1. The World Bank Tracking Progress and Controlling Funds Bill Dorotinsky, PREM BEFA Course January 10-12, 2005

2. The World Bank 2 Outline Concepts in Budget Execution Management Cash Management Analysis of budget execution –Exploring problems –Fun with data

3. The World Bank 3 Post Budget Stages Release of Authority to Spend or Funds –Notification of approved budget –Commitment authority issued (if done) Financial plans, apportionments –Warrants issued (cash draw) –Cash transfer (if done) In-year modifications –Transfer authority – within ministry across accounts –Virements – across ministries –Supplemental Budgets Concepts

4. The World Bank 4 Financial commitment stages Encumbrance/pre-commitment/reservation Commitment/obligation Receipt of goods and services Invoice Verification Paid Cashed/cleared Concepts

5. The World Bank 5 Budget classifications Administrative Economic/object class/’inputs’ Functional Program Fund Line Item Concepts

6. The World Bank 6 Control Approaches Ex ante (to commitment) Ex Poste External (to spending unit) (centralized) Centralized commitment control (transaction approval) Allocations (commitment limits) Warrants (cash limits) Procurement procedures Personnel/pay rules “continuous auditing” Disbursement rules Central internal audit External audit Regular reporting, management intervention Quarterly close-outs Cash rationing Performance reporting Internal (decentralized) Ministry or spending unit transaction approval Procedures to minimize risk (internal controls) Transparency Ministry internal audit Performance management Concepts

7. The World Bank 7 Central control versus Managerial Flexibility Tensions between needs of center to –Control cash flow –Control policy And agency need to manage programs –Larger, less detailed allocations –Longer time horizon –Greater transfer authority/flexible application of resources Concepts

8. The World Bank 8 Cash management Objectives: –Assure fund availability for meeting government obligations (liquidity) –Cash conservation –Minimize borrowing, borrowing cost –Maximize returns from idle cash –Risk management Tools: –Treasury consolidated fund (single account) –Financial plans –Warrants (allowable draws on TCF) –Invoice payment/cash rationing –Debt issuance –Supplemental budgets

9. The World Bank 9 Treasury Consolidated Fund (treasury single account) Single account or accounts under treasury management – consolidation of cash –The more accounts, the more difficult to manage, report Payment arrangements will vary: –Centralized: direct transaction from TCF –Deconcentrated: payment by spending agency from TCF –Decentralized: payment by spending agency from imprest account Cash management

10. The World Bank 10 Financial plans Important link between budget, agency programs and activity, cash flow –Links commitments and cash Used for cash flow forecasting when combined with revenue forecast –Allows planned, orderly debt issuance Usually monthly Periodic variance analysis to plan, budget Cash management

11. The World Bank 11 Cash Forecast and Balances: Rudiments of cash management Revenues 1 2 3 4 5 6 7 8 9 10 11 12 Spending Central Forecasts Agency Financial Plans/Allotments Balance Seasonal revenue fluctuation, spending patterns Structural revenue fluctuation, spending patterns Arrears Over- commmitment Random revenue shocks Annual predictable pattern

12. The World Bank 12 Corrective Measures: Smoothing cash flows Cash Balance Seasonal: 1.Keep allotments or commitments below revenue, build balances 2.Short-term debt 3.Limit cash payments to cash balances (arrears) Structural: 1.Budget retrenchment 2.Long-term debt 3.Allow commitment/spending only if revenues actually received 4.Contingent liability management 5.Comprehensiveness 6.Commitment controls Who bears the risk of fiscal adjustment under each option?

13. The World Bank 13 Cash rationing (misnomer cash budgeting) Last resort liquidity management Disruptive to programs, vendors High corruption potential –Need transparent ex ante rules –Public procedure Likely to undermine budget priorities Cash management

14. The World Bank 14 Applications

15. The World Bank 15 100 clinics, but only 70 operating 10 built with donor funds, donor funds off-budget Budget not comprehensive 10 built with domestic funds, capital budget separate Budget fragmented 10 funded in budget, but no cash allocated to operate Cash triage Donor ring-fencing for “accountability” Line ministry gets flexible resource pool Local staff seek higher PIU pay Above-the- waterline observation WHY? Weak budget law Too rigid budget executionLow public pay WHY? And what can be done about it? Exploring problems

16. The World Bank 16 Dominican Republic Budget Deviation, 1996-2000 Identifying sources of weakness for further investigation Identifying incentives at work Source: Dominican Republic PER 2003, background data

17. The World Bank 17 Dominican Republic Budget Deviation (ratio of executed to approved budget) Identifying trends for transparency Source: Dominican Republic PER 2003, background data

18. The World Bank 18 Level 1 Issues Republic budget revenues have performed closely to budget estimates, owing in large part to ZOP efficiency in revenue collection. Between 1995 and 2001, actual revenues collected averaged 99 % of planned levels. (This excludes own revenues and other off-budget revenues.) Republic expenditures have been less successfully contained. Between 1996 and 2001, actual Republic expenditures averaged 106 % of planned expenditures, with the variation growing to 119 % for 200 and 117 % for 2001. The Pension Fund has run a deficit in five of seven years between 1995 and 2001. The Health Fund has run a deficit in three of the last seven years, broke-even in three years, and had a surplus one year. The financing gaps requiring Republic Budget or other nonsocial contribution support has been increasing. Source: Serbia and Montenegro PEIR 2003, Volume III Montenegro

19. The World Bank 19 Level 3 Issues Technical efficiency In terms of technical efficiency, as with the Federal and Republic of Serbia systems reviewed in Volume 1, we have no detailed numbers on costs per unit of service delivered, or comparative procurement costs. However, a proxy measure is variation in aggregate budget position. For 2000, the wage bill variation from approved budget, by budget users, was 15 percent, ranging from a high of 42 % above budget for the Ministry of Justice to a low of 54 % below budget for the Customs Service. This degree of volatility in funding levels undermines effective program implementation. Budget users cannot plan in advance, focus on program effectiveness, efficiency, or improved productivity, if they are spending most of their time battling arrears or having no funds to operate their program. Source: Serbia and Montenegro PEIR 2003, Volume III Montenegro