Audit Report on the Accounts of Tehsil Municipal Administrations District Sahiwal
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AUDIT REPORT ON THE ACCOUNTS OF TEHSIL MUNICIPAL ADMINISTRATIONS DISTRICT SAHIWAL AUDIT YEARS 2009-2012 AUDITOR GENERAL OF PAKISTAN TABLE OF CONTENTS ABBREVIATIONS AND ACRONYMS ...................................................................... ii PREFACE ......................................................................................................................iii EXECUTIVE SUMMARY ........................................................................................... iv SUMMARY TABLES AND CHARTS .....................................................................viii Table 1: Audit Work Statistics ......................................................................................viii Table 2: Audit Observations .........................................................................................viii Table 3: Outcome Statistics ............................................................................................. ix Table 4: Irregularities pointed out ................................................................................... ix CHAPTER-1 ................................................................................................................... 1 1. TEHSIL MUNICIPAL ADMINISTRATIONS, SAHIWAL ................................ 1 1.1 INTRODUCTION ................................................................................................. 1 1.1.1 Comments on Budget and Accounts (Variance Analysis)..................................... 2 1.2 Tehsil Municipal Administration Sahiwal ......................................................... 6 1.2.1 Non Production of Record ..................................................................................... 7 1.2.2 Irregularities & Non-Compliance .......................................................................... 9 1.2.3 Performance ......................................................................................................... 16 1.2.4 Internal Control Weaknesses ............................................................................... 22 1.3 Tehsil Municipal Administration Chichawatni .............................................. 24 1.3.1 Performance ......................................................................................................... 25 1.3.2 Internal Control Weaknesses ............................................................................... 28 Annexures ..................................................................................................................... 35 ABBREVIATIONS AND ACRONYMS ADP Annual Development Programme CCB Citizen Community Board DAC Departmental Accounts Committee FD Finance Department IPSAS International Public Sector Accounting Standards LG&CD Local Government & Community Development MFDAC Memorandum for Department Accounts Committee NAM New Accounting Model PAC Public Accounts Committee PDG Punjab District Government PLGO Punjab Local Government Ordinance PDSSP Punjab Devolved Social Sector Programme TAC Town Accounts Committee TMA Town Municipal Administration TMO Town Municipal Officer TO (F) Town Officer (Finance) TO (I&S) Town Officer (Infrastructure & Services) TO (P&C) Town Officer (Planning & Coordination) TO (R) Town Officer (Regulations) WHO World Health Organization ii PREFACE Articles 169 and 170 (2) of the Constitution of the Islamic Republic of Pakistan, 1973 and Section 115of the Punjab Local Government Ordinance, 2001 require the Auditor General of Pakistan to conduct the audit of the receipts and expenditure of the Local Fund and Public Accounts of Tehsil / Town Municipal Administrations of the Districts. The Report is based on audit of Tehsil Municipal Administrations of District Sahiwal for the years 2008-09, 2009-10 and 2010-11. The Directorate General of Audit District Governments Punjab (South), Multan, conducted audit during 2009-10, 2010-11 and 2011-12 on test check basis with a view to reporting significant findings to relevant stakeholders. The main body of Audit Report includes only the systemic issues and audit findings carrying value of Rs1 million or more. Relatively less significant issues are listed in the Annexure-I of the Audit Report. The Audit observations listed in the Annexure-I shall be pursued with the Principal Accounting Officer at the DAC level and in all cases where the PAO does not initiate appropriate action, the Audit observations will be brought to the notice of the Public Accounts Committee through the next year’s Audit Report. Audit findings indicate need for adherence to the regularity framework besides instituting and strengthening internal controls to avoid recurrence of similar violations and irregularities. Most of the observations included in this Report have been finalized in the light of written responses and discussion with the management. The Audit Report is submitted to the Governor of the Punjab in pursuance of Article 171 of the Constitution of the Islamic Republic of Pakistan, 1973 read with Section 115 of the Punjab Local Government Ordinance 2001, for causing it to be laid before the Provincial PAC. Islamabad (Muhammad Akhtar Buland Rana) Dated: Auditor General of Pakistan iii EXECUTIVE SUMMARY The Directorate General Audit, District Governments, Punjab (South), Multan, a Field Audit Office of the Auditor General of Pakistan is responsible to carry out the audit of all District governments in Punjab (South) including Tehsil and Town Municipal Administrations. Its Regional Directorate of Audit Multan has audit jurisdiction of District Governments, TMAs and UAs of six Districts i.e. Multan, Lodhran, Vehari, Sahiwal, Pakpattan and Khanewal. The Regional Directorate has a human resource of 23 officers and staff, constituting 1,255 man days and the budget of about Rs 6.275 million per financial year. It has the mandate to conduct financial attest audit, audit of sanctions, audit of compliance with authority and audit of receipts as well as the Performance Audit of entities, projects and programs. Accordingly R.D.A Multan carried out audit of the accounts of two TMAs namely TMA Sahiwal and Chichawatni of District Sahiwal for the financial years from 2008-09 to 2010- 2011 and the findings included in this Audit Report. Each Tehsil Municipal Administration in District Sahiwal is headed by a Tehsil Nazim / Administrator. He/she carries out operations as per Punjab Local Government Ordinance, 2001. Tehsil Municipal Officer is the Principal Accounting Officer (PAO) and acts as coordinating and administrative officer, responsible to control land use, its division and development and to enforce all laws including Municipal Laws, Rules and By-laws. The PLGO, 2001, requires the establishment of Tehsil / Town Local Fund and Public Account for which Annual Budget Statement is authorized by the Tehsil Nazim / Tehsil Council / Administrator in the form of Budgetary Grants. The total Development Budget of two above mentioned TMAs in District Sahiwal for the financial years from 2008-09 to 2010-11, was Rs731.770 million and expenditure incurred was of Rs455.794 million, showing savings of Rs 275.976 million. The total Non-development Budget for financial years 2008- 2011 was Rs859.831 million with and expenditure was of Rs802.149 million, showing savings of Rs57.682 million. The reasons for savings in Development and Non-development Budgets are required to be provided by TMO and PAO concerned. iv Audit of TMAs of District Sahiwal was carried out with the view to ascertain that the expenditure was incurred with proper authorization, in conformity with laws/rules/regulations, economical procurement of assets and hiring of services etc. Audit of receipts/ revenues was also conducted to verify whether the assessment, collection, reconciliation and allocation of revenues were made in accordance with laws and rules and that there was no leakage of revenue. a. Audit Methodology Audit was conducted after understanding the business processes of TMAs with respect to functions, control structure, prioritization of risk areas by determining their significance and identification of key controls. This helped auditors in understanding the systems, procedures, environment, and the audited entity before starting field audit activity. Audit used desk audit techniques for analysis of compiled data and review of permanent files/record. Desk Audit greatly facilitated identification of high-risk areas for substantive testing in the field. b. Audit of Expenditure and Receipts Audit of development expenditure of Rs159.279 million was carried out, out of total expenditure of Rs455.794 million and Audit of non-development expenditure of Rs 441.181 million out of total Rs802.148 million for the financial years 2008-2011 was conducted which are35%&55%of development and non- development expenditures respectively. Total overall expenditure of TMAs of District Sahiwal for the financial year 2008-11 was Rs1,257.943,out of which overall expenditure of Rs742.186 million was audited, which is 59% of total expenditure. Therefore, there was 100% achievement against the planned audit activities. c. Recoveries at The Instance of Audit Recoveries of Rs417.460 million were pointed out through various audit paras and no recovery was effected till the compilation of this Report. Out of the total recoveries Rs 193.663 was not in the notice of the Executive before audit. v d. The Key Audit Findings of the Report i. Non production of record of Rs164.059 million noted in one case.1 ii. Non-compliance of Rules and Regulations amounting to Rs52.484