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(IN FULFILLING THE CONSTITUTIONAL RESPONSIBILITY) ROYAL AUDIT AUTHORITY VISION “A credible Supreme Audit Institution that promotes value for money and good governance in public operations and contributes towards achieving the societal aspirations of Gross National Happiness.” MISSION “RAA is an independent constitutional body which contributes to accountability, transparency and effective service delivery. In the service of Tsa-Wa-Sum (the King, Country and People), we audit without fear, favour or prejudice and provide timely, reliable and quality audit services to assist effective decision making in the public sector.” CORE VALUES Integrity, Accountability, Transparency, Professionalism, Team Work. AUDITOR GENERAL’S PERSPECTIVE The Royal Audit Authority (RAA) is pleased to release its Annual Audit Report (AAR) 2019 in fulfilment of constitutional responsibilities. AAR has been prepared as required under Article 25.5 of the Constitution of the Kingdom of Bhutan and in line with Section 111 to 116 of the Audit Act of Bhutan 2018. AAR 2019 is a consolidated summary of significant unresolved audit findings compiled from 564 audit reports issued during the year. It also includes summaries for three theme-based compliance audits, 11 performance audits, and two joint audits of hydroelectric projects. The RAA has audited and certified Annual Financial Statements (AFS) of the Royal Government of Bhutan for year ended 30 June 2019 in accordance with International Standards of Supreme Audit Institutions (ISSAIs). The approved budget for Fiscal Year (FY) 2018-19 was Nu.45,128.177 million against estimated resources of Nu. 39,893.853 million with a fiscal deficit of Nu.5,234.324 million. During the year, budget outlay was revised to Nu. 49,527.566 million and estimated resources to Nu. 43,634.711 million. At the end of FY, actual expenditure reported was Nu.44,054.133 million against realized resources of Nu. 42,033.296 million resulting in resource gap of Nu. 2,743.430 million (including Nu. 722.593 million advance/suspense) which is about 1.50% of GDP. During the year, RAA issued 497 financial audit reports, including AFS of the RGoB, requiring audit opinion on the financial statements. The RAA expressed "Modified/Qualified" audit opinions on 25 accounts. As required under Audit Act of Bhutan 2018, the audited agencies concerned were provided with a period of one-month for taking necessary actions against unresolved audit findings. During the year, RAA reported irregularities involving Nu. 3,531.698 million of which, audit findings involving Nu. 2,116.545 million representing 59.93% were either resolved and/or were not found material for inclusion in AAR, based on actions taken and responses received from various agencies. The total unresolved significant irregularities reflected in AAR amounted to Nu. 1,415.153 million as on 31 March 2020. As compared to irregularities of Nu. 604.506 million reported in AAR 2018, irregularities reported have increased significantly by 134.10%. The increase is attributed mainly to issues relating to construction of Gyelposhing-Nganglam Road Project, overdue loans and advances and embezzlement of funds reported for Drungkhag Administration, Samdrupcholing. The RAA made audit recoveries of Nu. 181.900 million in 2019. The audit recoveries from Corporations and Financial Institutions are credited into Audit Recoveries Accounts (ARA) maintained in their respective corporate offices and as such, the ARA maintained by the RAA does not include recoveries made by these agencies. The total audit recoveries made by corporations and financial institutions in 2019 amounted to Nu. 10.356 million. As per the Projects Agreement signed between the RoGB and the GoI, the RAA and the Comptroller and Auditor General (C&AG), India jointly audited and issued reports for two hydroelectric projects during the year. The total unresolved significant irregularities reported in AAR 2019 amounted to Nu.380.624 million as on 31 March 2020. The total irregularities comprised of Non-compliance to Laws and Rules of Nu. 241.065 million (63.33%) and Shortfalls, Lapses and Deficiencies of Nu.139.559 million (36.67%). During the year, RAA issued 11 Performance Audit Reports and three specific theme-based Compliance Audit Reports and provided recommendations to enhance economy, efficiency and effectiveness in delivery of public services and management of resources. The AAR also highlights critical milestones and achievements of the RAA during the year. The audit report of accounts and operations of RAA for the year ended 30 June 2019 is annexed with report. It is submitted as part of ensuring accountability of RAA for resources used for delivering audit mandates and strengthening its organizational systems and human resources. It also highlights persisting challenges faced by RAA specifically in the areas of employee attrition, technical manpower, sustainability of implementing ISSAIs and in implementing audit results. I take this opportunity to acknowledge the unwavering support and cooperation rendered to RAA by the Parliament, Public Accounts Committee and other stakeholders throughout my tenure. Our stakeholders provided prompt responses which facilitated us in effectively delivering our mandates. The media have been instrumental in dissemination of audit reports and playing a critical role in promoting transparency and accountability in the use of public resources. The RAA looks forward to receiving continued support in our endeavor to contribute promoting good governance in the country through auditing and reporting on economy, efficiency and effective in the use of public resources and strengthening public accountability. Lastly, I would like to offer my humble gratitude to His Majesty the King for the trust and confidence bestowed on me to provide leadership to this august institution. We solemnly pledge to continue committing ourselves to audit without fear, favour or prejudice. (Tshering Kezang) Auditor General of Bhutan TABLE OF CONTENTS 1.1. CERTIFICATION OF ANNUAL FINANCIAL STATEMENTS .................................................... 1 2.1. SUMMARY OF AUDIT FINDINGS ................................................................................................ 18 2.1.1. FRAUD AND CORRUPTION ................................................................................................................... 20 2.1.2. EMBEZZLEMENT ....................................................................................................................................... 20 2.1.3. MISMANAGEMENT ................................................................................................................................... 21 2.1.4. NON-COMPLIANCE TO LAWS AND RULES ..................................................................................... 21 2.1.5. SHORTFALLS, LAPSES AND DEFICIENCIES ................................................................................... 22 2.2. SUMMARY OF JOINT HYDROPOWER AUDITS ...................................................................... 23 3. DETAILED AUDIT FINDINGS............................................................................................................ 26 3.1. MINISTRIES ...................................................................................................................................... 26 3.1.1. MINISTRY OF AGRICULTURE AND FORESTS ................................................................................ 26 3.1.2. MINISTRY OF EDUCATION .................................................................................................................... 32 3.1.3. MINISTRY OF ECONOMIC AFFAIRS ................................................................................................... 37 3.1.4. MINISTRY OF FINANCE .......................................................................................................................... 39 3.1.5. MINISTRY OF FOREIGN AFFAIRS ....................................................................................................... 40 3.1.6. MINISTRY OF HEALTH ............................................................................................................................ 41 3.1.7. MINISTRY OF HOME AND CULTURAL AFFAIRS .......................................................................... 44 3.1.8. MINISTRY OF INFORMATION AND COMMUNICATION ............................................................ 50 3.1.9. MINISTRY OF LABOUR AND HUMAN RESOURCES ..................................................................... 55 3.1.10. MINISTRY OF WORKS AND HUMAN SETTLEMENT ................................................................... 57 3.2. DZONGKHAGS ADMINISTRATION ............................................................................................ 71 3.2.1. DZONGKHAG ADMINISTRATION, BUMTHANG ........................................................................... 71 3.2.2. DZONGKHAG ADMINISTRATION, CHHUKHA ............................................................................... 76 3.2.3. DZONGKHAG ADMINISTRATION, DAGANA .................................................................................. 80 3.2.4. DZONGKHAG ADMINISTRATION, LHUENTSE .............................................................................. 84 3.2.5. DZONGKHAG ADMINISTRATION, MONGGAR .............................................................................. 85 3.2.6. DZONGKHAG ADMINISTRATION, PARO ........................................................................................
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