget process in detail 3/3 Step five: each ministry receives targets for expenditures (maximum) and revenue (minimum) per year of MTEF Very restrictive negotiations with line ministries Or decision is made at top government level and no more negotiations with line ministries Step six: budget draft decided in government and in parliament – MTEF becomes law in May, annual budget in December 30

31 External control European Commision via EU-economic policy surveillance IMF-Article IV consultations OECD-surveys Rating Agencies Public Debt Committee (focus on debt sustainability and debt management) Court of Auditors (mainly micro-management) 31

32 Budgeting in Austria 1.Overview of the Austrian Federal Budget Reform: 1 st stage since 2009 2 nd stage as of 2013 2.Budget Process 3.Conclusion 32

33 The Austrian Federal Budget Reform Is a comprehensive reform addressing the whole system and not only specific elements Is more than a mere change of managerial, budget and accounting rules – international appreciation as best practice Involves cultural change within the administration as well as on the political level (setting priorities, defining measurable objectives, transparent decision-making, etc.) 33

34 Further future projects within the Budget Reform Time frame until 2013: Drafting regulations to define specific reform details, eg. opening balance sheet Adopting IT-Systems Trainings for civil servants and further coaching for politicians Pilot projects this year Parallel system in 2012 To-Dos as of 2013: Implementing Budget Reform also in federal states Consolidation of detached entities 34

35 Thank you for your attention! Contact address: Dr. Christina Schilhan Senior Legal Advisor in Budget Reform Task Force Directorate for Budget and Public Finance Austrian Federal Ministry of Finance Tel: +43 151433 502007 Hintere Zollamtsstraße 2b, A-1030 Vienna 35

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