Final Report 31 January 2014
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Public Expenditure and Financial Accountability Assessment PEFA Report Republic of South Africa Western Cape Province Final Report 31 January 2014 Acknowledgments This assessment of the public financial management in Western Cape, South Africa made use of the PEFA performance measurement framework. The PEFA assessment of the Western Cape Province was conducted between October and November 2013 and is based on information covering the period April 2010 to March 2013. The assessment was based on the scope of work defined by the National Treasury. Numerous meetings and discussions have been held with Western Cape Provincial Treasury led by its head, Dr Johan Stegmann , supported by a facilitation team of senior managers (Ms Analiese Pick, Ms Julinda Gantana and Marcia Korsten), and CFOs of the WCDOH, Human Settlements and Housing, Education, Health, Economic Development and Tourism and head of assurance under the Premier’s Office. Dr Stegmann not only attended the key meetings, but availed himself to resolve key challenges. His support and that of his staff was instrumental in the successful completion of the assessment. Special mention is made of Chris Adams from the National Treasury who helped and facilitated the team to secure appointments and obtain key information for the assessment. Page ii List of abbreviations and acronyms AccGen Accountant-General AG Auditor-General AFROSAI Africa Organisation of Supreme Audit Institution AGA Autonomous government agencies AO Accounting officer ASB Accounting Standards Board BAS Basic accounting system B-BBEEA Broad-Based Black Economic Empowerment Act BC Budget council BIU Business intelligence unit BO Budget office BS Budget support COMAF Communication of audit findings CC Commitment control CFI Consolidated financial information CFO Chief financial officer COFOG Classifications of the functions of government CPI Consumer price index DDG Deputy director-general DE Department of Education DG Director-general DH Department of Health DHS Department of Human Settlements DORA Division of Revenue Act DORB Division of Revenue Bill DPW Department of Public Works DOT Department of Transport EPRE Estimates of provincial revenue and expenditure FFC Financial and Fiscal Commission FMIP Financial management improvement programme FY Fiscal year GDP Gross domestic product GFS Government financial statistics GFSM Government financial statistics manual GNI Gross national income GRAP Generally Recognised Accounting Practice HDI Human development index HOD Head of department, also referred to as accounting officer HR Human resources IA Internal audit ICT Information and communications technology ID Identification document IDASA Institute for Democracy in South Africa IDC International development cooperation IFMIS Integrated financial management information systems IGR Intergovernmental relations (Division) IIA Institute of Internal Auditors IMF International Monetary Fund INTOSAI International Organisation of Supreme Audit Institutions ISA International Standards on Auditing JBC Joint budget committee LG Local government MCB Ministers’ committee on budget MEC Member of the executive council Page iii MF Minister of Finance MFMA Municipal Finance Management Act MTBPS Medium-term budget policy statement MTEC Medium-term expenditure committee MTEF Medium-term expenditure framework NA National Assembly NCOP National Council of Provinces NDM National department minister NDP National Development Plan NRF National revenue fund NT National Treasury ODA Official development assistance OMA Offices, ministries, agencies OSD Occupational specific dispensation OTP Office of the Premier PAA Public Audit Act PAIA Promotion of Access to Information Act PARC Provincial audit and risk committee PCF Portfolio committee on finance PE Public entity PEFA Public expenditure and financial accountability PETS Public expenditure tracking survey PF Public finance PFM Public finance management PFM PMF Public finance management performance management Framework PFMA Public Finance Management Act PI Performance indicator PIAS Provincial internal audit services PPP Public private partnership PRF Provincial revenue fund PT Provincial treasury PU Procurement unit RDP Reconstruction and Development Programme S&T Subsistence and travel SA South Africa SACCI South African Chamber of Commerce and Industry SACU Southern African Customs Union SADC Southern African Development Community SARB South African Reserve Bank SARS South African Revenue Service SASAMS South African school administration and management system SBS Sector budget support SCM Supply chain management SCOPA Standing committee on public accounts SEIFSA Steel and Engineering Industries Federation of South Africa SITA State Information and Technology Agency SMME Small, medium and micro enterprise SNG Sub-national government SOE State-owned enterprise TOR Terms of reference TSA Treasury single account VAT Value Added Tax WCDOH Western Cape Department of Health WCPG Western Cape provincial government ZAR South African Rand Page iv Table of contents Summary assessment ................................................................................................... 1 1. Integrated assessment of PFM performance ........................................................................... 1 2. PEFA performance indicators ................................................................................................... 5 1. Introduction ........................................................................................................... 6 1.1 Objective ...................................................................................................................................... 6 1.2 Process ........................................................................................................................................ 6 1.3 Scope ........................................................................................................................................... 6 2 Background information ............................................................................................ 7 2.1 Western Cape province: Socio-economic background .......................................................... 7 2.2 Allocation of resources and budgetary outcomes .................................................................. 7 2.3 Legal and institutional framework of PFM ............................................................................. 10 3. Assessment of the PFM systems, processes and institutions ....................... 19 3.1 Credibility of the budget .......................................................................................................... 19 HLG1 Predictability of transfers from a higher level of government ............................................. 19 PI-1 Aggregate expenditure out-turn compared to original approved budget ............................ 21 PI-2 Composition of expenditure out-turn compared to original approved budget .................... 22 PI-3 Aggregate revenue out-turn compared to original approved budget .................................. 24 PI-4 Stock and monitoring of expenditure payment arrears ....................................................... 25 3.2 Comprehensiveness and transparency ................................................................................. 27 PI-5 Classification of the budget ................................................................................................. 27 PI-6 Comprehensiveness of information included in budget documentation ............................. 29 PI-7 Extent of unreported government operations ..................................................................... 32 PI-8 Transparency of inter-governmental fiscal relations ........................................................... 34 PI-9 Oversight of aggregate fiscal risk from other public sector entities .................................... 37 PI-10 Public access to key fiscal information ............................................................................... 40 3.3 Policy-based budgetting .......................................................................................................... 42 PI-11 Orderliness and participation in the annual budget process .............................................. 42 PI-12 Multi-year perspective in fiscal planning expenditure policy and budgeting ....................... 44 Predictability and control in budget execution ................................................................................ 47 PI-13 Transparency of taxpayer obligations and liabilities ........................................................... 47 PI-14. Effectiveness of measures for taxpayer registration and tax assessment ..................... 51 PI-15 Effectiveness in the collection of tax payments.(M1).......................................................... 53 PI-16 Predictability in the availability of funds for commitment of expenditures .......................... 55 PI-17 Recording and management of cash balances debt and guarantees ................................ 58 PI-18 Effectiveness of payroll controls ......................................................................................... 60 PI-19 Transparency competition and complaints mechanisms in procurement........................... 63 PI-20 Effectiveness of internal controls for non-salary expenditure ............................................. 69 PI-21 Effectiveness of internal audit ............................................................................................