Strengthening Public Financial Management: Challenges in Africa. Yongmei Zhou, AFTPR Operational Task Force on Africa Capacity Building

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1 Strengthening Public Financial Management: Challenges in Africa Yongmei Zhou, AFTPR Operational Task Force on Africa Capacity Building

2 Topics Urgency of overall capacity development in Africa and importance of PFM capacity development in this context Good principles of capacity development Challenges to operationalize good principles in PFM Capacity Development

3 Urgency of Capacity Development in Africa Poverty in Africa and challenges to meet MDGs Prospects of larger aid flows but doubts about governance and absorptive capacity (Blair Commission for Africa, UN Millenium Project, IDA Africa Action Plan) Mixed results of PACT to date Recent African efforts NEPAD provides framework for regional efforts to resolve conflict, improve governance and reduce poverty 2001 Pan African Forum on Capacity Recent development of donor harmonization (Paris Declaration) A renewed compact between African States and stakeholders, development partners incl. the Bank

4 Propositions on Effective Capacity Development Countries should approach capacity development as a core, not an add-on, objective of their development strategies. Development partners (DPs) should approach capacity development as a core, not an add-on, objective of country assistance strategies.

5 Countries development requires effective state, capable of creating enabling environment for private entrepreneurship and collective action and accountable to citizens; engaged society, engaging in collective action and demand state accountability at national and local levels. DPs should help strengthen, rather than bypass, domestic political and administrative accountability systems improve, rather than bypass, inter-governmental fiscal and accountability relations Strengthen, rather than bypass, local accountability system

6 Countries should take full ownership of capacity diagnosis and identification of capacity development strategies; Take full ownership of implementation of capacity development strategies; be accountable for results. DPs can make space for countries to identify viable entry points and sequencing strategies and offer assistance, if necessary; and support implementation of country-owned capacity development strategies.

7 Countries should establish a results-focused M&E system to communicate shared vision of success measure progress and recognize success ensure accountability for results facilitate continuous feedback and learning DPs should help countries strengthen their results-focused M&E systems; Be accountable for effectiveness of assistance.

8 A capacity development strategy should be based on a frank diagnosis: Is there latent capacity that can be unleashed? What is impeding full utilization of existing capacity? Weak incentive? Poor ethics? Low operational budget? Weak leadership? What is impeding accumulation of capacity? Weak incentive to learn new skills and adopt better ways of doing business? Lack of peer network for mutual learning and development? Difficulty in skills retention due to domestic and international market competition? No sustainable mechanism to reproduce skills?

9 An effective capacity development strategy often involves hard/creative measures to effect behavioral, organization, institution-level changes in order to unleash latent capacity Uganda s fiscal decentralization and local government development program China s Household Responsibility System improve utilization of and build on existing capacity Tanzania s Public Service Performance Improvement Program and Selective Acceleration of Salary Enhancement Strategy Indian State of Madhya Pradesh s Education Guarantee Program: train villagers as as teachers for remote villages

10 A viable capacity development strategy need to have realistic entry points determined by stimuli for change and existence and ability of champions to lead change; a viable sequencing strategy that sustains momentum for further change, generates learning for scale-up. DPs need to recognize that no one strategy fits all countries, a comprehensive approach may not be feasible for many countries, recognize realistic entry points and strategies that fit countries context.

11 System-wide capacity development requires successful change management and in particular local leaders and champions who recognize and maintain urgency create a shared vision expand constituencies for change manage a continuous learning process communicate proactively Effective DPs assistance not only advises on WHAT changes are needed but also HOW these changes can be effected and supports the champions to effect changes.

12 Countries should pay particular attention to attract and retain qualified professionals in public service by addressing issues of pay, job satisfaction, career development. DPs are significant employers in local job market and need to help government retain skills rather than contributing to skill depletion.

13 In-country training capacity (universities, professional training institutions, associations) is required for sustainable reproduction of skills and capacity development. DPs should revisit the current balance of aid for tertiary education versus the aid for primary and secondary education.

14 African regional bodies have acquired a growing role in capacity development through Regional networks, associations and training programs, e.g., African Capacity Building Foundation Municipal Development Program East and Southern Africa Association of Accountant Generals African peer reviewing mechanism DPs should support these regional bodies.

15 Opportunities for PFM reform in Africa Democratization presents opportunities for improving accountability in the long-run. Efforts to improve aid effectiveness Aid alignment to national programs Reliance of national system for implementation and accountability

16 PFMCD is center of capacity development agenda PFM key building block of government management system and accountability system; PFMCD corner stone of budget support operations and SWAPs; HIPC AAP gave major momentum to developing rigorous M&E of system performance and reform progress; Donor harmonization led to harmonized performance monitoring tools (PEFA indicators)

17 Challenges for PFM reform in Africa Ownership: PFMCD driven by African domestic accountability reform or donor fiduciary concerns? Weak domestic accountability system Soft control and widespread corruption within political and bureaucratic systems, non-enforcement of own PFM laws/regulations, informality Legislative oversight and civil society voice varies across countries but generally have little bite. Financing of competitive politics puts pressure on PFM. Independence and investigative capacity of media varies

18 Realistic entry points rather than unrealistic comprehensive reform (often recommended by CFAA, CPAR) Post-conflict countries (Sudan, Liberia): rebuilding core treasury and revenue system Resource-rich countries (Chad, DRC, Nigeria): improve revenue management, EITI Post-post-conflict countries (Sierra Leone): transparency and accountability of public spending, building citizens trust in gov South Africa: service-delivery driven PFM reform Good fit rather than best practice E.g., MTEF, IFMIS software, procurement reform models

19 Sub-national government PFM capacity development: democratic decentralization in Africa requires attention to sub-national government M&E of PFMCD: need to establish feedback loop between PFM performance indicators (e.g., PEFA) with changes introduced by reforms (new laws/regulations and better enforcement; improved standards for budgeting, accounting, auditing; new systems, procedures) and skills development Linking training/qualification to career progression

20 Poor public sector remuneration unable to attract or retain enough qualified accountants. Reform pay or train public-sector accountants who are not perfectly mobile to private sector? Reform champions at political and technical levels require hard-working support staff: how do motivate them under a selective pay reform strategy? IFMIS: billion-dollar investment in Africa and results very uneven Difficulty for donors to change behavior

21 Challenges for the Bank Tension between speed and sustainability: e.g., PIUs outside government structure, Social Fund bypassing inter-governmental transfer and local government systems. Tough (and often neglected) topics in Bankgov PFM dialogue: MoF stewardship role, sanctions of non-compliance to PFM rules, HR policy?

22 Staff skills mix required for supporting PFM reform: accounting, budgeting, procurement, public administration, IT, subnational government administration, HR policy, political and institutional analysis, change management IDA Indicative Action Plan for Africa: Increased reliance of MTEF in country which integrates sector programs Increased proportion of aid provided through programmatic lending instruments Reliance of national system for implementation and accountability

23 Appropriate Bank instrument mix (PRSC, Adjustment Lending, SWAPs, TAL, SIL, IDF grant; PER, CFAA, CPAR, HIPC AAP, PEFA Performance Monitoring)? How do we support regional public goods, e.g., professional associations, development of public sector PFM training curriculum, networks of training institutions? How do we help build knowledge base on PFMCD approaches and experiences? Bank internal organization

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