2014年-世界发展银行全球_Belarus_Public_Expenditure_and_Financial_Accountability___Public_Financial_Management_Performance_Report_144页_3mb

报告摘要

Belarus Public Financial Management Performance Report Summary (June 2014)

Core Content of the Report

This report presents the findings of the Public Expenditure and Financial Accountability (PEFA) assessment of Belarus' public financial management (PFM) performance from 2010 to 2012. It evaluates the credibility of the budget, comprehensiveness and transparency, policy-based budgeting, predictability and control in budget execution, accounting and reporting, and external scrutiny and audit. The report also outlines the impact of PFM weaknesses and prospects for reform.

Key Findings

A. Credibility of the Budget

Budget Deficit Control: The government succeeded in maintaining fiscal discipline and containing the budget deficit.
Expenditure Deviations: Actual expenditures exceeded planned levels in two out of three years, with a deviation of over 30% in 2011.
Revenue Deviations: Revenue collection exceeded original estimates due to high inflation in 2011 and 2012.
Expenditure Composition: Variance in expenditure composition was above 10% in 2010 but decreased to below 10% in 2011 and 5% in 2012.
Payment Arrears: The stock of expenditure payment arrears remained low, but aligning with international standards and improving registration of invoice due dates could enhance monitoring.

B. Comprehensiveness and Transparency

Budget Documentation: Comprehensive and complete, largely aligned with IMF GFSM and CoFoG.
Data Collection: Complete budget execution data is collected and reported for all levels of government.
Transparency Gaps: There are still gaps in the availability of certain financial data, such as exchange rate estimates and financial asset stock information.
Extra-budgetary Activities: Over 10% of central government expenditures are managed outside the formal budget process, including own-source revenues and cross subsidies.
Tax Expenditures: Not fully reflected in the budget, reducing transparency.
Fiscal Risk Oversight: Limited oversight of fiscal risks from public enterprises (PEs) and the banking system, despite their significant role in the economy.

C(i). Policy-Based Budgeting

Annual Budget Process: Orderly, with clear instructions provided to MDAs on economic and other assumptions.
Budget Code: Provides a basic budget calendar, but lacks detailed schedules for key dates.
MDA Participation: MDAs participate throughout the budget process, but the time allowed for detailed budget preparation is limited.
Multi-Year Perspective: Limited, with forward estimates not systematically linked to annual budget allocations.
Investment Budget: A prioritization process exists, but it remains separate from the main budget process.

C(ii). Predictability and Control in Budget Execution

Tax Reforms: Significant improvements in the taxation system, including a unified Tax Code and simplified procedures.
Tax Compliance: Effective tax registration and assessment mechanisms, with a six-month audit plan based on taxpayer risk.
Treasury Single Account (TSA): Implemented for most central government accounts, with daily reconciliation. However, some own-source revenues and small extra-budgetary funds remain outside the TSA.
Cash Flow Management: Annual cash flow forecasts are prepared and updated quarterly. The system provides certainty for funding but allows for some informal monitoring.
Payroll Controls: Strong and well-understood, with high compliance levels.
Procurement Controls: Improved since 2009, but lacks a comprehensive system to validate compliance with legal requirements. A procurement Complaints Commission was established, but it lacks private sector and civil society representation and no legal requirement for publishing resolutions.

C(iii). Accounting, Recording, and Reporting

Accounting Systems: Basic systems are in place for accounting, recording, and reporting.
Reconciliation: Regular reconciliation between Treasury and ministry data.
Service Delivery Units: Accounting records are maintained for all service delivery units, providing reliable monthly, quarterly, and annual data.
Commitments Reporting: No separate reporting of commitments.
Accounting Standards: Based on national rules, which are applied consistently but not aligned with international standards. Not disclosed in annual financial statements.

C(iv). External Scrutiny and Audit

Supreme Audit Institutions: The State Control Committee (SCC) performs many of the functions of an independent supreme audit institution, but its scope is limited and audit procedures are not fully disclosed.
Audit Follow-Up: Recommendations from SCC audits are followed up by the government, but neither recommendations nor their implementation are published.
Legislative Scrutiny: Limited to hearings on the SCC conclusion of annual budget execution. SCC is not required to provide inspection reports to the legislature or discuss them in parliamentary committees.
Budget Review Procedures: Clear procedures exist for legislative budget review, but the official time for formal review is insufficient, and informal reallocation of funds is permitted without legislative consent.

Impact of PFM Weaknesses

Aggregate Fiscal Discipline:
- Weaknesses in budget credibility and fiscal risk oversight may undermine long-term fiscal stability.
Strategic Allocation of Resources:
- Limited multi-year planning and lack of integration between investment and main budget processes hinder strategic resource allocation.
Efficient Service Delivery:
- Extra-budgetary activities and limited transparency may affect the efficiency and value for money of public services.

Prospects for PFM Reforms

The report highlights the need for further reforms to improve the comprehensiveness, transparency, and integration of PFM systems.
Implementation of a rules-based transfer formula for subnational governments and a more robust financial management information system are identified as key areas for improvement.
Strengthening external audit procedures and ensuring the publication of audit findings and recommendations are recommended.
Enhancing the integration of investment budgeting with the main budget process and improving the oversight of fiscal risks from public enterprises are also suggested.

Key Recommendations

Strengthen the budget credibility through improved forecasting and alignment with international standards.
Enhance transparency by unifying financial reporting structures and disclosing all key fiscal information.
Implement a rules-based transfer formula and improve the integration of extra-budgetary activities into the main budget process.
Expand the scope of external audit and ensure legislative scrutiny of audit findings.
Improve the link between multi-year fiscal planning and annual budget allocations.
Strengthen the procurement system with comprehensive validation and public reporting mechanisms.
Develop a system for automatic synchronization between HR and accounting systems for payroll controls.

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