topic 9 government budgeting and control.pdf

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TOPIC 9

GOVERNMENT BUDGETING

AND BUDGETARY CONTROL

Redeemer Krah

Kramankus ICA Family 2016

Redeemer krah@Kramankus ICA Family 1

Government Budgeting

What is a budget?

Budget refers to plan of an entity for a given period

expressed in financial terms.

It reveals the plan cost for attaining certain objectives of

an entity.

Forecast differs from budgeting in that forecast deals

with the determination of events bound to happen while

a budget deals with events that is reasonable to make

happen.

Forecasting is an important tool in budgeting.


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Government Budget

It is simply the plans of government for the forthcoming

year expressed in monetary terms.

It can be defined as a comprehensive plan expressed

in financial terms by which an operating programme is

effected for a given period for the purpose of attaining a

given objective.

It embodies an estimate of proposed expenditure for a

given period and proposed means of financing them.

It a process for systematically relating the expenditure

to the accomplishment of objectives



Importance of Government Budgeting

Helps to meet legal requirement

To facilitate Priority setting

For effective planning and control

For coordination of government activities

Tool for communication of government plans and programme

Serves as a tool for motivation to managers and employees

For performance evaluation of programme, projects and activities

It is a tool for public accountability.


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Limitation of Budgeting

Budget is very important in public financial

management however it has the following limitations:

Costly in terms of time and financial resources

Influenced by economic instability. In terms of rising

inflation the budget is rendered irrelevant for controlling

Behavioural effect in that the authorization of a about

may be misapplied.

Budgets does not allow for flexibility in decision making

as compliance is a must.

Budget can easy become an end rather than the mean

to an end.



Legal framework of government budgeting

Government budgeting is a mandatory process.

The preparation of a budget is provided for by

Article 179 of the Constitution

Part III of the FAA, 2003

Part V of the FAR, 2003


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Participants/ stakeholders in government budgeting

The main participants or stakeholders in government

budgeting include;

The president/cabinet

Minister of Finance and the ministry

Heads of departments and the budget committees

Parliament

Public


Government budgeting - participants

Role of President and Cabinet

Causing the budget to be prepared and laid before parliament at

least one month before the end of the current year.

Obtains the budget framework policy and table it at cabinet for

review and approval

Reviews and approves the budget proposal for submission to

parliament

Receives budget proposal of statutory institutions and submit them

to parliament.


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Government budgeting - participants Role of the Minister of FinanceThe MOF is the chief authority in national budgeting responsible for

the:

Planning

Determination

Allocation

Preparation,

Publication

Implementation

Monitoring

Evaluation; and

Control


Government budgeting - participants Role of Minister of FinanceSpecific roles of Minister of Finance in budgeting include:

Developing the budgeting framework policy and submit it to the president

Issue budget circulars /instructions to HODs

Receive budget proposals from HOD through the sector ministers

Conduct budget hearing

Prepare draft consolidated budget and submit to cabinet for review

Submit and present the proposed budget to parliament

Issues warrants and cash release instructions for the commitment and disbursement of funds approved to departments

Prepare and submit to parliament supplementary estimates

Monitor and control budget performance through budget control reports.


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Government budgeting - participants Role of Heads of Departments & Budget Committees

HODs are required to established budget committees in their departments.

BC will be made up of HOD and the heads of various BMC/CC.

BC has the ff responsibilities

Review and formulate strategic plans based on government policy

Review revenue collecting activities

Allocate resources based on objectives, outputs and activities

Coordinate and consolidate the budget

Monitor and evaluate budget performance

Report on the budget results



Role of Heads of departments and BCs

Specific role of HODs in budgeting are:

Make estimate of department revenues and

expenditure

Develop departmental budget instructions in line with

MOF budget guidelines

Submit estimates to MOF through sector minster

Participant in budget hearing and defend his

estimates

Exercise budgetary control over the departmental

activities


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Government budgeting - participantsActivities involved in Estimating department’s revenue for

the consolidated fund include:

Identify all existing revenue generating activities of the department

Identify all potential revenue generating activities of the department

Estimate the frequency of the these activities. For example, how many persons will apply for passport during the year?

Compute the revenue arising by multiplying the budgeted rates with the frequency of the activity. For example, if a passport application fee is GHC50, the revenue from passport will be GHc 50,000 if 1000 persons are expected to apply.

Prepare monthly forecast of revenue flow.



Activities involved in estimating department’s

expenditure of the consolidated fund include:

Consider the macro economic frame, resources

available, budget constraints, ceilings and priorities.

Prepare strategic plan including the mission, goals,

objectives, outputs and activities.

Cost and prioritize activities.

Prepare monthly estimate of expenditure.

Prepare a cash forecast showing outflows.


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Role of Parliament in budgeting

Receive budget proposal from president through MOF.

Examine, debate and approve the budget estimates through an

Appropriation Act.

Role of the Public

Government budgeting is a public process.

Make input in the formulation and approval stage.

Inputs are usually invited from civil societies, professional bodies

and the general public.


Government budgeting - PES

Public Expenditure Survey

In a system of analysing government expenditure which examines

the effect of government spending plan on the development of the

country.

Rationale of PES include:

Help plan activities within limited resources

Rationalized allocation of resources

To anticipate problems associated with spending plans and cure

them

To enhance coordination of government activities

Determine over all volume of public spending desirable


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Government Budgeting Cycle/Process

The budgeting process is a continuous activity which

occurs in a cycle.

Typical stages in the process are;

Budget formulation ( policy and preparation)

Budget authorisation

Budget approval

Budget execution

Budget Monitoring, Evaluation and control


Budgeting cycle

Formulation

Authorization

Approval

MOF


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Budget cycle – Formulation

This stage involves the budget policy formulation and

preparation of estimates

Budget Policy (Planning) stage

The MOF develops a budget framework policy and

submits it to the president at least 8 months to the end

of the current year.

The policy document specifies the economic targets,

government priorities, available resource base of

government, sector constraints and the budget ceilings

These issues are reviewed by cabinet and approved for

use in the budget process

It serves as the foundation for the budget preparation


Budget Cycle - formulationBudget preparation stage

The MOF issues a budget circular, budget

guidelines and instructions to the various heads

of departments

The heads through the budget committees

reviews and prepares their strategic plans,

makes estimate of revenues and expenditures

for the budget periods in line with the budget

instructions and constraints.

The heads submit their plans and estimates to

MOF through their sector ministers.


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Budget cycle – Authorization stageThe principal spending officers are call for a budget

hearing to defend their plans and estimates.

During the budget hearing the MOF ensures that the plans and estimates are consistent with government priorities, and budget constraints.

At this stage the MOF has the authority to determine the appropriateness of the plans and estimate of the departments prior to submission to cabinet

The MOF consolidates the budget estimate of the various departments and submits same to Cabinet for review and authorization.

Final national budget is prepared and signed (authorized) by the president for submission to Parliament


Budget cycle - Approval

Parliamentary Approval

The final budget is submitted to Parliament is a manner

prescribed by parliament.

The budget statement is laid before parliament in the

form of Appropriation Bill and Finance Bill

Parliament considers (examines) the estimates in small

groups (examination sub committees) and debate the

budget (whole house acting as appropriation

committee) and approve or disapproves it.

The expenditure estimates are approved by passing the

Appropriation Act.

The Finance proposal are approved in the Finance Act


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Budget cycle - ImplementationImplementation stage

Once the budget is approved, it is implements by

collecting the revenues and disbursing the expenditures

approved.

The MOF issues Warrants and cash release

instructions to the CAG to enable him to commitment

and disburse funds.

CAG disburses moneys according to the approvals


Budget cycle –

Monitoring, evaluation and Control There will be continuous process of monitoring, evaluating and controlling the budget throughout the execution stage.

This requires regular reporting of the budget out turns to the vote controllers

The actual results are compared with the planned outcome and the variance are investigated and corrective action taken.

The MOF is responsible for monitoring, evaluating and controlling the national budget.

HODs are responsible for MEC their respective budgets and report to the MOF through the SMs.


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Supplementary Estimates/Revised

BudgetIt is prepared when in the course of review it is found that

the amount of money appropriated for any purpose is

insufficient or that need has arisen for the expenditure for

a purpose for which no money has been appropriated.

Supplementary estimate or budget revision appropriate when

There is insufficient funds for existing activities

Emergency or unforeseen circumstances exist for which

postponement will not be in public interest

Where increase in cost of activities than anticipated in the budget

When extra revenue arisen which was not anticipated in the

budget.


Virement What is virement?

It refers to the rearrangement of budget provision for

sub-heads, item, sub-items or sub-sub item within the

ambit of a single head.

Approval of virement:

Virement of admin expenses may be authorized by

sector minister

Personal emolument cannot be vired unless

authorized by MOF

Virement between item need MOF authorization

MOF may delegate the authority to HODs


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Virement

Guidelines for using virement

It not allowed between expenditure heads

It also not allowed when capital expenditures

are involved

It not used for new activities not included in

the budget

it is possible only when savings are made in

an item not resulting from deferment.

It also not encouraged when it will lead to

change in government policy or directive.


Cash Budgeting

It is a budget statement that shows the projected receipts

(inflows) and payments (outflows) of an entity within a

given period and the available cash balances.

It is also known as cash forecast statement

Cash budget is a every important tool for managing cash

resources of the entity.

Cash a budget reveals the potential effects of all aspect

of entity’s operation on its future cash resources


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Cash Budgeting

Benefits of Cash Budgeting

It helps management to management its cash

resources efficiently and effectively.

It helps management to plan its activities within

available cash resources

It also assists management to address its cash

deficiency during the period before hand.


Cash budgetingConsiderations in preparing cash budget

Include all kinds of receipts and payment in the cash

budget

All non cash transactions such as depreciation, bad

debt e.t.c should be excluded from cash budget.

The timing of the cash receipt and payment must be

strictly adhered to.

Balancing of cash budget should be period by period

basis since the closing balance of the first period

becomes the opening balance of the next period.


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Budgetary controlWhat is Budgetary Control?

Budgetary Control involves the following steps:

preparation of a budget,

establishing responsibility,

measuring actual performance and comparing actual performance with the planned performance (budget), and

taking corrective measure where necessary.

It ensure that the budget is activated and that it influences organisation activities positively.

A head of department shall exercise budgetary control over the activities of the department and the MOF over national budget.


Budgetary Control

Budgetary control consolidates the importance of

budgeting. The benefits/objectives include;

To ensure effective planning and control.

To monitor and evaluate budget performance through

budget performance reports.

To motivate managers at all levels.

To ensure that objectives of the organisation is

achieved.

To co-ordinate and control the activities of the

organisations.

To enhance participation of managers at all levels.


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Budget Performance Report

Item/activity/

programme

Annual/revise

d budget

GHc

Period

Budget

GHC

Period

Actual

GHc

Variance

GHC


Budgetary Control Evasion of Expenditure Control

It refers to an inappropriate practice of varying the normal course of payment to avoid causing an excess on any item of expenditure or to avoid lapse of funds.

A head of department who permits evasion of control is in breach of financial discipline under the regulations

Evasion of expenditure control include but not limited to:

making payments in advance for goods or services to be delivered in the subsequent financial year; and

Place funds on deposit, with a service provider or any other agency to avoid the consequences of lapse of funds


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Budgeting SystemsIn general, budget system may be input based or output

based.

Input based budgets are primarily concerned with

accountability and stewardship for public resources by

ensuring fiscal accountability for every resource used by

the department. This is the traditional budgeting

approach in the public sector based on cash budgeting.

A type of this approach is the line item budgeting.

Output based budgets are outcome oriented which

focuses on the performance of managers and

programmes and activities. Types are planned

performance budgeting, activity based budgeting,

programme based budgeting.


Budgeting systems

On the other hand, determination of cost of the budget

item or activity may be done in either of two ways:

Incremental budgeting

Zero base budgeting

Incremental budgeting

This method of budgeting is closely linked to input

based budgeting system/line item budgeting system.

Under this approach, the budget is derived by making

marginal increments to previous years estimate. There

any no much need for review of activities or items for

inclusion in the current budget.


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Budgeting systems

Incremental Budgeting

Advantage include:

Makes budgeting simple

It ensures continuity in government programmes and activities

It maintains inertia, thereby reducing risk

It remains the most popular approach to budgeting in public

sector entities

Disadvantages are:

It encourages budget slacks in putting together a budget

It leads to allocation of resources to irrelevant items or activities.

That is obsolete spending

It discourages change in public entities


Budgeting Systems

Line item Budgeting

Most popular traditional approach to budgeting is the line item

budget (a.k.a input budgeting ,object of expenditure budget, or

lump sum budgeting

Under this method, resources are allocated to each item of

expenditure which any measure of output

The emphasis is on input rather than output.


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Budgeting system – line item

Advantages are:

It is very simple to prepare and control

It enhances fiscal accountability and control

It fits into the limitation of public administration

It provides clear indications of the ambit of a vote.

Disadvantages

Fails to measure attainment of objective/outcome

Provide no link between resource allocation and level of service

delivered

It provides to much details which makes control very cumbersome.

It provide no clue to guide resource allocation decisions


Budgeting Systems – Zero BaseZero Base Budgeting

ZBB approach calls for the review andrevaluation of each item or activity whenever abudget is prepared.

This approach requires that all activities arejustified and prioritized before decisions aretaken relating to the amount of resourcesallocated to each activity

Here the budget estimate is preparedindependent of the previous budget in that themere existence of the item or activity in theprevious budget does not justify its inclusion inthe budget.


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ZBB process

ZBB process involves

Identification of decision units which entails

identifying responsibility centre and the

objectives as the basis of budget preparation

Development of clear decision packages(

mutually exclusive and incremental packages)

Evaluation and ranking decision packages

Allocate resources


Budgeting Systems - ZBBAdvantages of ZBB

It eliminates budget slacks and inefficient activities.

It serves to motivate managers at all levels

Encourages culture of change in the organisations

It ensures more efficient allocation of resources

Enhances effective planning and control of activities

Disadvantages of ZBB

It is difficult and time consuming

Requires higher level of skills and competences for developing

decision units and packages which may be lacking in the sector

Ranking of decision packages may be influenced by political

consideration


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Budgeting system – Programme

Based BudgetingWhat is Programme based budgeting?It is a performance based budgeting system evaluated on

programme basis.

Programme-based budgeting is the practice of developing budgets based on the relationship between program funding levels and expected results from that program.

The programme-based budgeting process is a tool that program administrators can use to manage more cost-efficient and effective budgeting outlays.

the Programme Budget shows what each Cedis will accomplish, generally in the way of a measurable result achieved (such as a reduction in accidents, an improvement in health, an increase in customer satisfaction, etc.).

Currently government is using the programme based budgeting system under the GIFMIS


Budgeting System – Programme

based Programme based budgeting (cont)

Programme budgets use statements of missions, goals and objectives to explain why the money is being spent.

It is a way to allocate resources to achieve specific objectives based on program goals and measured results.

There are three elements to PB:

The result/objective (final outcome)

The strategy (means of achieving the result)

Activity/output ( what should be done)


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PBB - steps

Steps in programme based budgeting:

The four steps involved in PBB are:

Identifying Budget Programmes

Organisational Mapping

Developing the Budget Programme

Summary

Budget Programme Results Statement


Budgeting Systems - PBB

Advantages

PBB specifically links resource allocations to MDA functions

and its strategic policy objectives.

PBB provides a framework against which to measure the

performance of MDA expenditure programmes

PBB structures allow for the identification of necessary

inputs to produce the core operations and projects required

in order to contribute to strategic objectives.

PBB provides a management framework within which MDAs

can effectively manage resources to achieve government

objectives

It provides the public with a clear and transparent means of

seeing the fiscal stewardship


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Budgeting Systems - PBB

Disadvantages

It difficult to define measurable outcome of most public sector

programmes

The process is time consuming and distractive to both legislators

and administrators ( budgeting becomes the end instead of the

means)

Resource allocation may be influenced by political and social

factors instead of cost benefit analysis. This undermines the

budgeting process.


Budgeting Systems- ABB Activity based Budgeting (PUFMARP 2008-13)

It’s a variation of ZBB where resources are linked to the activities

leading the attainment of set objectives (out come).

ABB refers to the resource allocation based on relationship

between activities and costs, and which provides greater detail on

overheads than the normal financial budgeting .

ABB provides a framework that links resources to the activities to

be carried out in attaining the set objectives (outcome).

ABB is a method of budgeting in which the activities that incur

costs in every functional area are accounted for, analyzed, and

then linked to the mission and strategic goals of the institution.

The full costs of programs and services are then more transparent

and available to help with planning, budgeting and decision making


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Budgeting systems- ABB

Advantages

Output costs are supported by a schedule of cost activities drivers (provides details of cost)

Opportunities to examine work processes.

Identifies non value adding activities that can be eliminated.

Basis of a performance measurement system and direct link between strategic goals and operational realities.

Enables cost profiles to be managed

Accurate costing data for operational management

Costs are transparent, understandable and actionable


Budgeting Systems - ABBDisadvantages

Activity definition may become too detailed and the model

may become too complex and difficult to maintain

Underestimation of the task of collecting activity driver data

Implementation may be considered a financial management

“fad” and there is insufficient commitment from operational

managers

Lack of performance indicators of MDA budgets also made it

difficult to measure budget performance and outputs.

An absence of a real strategic focus in MDA budgets with

limited linkage between resource allocations and policy

priorities


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Budgeting Systems- PPBS

Planning, programming and budgeting system

PPBS is an integration of a number of techniques in a planning and

budgeting process for identifying, costing and assigning a

complexity of resources for establishing priorities and strategies in

a major program and for forecasting costs, expenditure and

achievements over a longer period.

It is a means by which output are planned, programmed and

budgeted for as an entity.

Example will be the GPRSP, FCUBEP etc is budgeted for as

independent of any ministry, department or agency of government.

Allocation of resources are made to these programmes instead of

channelling it through the MDAs


Budgeting Systems - MTEFMedium Term Expenditure Framework (1999 to date)

MTEF of budgeting was piloted in selected MDAs in 1998

and full adoption was made in the 1999 budget.

MTEF allows for the planning and allocation of resources

for a medium term period of three years on rolling basis

Rolling budget is one which after being established at the

start of the fiscal year, is continuously amended to reflect

and accommodate variances that may arise due to

changes in prevailing market circumstances.

The rolling budget ensures that the budgeted time period

remains constant and stable as the market conditions

change.


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Budgeting System- MTEFMTEF ConceptThe MTEF is annual, rolling three year-expenditure planning.

It sets out the medium-term expenditure priorities and hard budget constraints against which sector plans can be developed and refined.

MTEF also contains outcome criteria for the purpose of performance monitoring.

MTEF budgeting makes room for either Activity Based Budgeting or Performance budgeting models.

MTEF consist of top-down resource envelop; bottom-up estimation of current & medium-term (usually a 3-5 year period) costs of existing policies and matching these costs with available resources.

This should take place in the context of annual budget process.

MTEF will shift the psychology of budgeting from “needs” to an “availability of resources” mentality.


Budgeting System - MTEF

MTEF Process

Developing a macro/fiscal framework which projects

revenues & expenditure in the medium-term;

Developing sectoral programs with cost estimates of

activities, their objectives, and outputs;

Defining a sector-resource allocation strategy based on

medium-term sector budget ceilings;

Preparing sectoral budgets; and

Political approval.


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Budgeting System - MTEF

MTEF budgeting has the following objectives:

Improved macroeconomic balance, especially fiscal

discipline.

Better inter- and intra-sectoral resource allocation

Greater budgetary predictability for line ministries

More efficient use of public monies

Greater political accountability for public expenditure

outcomes through more legitimate decision making

processes.

Greater credibility of budgetary decision making

(political restraint).


Budgeting Systems - MTEF

Benefits of MTEF Implementation

More realistic budget framework and better alignment with policy

priorities such as PRSP

Greater opportunities to fund highest priorities

More accurate reporting requirements such as reporting

expenditures

Greater transparency and ownership due to the involvement of and

consultation with line ministries, local/regional government units.

Setting up ‘Hard budget constraints’ and tighter sectoral ceilings

Building ‘institutional’ (rules/procedures, etc.) and organizational

(agency) capacities at all key levels of budget formation.


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Budgeting Systems- MTEF Challenges of MTEF

MTEF implementation faced the following challenges

Creating an ineffective expenditure monitoring/tracking system at

all levels of the government and especially at sub national

governments.

Implementation challenges due to lack of organizational and

human resource capacity at all levels of government.

Inability to prioritize sectoral/regional policies due to lack of political

will.

Lack of proper coordination within key policy-making & budgetary

units in the government.

Lack of ‘institutional capacity’ – i. e., lack of appropriate laws, rules,

and regulatory and monitoring procedures in place.


Ghana Integrated Financial

Management Information System

(GIFMIS) What is GIFMIS about?

It involves the use of a number of integrated electronic financial

modules in the management of public funds.

Objectives of GIFMIS are:

Promote efficiency, transparency and accountability in public

financial management through rationalization

and modernization of budgeting and public expenditure

management of the Government.

Promote the timely dissemination of information for financial

management.

Rationalize the financial Administrative Acts and Regulations.

Improve the efficiency and effectiveness of revenue collection.

Maximize payment and commitment control.


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GIFMIS - component

Components

There are three main components of GIFMIS:

GIFMIS Financials

Programme based budgeting

Human Resource Management Information System (HRMIS)


GIFMIS - ComponentsGIFMIS Financials

This component deals financial accounting and reporting issues in the public financial management.

The financial modules (6) include :

Purchasing - for Purchase Requisition, PO, SRA

Accounts Payable - for logging Invoices/ PVs, creating accounting and tracking liabilities, including multi-year commitments.

Cash Management- Managing Bank Account, Bank Transfer, Bank Reconciliation, Cash Pooling and cash forecasting, etc.

General Ledger- Repository of all accounts

Accounts Receivable- for tracking revenue

Fixed Assets register-for tracking assets


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GIFMIS - Components Budgeting

The GIFMIS is expected to change the Budget classification from

Activities to Programmes and introduce performance information in

our budget system.

Ensures stronger Linkage between public spending and

determined results.

Ensures improved efficiency in the allocation and utilization of

resources.

Focuses on more strategic budget information to promote

understanding and debate in parliament.

Improves accuracy of budget information.

Shifts emphasis of budget management from activities to delivery

of outputs/ results.


GIFMIS - Components

Human Resource

HR component of GIFMIS is to make the financial management

project more holistic, more especially because of the increasing

wage bill of the Government and the increasing desire for improved

performance.

HRMIS is to ensure that Human Resource Management is linked to

the payroll for effective planning and controls.


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GIFMIS- Rationale Rationale for GIFMISTo establish a comprehensive, common Human Resource

database of all public service employees with the view to strengthen controls around entrance, exit , promotions and positions.

To mitigate the problems associated with the current system through the use of a common technology platform for HRMIS of all the public services of Ghana.

To address the problem of: Multiple stand-alone HRMIS in the public service, which do not facilitate composite data analysis of HR and unreliability of HR information for planning, capacity utilization, deployment, promotion and efficient payroll management.

To address the problem of generating a reliable employee report.

To improve establishment controls and impact the integrity of the payroll


GIFMIS - Benefits Benefits of GIFMIS adoption

Improved budgetary, financial management (record Keeping) and

reporting processes

Provide accurate, timely and reliable financial information to Central

Government and Decentralized Institutions and Organizations

Uniformity in accounting and reporting with the introduction of a

common Chart of Account and Database for all MDAs and MMDAs.

Improvement in accountability, control, monitoring and auditing of

Governmental finances.

Ensure that Ministries, Department and Agencies (MDAs/MMDAs)

spend within their budgetary allocation due to budgetary control

Reduce manual processes, duplication of effort and errors

Match disbursements with availability of revenues thus Improve

efficiency in cash management and treasury Management System

Improve interaction between and among other financial management

players such as Bank of Ghana (BOG) , Public Procurement Authority

( PPA) and Ghana Revenue Authority (GRA), among others.


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GIFMIS- Benefits Benefits (cont)

Enhance enforcement of financial legislation

Complete and timely exchange of data and information

among/between MDAs/MMDAs and central government for

producing complete, timely and accurate reports (Improve Record

Keeping) etc

Enhance and re-enforce the internal control systems in public

financial management for accountability.

Provide documentation of business processes, workflows and

approval levels to ensure consistent and timely compliance across

all MDAs and all MMDAs.

An effective and efficient budget preparation, execution, monitoring

and evaluation mechanism

Provide for the ability to budget for, track and monitor projects and

grants through the chart of accounts, by using the Project



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NOT HE KNOWS NOT IS A FOOL

- SHUN HIM!!

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