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(c) 1999 Arunaselam Rasappan “RESULTS ORIENTED BUDGETING REFORMS: MALAYSIA & SINGAPORE” WORLD BANK Washington, DC 15 JULY, 1999 ARUNASELAM RASAPPAN, PhD. EXECUTIVE DIRECTOR ARTD (Malaysia) Management, Evaluation, & Research Associates Kuala Lumpur
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(c) 1999 Arunaselam Rasappan THE SOCIO-ECONOMIC ENVIRONMENT in MALAYSIA/ SINGAPORE
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(c) 1999 Arunaselam Rasappan BUDGET REFORMS & NATIONAL STRATEGIES / AGENDA _________________________________________ * DYNAMIC SOCIO-ECONOMIC ENVIRONMENT * SOCIO-ECONOMIC DEVELOPMENT * NATION-BUILDING * GLOBALIZATION * COMPETITIVENESS * ENABLING MECHANISMS
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(c) 1999 Arunaselam Rasappan BUDGET REFORMS & OTHER CAUSAL FACTORS _________________________________________ * RISING EXPECTATIONS * TREND TOWARDS RIGHTSIZING * SCARCE RESOURCES * NEW PUBLIC MANAGEMENT INITIATIVES * INCREASING DEMAND FOR GREATER ACCOUNTABILITY
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(c) 1999 Arunaselam Rasappan THE ACCOUNTABILITY AGENDA _________________________________________ “PROGRAM RESULTS” “SERVICE QUALITY” “MORE WITH LESS” “VALUE FOR MONEY” “RESOURCES OPTIMIZATION” “IMPROVED ACCOUNTABILITY”
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(c) 1999 Arunaselam Rasappan FINANCIAL ACCOUNTABILITY ENSURING COMPLIANCE WITH FINANCIAL RULES AND REGULATIONS $
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(c) 1999 Arunaselam Rasappan MANAGEMENT ACCOUNTABILITY l MANAGEMENT EFFICIENCY l ENSURING QUALITY l MINIMIZING WASTAGE l OPTIMIZING RESOURCES
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(c) 1999 Arunaselam Rasappan PROGRAM ACCOUNTABILITY l ENSURING PROGRAM ACHIEVES OBJECTVES l PROGRAM PRODUCES MANDATED RESULTS l PROGRAM RESULTS FULFILL CLIENTS’ NEEDS l BEST OPTIONS ARE CHOSEN
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(c) 1999 Arunaselam Rasappan BUDGET REFORMS
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(c) 1999 Arunaselam Rasappan BUDGET REFORMS * LINE-ITEM BUDGETING (Pre 60s) * CENTRALIZED * DETAILED CONTROL * INCREMENTAL * REACTIVE BUDGETS * PROGRAM PERFORMANCE BUDGETING SYSTEM (PPBS) (1960s TO 1990s) * PROGRAM/ACTIVITY BASED * PERFORMANCE FOCUS * DETAILED CONTROL * CENTRALIZED
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(c) 1999 Arunaselam Rasappan BUDGET REFORMS PERFORMANCE-ORIENTED BUDGETING (1990s) * MODIFICATION TO PPBS * PROGRAM / ACTIVITY BASED * AGGREGATE CONTROL * GREATER FLEXIBILITY * PERFORMANCE BASED * RESULTS FOCUS * PERFORMANCE TOOLS
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(c) 1999 Arunaselam Rasappan BUDGET REFORM SEQUENCING ISSUES * STAGE OF SOCIO-ECON DEV’T * RESOURCE AVAILABILITY * RESOURCE CAPACITIES * CULTURAL & VALUE SYSTEMS * FOCUSSED & STRUCTURED * PRACTICAL EXAMPLES * TECHNICAL ASSISTANCE * LEADERSHIP & VISION
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(c) 1999 Arunaselam Rasappan ASSOCIATED PUBLIC SECTOR REFORMS
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(c) 1999 Arunaselam Rasappan DRIVERS OF OTHER PUBLIC SECTOR REFORMS & FOCUS p CRITICAL DEVELOPMENT MECHANISMS * CHANGE AGENTS * DEV’T FACILITATORS p GLOBAL COMPETITIVENESS * MALAYSIA INC. * CHANGE AGENTS * GROWTH FACILITATORS p CAPACITY & CAPABILITY BUILDING p PUBLIC SERVICE FOCUS
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(c) 1999 Arunaselam Rasappan ASSOCIATED PUBLIC SECTOR REFORM INITIATIVES ò PRODUCTIVITY IMPROVEMENTS ò TQM ò ISO 9000 ò QUALITY IMPROVEMENTS ò CONTINUOUS IMPROVEMENTS ò PERFORMANCE REPORTING ò INNOVATIONS IN GOVERNMENT
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(c) 1999 Arunaselam Rasappan í ASSET MANAGEMENT í COSTING OUTPUTS/ACTIVITIES í CLIENT CHARTERS í SERVICE RECOVERY í COUNTER SERVICE í COMPLAINTS HANDLING í PERFORMANCE BUDGETING ASSOCIATED PUBLIC SECTOR REFORM INITIATIVES
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(c) 1999 Arunaselam Rasappan LINKAGE BETWEEN BUDGET REFORMS & MANAGEMENT REFORMS Z CRITICAL ROLE OF MANAGEMENT REFORMS Z LINK WITH NATIONAL DEV’T Z LINK WITH ECON. GROWTH Z LINK WITH SERVICE QUALITY Z MISSING LINKS WITH BUDGET REFORMS Z INTEGRATED PERFORMANCE MANAGEMENT FRAMEWORK
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(c) 1999 Arunaselam Rasappan DIFFICULTIES IN ADOPTING AN INTEGRATED PERFORMANCE MANAGEMENT FRAMEWORK Z LACK OF PROVEN AND WORKABLE MODELS Z INTRICACIES & DIFFICULTIES Z INABILITY OF POLICY-MAKERS AND PROGRAM MANAGERS Z LACK OF RESOURCES Z LACK OF EXPOSURE AND GUIDANCE
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Program Logic & Linkages Model (ProLL Model) CLIENTS NEEDS / PROBLEMS POLICIES PROGRAM/ ACTIVITY INPUT (RESOURCES) PROCESS OUTPUT OUTCOME Objective Achievement (rate / level ) OBJECTIVE Needs Fulfillment / Problem alleviation (rate / level) Mission Goals Arunaselam Rasappan (1992)
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(c) 1999 Arunaselam Rasappan LINKAGE BETWEEN BUDGET REFORMS & RESOURCES MANAGEMENT
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(c) 1999 Arunaselam Rasappan NATIONAL BUDGET APPORTIONMENT BETWEEN DEVELOPMENT & OPERATING BUDGET
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(c) 1999 Arunaselam Rasappan DEVELOPMENT BUDGET = 30% OPERATING BUDGET = 70% COMPOSITION OF OPERATING BUDGET? EMOLUMENT =60-70%
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(c) 1999 Arunaselam Rasappan The Results-Oriented Budgeting System (MBS/PBS)
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(c) 1999 Arunaselam Rasappan THE RBB SYSTEM l IMPLEMENTED IN 1990 (1996) l BASED ON THE PPBS (1969) l NOW INTEGRATED WITH KEY ELEMENTS OF THE PPBS, ZBB, AND MBO l BASED ON THREE MAJOR ACCOUNTABILITY TYPES l “LET MANAGERS MANAGE & MAKE MANAGERS MANAGE”
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(c) 1999 Arunaselam Rasappan THE RBB SYSTEM l TRUST & EMPOWERMENT l ACCOUNTABILITY FOR FLEXIBILITY l PERFORMANCE AGREEMENTS BETWEEN CEO & MINISTRY OF FINANCE l EXPENDITURE TARGETS BASED ON THREE YEAR BUDGET TRENDS & BUDGET FORMULA
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(c) 1999 Arunaselam Rasappan THE RBB SYSTEM l TREATMENT OF CURRENT POLICIES, NEW POLICIES, & ONE-OFFS l PERFORMANCE AGREEMENT & ANNUAL REPORTING l VARIANCE ANALYSIS & EXCEPTIONS REPORTING l EFFICIENCY DIVIDEND l “THRESHOLD” OR EXCESS CLAUSE
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(c) 1999 Arunaselam Rasappan BUDGET FORMULA 3-YEAR AVERAGE TO ESTABLISH EXPENDITURE TARGETPLUS INCREMENTSPLUS INFLATIONPLUS CURRENCY LOSSMINUS “ONE-OFFS”MINUS EFFICIENCY DIVIDEND
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(c) 1999 Arunaselam Rasappan THE PERFORMANCE MANAGEMENT FRAMEWORK
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(c) 1999 Arunaselam Rasappan THE MISSION & PiL STRATEGIC PLAN GOALS & OBJECTIVES PERFORMANCE PLAN PERFORMANCE MANAGEMENT ELEMENTS PERFORMANCE REPORTING PERFORMANCE EVALUATION USE OF PROGRAM LOGIC
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Program Logic & Linkages Model (ProLL Model) CLIENTS NEEDS / PROBLEMS POLICIES PROGRAM/ ACTIVITY INPUT (RESOURCES) PROCESS OUTPUT OUTCOME Objective Achievement (rate / level ) OBJECTIVE Needs Fulfillment / Problem alleviation (rate / level) Mission Goals Arunaselam Rasappan (1992)
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STRATEGIC PERFORMANCE MANAGEMENT » CONSCIOUS EFFORT AT MEASUREMENT » “VALUE FOR MONEY” » PROGRAM OUTPUTS & OUTCOMES » RESOURCES AND RESULTS LINKAGES » IMPROVED EFFICIENCY & EFFECTIVENESS » REDUCED WASTAGE (ECONOMY) » APPROPRIATENESS / RELEVANCE » “KEY RESULT AREAS” » GET YOUR BASICS RIGHT FIRST! GREATER FOCUS ON :
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THE “PROGRAM LOGIC” APPROACH BASIC & FUNDAMENTAL QUESTIONS FIRST! PURPOSE-IN-LIFE (PiL) TERMS OF REFERENCE (ToR) DOING THE“RIGHT THINGS, THE RIGHT WAY, FOR THE RIGHT BENEFICIARIES!”
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(c) 1999 Arunaselam Rasappan PROCESS MEASUREMENT * EFFICIENCY TIME LABOR COST * EFFECTIVENESS * QUALITY * RELEVANCE * APPROPRIATENESS
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(c) 1999 Arunaselam Rasappan IMPACT MEASUREMENT * POSITIVE * NEGATIVE * INTENDED * UNINTENDED
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(c) 1999 Arunaselam Rasappan IMPACT MEASUREMENT * DIRECT * INDIRECT * SHORT TERM * LONG TERM
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OUTCOMES & LOGICAL LINKAGES OUTCOME CLIENTS’ NEEDS & PROBLEMS OBJECTIVESOBJECTIVES INTERNALEXTERNAL POSITIVENEGATIVE INTENDED UNINTENDED POSITIVENEGATIVE INTERNALEXTERNAL
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Program Logic & Linkages Model (ProLL Model) CLIENTS NEEDS / PROBLEMS POLICIES PROGRAM/ ACTIVITY INPUT (RESOURCES) PROCESS OUTPUT OUTCOME Objective Achievement (rate / level ) OBJECTIVE Needs Fulfillment / Problem alleviation (rate / level) Mission Goals Arunaselam Rasappan (1992)
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PERFORMANCE EVALUATION * SYSTEMATIC & DETAILED REVIEW OF THE ACTIVITY * TO ASSEESS TO WHAT EXTENT IT HAS MET WITH PREDETERMINED GOALS AND OBJECTIVES * EXAMINE ISSUES OF EFFICIENCY, ECONOMY, AND APPROPRIATENESS OF THE ACTIVITY.
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PERFORMANCE EVALUATION * FORMATIVE EVALUATION * SUMMATIVE EVALUATION * META EVALUATION * EVALUATION OF “3E”s & “A”
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PERFORMANCE EVALUATION FORMATIVE EVALUATION - LINKED WITH KAIZEN & CONTINUOUS IMPROVEMENT ANNUAL EVALUATIONS - LINKED WITH BUDGET - EVALUATION ACTION PLAN SUMMATIVE EVALUATIONS - ONCE IN 5 YEARS
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ProLL EVALUATION POINTS FE Clients Target Group/s Stakeholders SE FE Relevance Validity Applicability SE Relevance Appropriateness Scope Coverage Relevance Appropriateness Scope Coverage SE FE Efficiency Effectiveness Economy FE Clients’ Charter Performance Targets Micro Accounting TQM & Quality Productivity Measures Service Recovery Counter Service Zero Defect ISO 9000 SE FE Quantity /Quality Timeliness /Cost Appropriateness SE FE Summative Evaluation Points Formative Evaluation Points CLIENTS BASIC NEEDS/ PROBLEMS POLICY PROGRAM/ ACTIVITY INPUT (RESOURCES) PROCESS OUTPUT (SERVICES/ PRODUCTS Efficiency Effectiveness Economy OUTCOME/ IMPACT/ CHANGES Positive Negative Unintended Derivative SE FE Efficiency Effectiveness Economy Objective Achievement (rate/level) FE SE Funds Manpower Materials Equipment Mission Goals OBJECTIVES Needs Fulfillment/ Problem Alleviation (Degree/Level) FE SE
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PERFORMANCE EVALUATION EVALUATION ISSUES: EFFECTIVENESS ISSUES EFFICIENCY ISSUES ECONOMY ISSUES APPROPRIATENESS ISSUES
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PERFORMANCE MEASUREMENT - DANGERS AND FALLACIES GOAL DISPLACEMENT QUANTITATIVE DRIVEN PROCESS OUTPUT DRIVEN FOCUS ON TANGIBLE OUTPUTS INDICATORS AS THE END OUTCOME OBSESSION COMPARTMENTATION
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GUIDELINES FOR EFFECTIVE PERFORMANCE MANAGEMENT USE PROGRAM LOGIC APPROACH CORRECT CLIENT IDENTIFICATION CORRECT NEEDS/PROBLEMS I.D. PiL & ToR ALIGNMENT STRATEGIC PLAN, CLEAR GOALS & OBJECTIVES INPUT-OUTPUT-OUTCOME LINK INTEGRATION WITH NPM EFFORT
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GUIDELINES FOR EFFECTIVE PERFORMANCE MANAGEMENT * PRIORITZE ALL PERFORMANCE MEASURES * CLEAR PERFORMANCE STANDARDS & RESPONSIBILITY * QUANTITATIVE & QUALITATIVE * COMPARE PERFORMANCE * EVALUATION & CONTINUOUS IMPROVEMENT * INTEGRATE INPUTS & OUTPUTS WITH OUTCOMES
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(c) 1999 Arunaselam Rasappan BUDGET REFORM IMPLEMENTATON STRATEGIES * STRATEGIC PLANNING * PREPARATORY WORK * INTER-AGENCY COORDINATION * ENABLING MECHANISMS * PILOT TESTING * STAGGERED IMPLEMENTATION * STAGGERED INTENSITY
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(c) 1999 Arunaselam Rasappan BUDGET REFORM IMPLEMENTATON - MISSING LINKS * OWNERSHIP & COMMITMENT FROM ALL LEVELS * PERFORMANCE MEASUREMENT SYSTEM * PERFORMANCE INFORMATION SYSTEM * INTEGRATION WITH OTHER MANAGEMENT REFORMS * INTER-AGENCY COORDINATION
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(c) 1999 Arunaselam Rasappan BUDGET REFORM & POLICY- MAKING * MAJOR MISSING LINK * INTRICACIES OF POLITICAL CONSIDERATIONS * POLITICAL V/S ADMINISTRATIVE DRIVEN * POLICY CONSIDERATIONS AS KEY COMPONENT OF BUDGETING * NEED FOR INTEGRATION BETWEEN PERF. MNGT, PERF. EVALUATION & POLICY-MAKING
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(c) 1999 Arunaselam Rasappan BUDGETING, FISCAL DISCIPLINE, ALLOCATIVE EFFICIENCY & OPERATIONAL EFFICIENCY
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(c) 1999 Arunaselam Rasappan BUDGETING, FISCAL DISCIPLINE, ALLOCATIVE EFFICIENCY & OPERATIONAL EFFICIENCY * IMPROVED FISCAL DISCIPLINE * Budget Discipline * Resource Predictability * Improved Planning * Reduced Supplementaries * IMPROVED OPERATIONAL DISCIPLINE * Improved financial mng’t * Less budget overruns * Focused Expenditures * Better value-for-money * Reduced Wastage
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(c) 1999 Arunaselam Rasappan BUDGETING, FISCAL DISCIPLINE, ALLOCATIVE EFFICIENCY & OPERATIONAL EFFICIENCY * LIMITED ALLOCATIVE EFFICIENCY * Reasonable success at agency levels * Limited success at politiical levels * Room for improvement
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(c) 1999 Arunaselam Rasappan BUDGETING EFFORTS TOWARDS IMPROVING EFFICIENCY GOVERNMENT COMMITED TOWARDS IMPROVING EFFICIENCY: * ENHANCED STRATEGIC PLANNING * PERFORMANCE PLANNING * MINIMIZING AD-HOC BUDGETS * LINKING RESOURCES & POLICY * MINIMIZE ONE-OFFS * EXPENDITURE CAPS * BALANCED BUDGET APPROACH * REDUCED ENTITLEMENTS & CHARGED EXPENDITURES * EXCEPTIONS REPORTING * COST CONSCIOUSNESS * FLEXIBILITY FOR ACCOUNTABILITY
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(c) 1999 Arunaselam Rasappan ACCOUNTING REFORMS
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(c) 1999 Arunaselam Rasappan ACCOUNTING REFORMS ò MINIMAL LINKS WITH BUDGET REFORMS ò ACCOUNTING REFORMS FROM 1960s ò MAJOR REFORMS LINKED BUT OTHERS WERE PIECEMEAL ò MAJOR ACCOUNTING REFORMS LINKED TO BUDGETS: ò MODIFIED CASH ACCOUNTING ò COST INFORMATION ò DECENTRALIZED ACCOUNTING ò INTEGRATED INFORMATION
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(c) 1999 Arunaselam Rasappan ACCOUNTING REFORMS ò CASH ACCOUNTING ò MODIFIED CASH ACCOUNTING ò SELF-ACCOUNTING AGENCIES ò DECENTRALIZATION TO STATES AND AGENCIES ò INTEGRATED REPORTING ò MICRO-ACCOUNTING ò ELECTRONIC GOVERNMENT
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(c) 1999 Arunaselam Rasappan BUDGETING, FISCAL RISKS & CONTINGENT LIABILITIES ò SPECIAL CIRCUMSTANCES OF DEVELOPING COUNTRIES ò TRANSPARENCY ISSUES IN BUDGETING ò COMPLIANCE WITH ACCOUNTING PRINCIPLES ò LINKAGE WITH BUDGETING PRACTICES
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(c) 1999 Arunaselam Rasappan TIME FRAMEWORK FOR BUDGETING
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(c) 1999 Arunaselam Rasappan TIME FRAMEWORK FOR BUDGETING ò ANNUAL BUDGETING ò PERFORMANCE BUDGETS & MULTI-YEAR FOCUS ò ELEMENTS OF MULTI-YEAR PLANNING & CEILINGS ò MODIFIED MULTI-YEAR BUDGETING WITH ESTIMATED RESOURCE CERTAINTY ò FORWARD ESTIMATES - DEVT V/S OPERATING BUDGETS
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(c) 1999 Arunaselam Rasappan IMPACT OF BUDGET REFORMS - MAJOR REFORM FEATURES & IMPACT ACCOUNTABILITY FOR FLEXIBILITY ANNUAL BUDGET CEILINGS PROGRAM AGREEMENTS & PERFORMANCE FRAMEWORKS FUNDS TRANSFER FLEXIBILITY EFFICIENCY DIVIDENDS PERFORMANCE MEASUREMENT PROGRAM EVALUATION & POLICY-MAKING PROCESSES
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(c) 1999 Arunaselam Rasappan “RESULTS ORIENTED BUDGETING REFORMS: MALAYSIA & SINGAPORE” WORLD BANK Washington, DC 15 JULY, 1999 ARUNASELAM RASAPPAN, PhD. EXECUTIVE DIRECTOR ARTD (Malaysia) Management, Evaluation, & Research Associates Kuala Lumpur
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