overview of PFM and Government Resource Planning lessons including: methodologies to improve governance through technology and to properly sequence reform. Deals with the differences between ERP and GRP in the context of developing countries. Also the need to make implementations in developing country governments more sustainable.
#StandardsGoals for 2024: Whatâs new for BISAC - Tech Forum 2024
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2013 05-07 Lessons Learned on the Public Financial Management Front LInes
1. Version 7 section
⢠brief discussion
Lesson Learned on the Public
Financial Management Front Lines
African Development Bank Group
May 7, 2013
2. Version 7 section
⢠brief discussion
Agenda
⢠Story behind âFreeBalanceâ
⢠Lessons in: ICT-enabled good governance
⢠Lessons in: PFM reform sequencing
⢠Lessons in: FMIS delivery and sustainability
⢠Conclusion
3. Version 7 section
⢠brief discussion
for public financial management support
reform and modernization to improve
governance, transparency and accountability.
FreeBalance solutions
11. Version 7 section
⢠brief discussion
quickest
implementation
26 days
average
first phase
8 months
Rapid Implementation
2000+
12. Version 7 section
⢠brief discussion
2006
FreeBalance Public Financial
Management Component Map
FreeBalance Public Financial Management Component Map
Comprehensive and Extensible
Product Suite for Government
13. Version 7 section
⢠brief discussion
today
Countries Penetrated 21
Time Zones 15
World wide Software Installations Over 200
Users Over 60,000
Civil Servants Almost 1.5 Million
Handling annual budgets of > $Âź Trillion
Global Impact
14. Version 7 section
⢠brief discussion
today
Developed
Countries
Developing Countries Post Conflict
National
Uganda,
Guyana,
Antigua,
Suriname,
Lao PDR
Mongolia,
Kyrgyzstan
Timor-
Leste, Iraq
Afghanistan,
Kosovo,
Sierra Leone,
Liberia, South
SudanDepartmental
Canada
⢠28 Financials
⢠42 Budget
USA
⢠10 Financials
⢠1 Budget
Panama,
Jamaica,
Pakistan
Sub-National Nunavut
Palestine
Project Namibia
Global Impact
15. Version 7 section
⢠brief discussion
FreeBalance Offices and Regional Support Centres
today
Vientiane
⢠services & support
⢠sales, business development & marketing
⢠product management & development
⢠corporate services
Dili
Ulaanbaatar
BishkekOttawa
Guatemala City
Washington
St. Johns
Lisbon
Monrovia
Freetown
Kampala
Pristina
Ramallah
Kolkata
Kabul
Bangalore
Paramaribo
16. Version 7 section
⢠brief discussion
Global
PFM
Provider
Canadian
Company
GRP
Leader
100%
Government
Focus
ISO-
9001/2008
Covers
Budget
Cycle
Modern
Web
Technology
High
Success
Rate
Company Summary
today
17. Version 7 section
⢠brief discussion
Agenda
⢠Story behind âFreeBalanceâ
⢠Lessons in: ICT-enabled good governance
⢠Lessons in: PFM reform sequencing
⢠Lessons in: FMIS delivery and sustainability
⢠Conclusion
18. Version 7 section
⢠brief discussion
Version 7 section
⢠Multiple Definitions
⢠Tinged with Ideology
⢠Multi-variant and Complex
⢠Measurement Difficulties
⢠Yet Governance Measures Critical
Good Governance
20. Version 7 section
⢠brief discussion
About $37B of
foreign aid
annually is
phantom aid
21. Version 7 section
⢠brief discussion
Tax evasion
through untaxed
shadow economy
= 17% of world
economy, well
over $2.5T
22. Version 7 section
⢠brief discussion
Foreign Direct
Investment to
Developing
Countries at
$684B
23. Version 7 section
⢠brief discussion
Total
worldwide
remittances to
developing
countries
exceed $534B
24. Version 7 section
⢠brief discussion
Tax Revenue
ranges from
1.4% of GDP
in UAE to
almost half in
Belgium,
Sweden and
Denmark
25. Version 7 section
⢠brief discussion
What Works in Technology-Enabled Public Financial Management?
An On-Going Debate
Technical
Reforms
Difficult
Technical
Reforms Easy
Technical
Reforms
Effective
Technical
Reforms
Ineffective
Use PFM Best
Practices
Use Country
Context
Itâs not
about
technology
Itâs all about
technology
Good
Practices
applied
technology
applied
practice
27. Version 7 section
⢠brief discussion
Governance Linkages
1. back office GRP software provides
2. a set of Governance tools
3. whose effectiveness in improving
governance is determined by
institutional maturity
4. and can be seen
5. measured
6. shown to improve country outcomes
33. Version 7 section
⢠brief discussion
ICT Platform
â˘1. Secure
Infrastructure
â˘2.User Group
Controls
Government
Performance
â˘3. Budget
Preparation
Core Public
Financials
â˘4. Commitment
Accounting
Public Expenditure
Management
â˘5. Procurement
â˘6. E-
Procurement
â˘7. Payment
Management
Government
Performance
â˘8. Audit
Chart of
Accounts
Dashboards
Alerts
Procedure
Workflow
Integration
Segregation of
Duties
ICT Platform
â˘1. Secure
Infrastructure
â˘2.User Group
Controls
Government
Performance
â˘3. Budget
Preparation
Core Public
Financials
â˘4. Commitment
Accounting
Public Expenditure
Management
â˘5. Procurement
â˘6. E-
Procurement
â˘7. Payment
Management
Government
Performance
â˘8. Audit
â˘Data integrity
â˘Encryption
â˘IT security
â˘User
management
â˘Budget &
Commitment
Controls
â˘Planning
â˘Historical data
â˘E-
Procurement
front office
â˘Secure
payments
â˘Audit trail
34. Version 7 section
⢠brief discussion
IT Controls
ICT Vulnerability Technique
Database
DataIntegrity
Obfuscation
Encryption
Biometrics
VPN
SecurityPolicy
SecurityAudit
AuditTrail
Transaction
Audits
DB Abstraction
Network
Sniffing
User Identify
IntegrationInterfaces
Reports External Transparency
Intrusion Intrusion Detection
35. Version 7 section
⢠brief discussion
FreeBalance Public Financial Management Component Map
Comprehensive and Extensible
Product Suite for Government
37. Version 7 section
⢠brief discussion
Governance Enablers Matrix
Characteristics
Capacity
PoliticalWill
Accounting
Procedures
Standards
Efficiency
Risk
Management
Compliance
Decentralization
Independence
Informal
Mechanisms
Accessto
Information
Transparency
Outreach
Participation
Legitimacy
Institutions
Executive
Legislature
Judiciary
Internal & External Audit
Enforcement
Other Govât Oversight
Public Service
Civil Society & Citizens
Businesses
Election Commission
Political Parties
Donors
38. Version 7 section
⢠brief discussion
ICT Platform
â˘1. Secure
Infrastructure
â˘2.User Group
Controls
Government
Performance
â˘3. Budget
Preparation
Core Public
Financials
â˘4. Commitment
Accounting
Public Expenditure
Management
â˘5. Procurement
â˘6. E-
Procurement
â˘7. Payment
Management
Government
Performance
â˘8. Audit
Chart of
Accounts
Dashboards
Alerts
Procedure
Workflow
Integration
Segregation of
Duties
ICT Platform
â˘1. Secure
Infrastructure
â˘2.User Group
Controls
Government
Performance
â˘3. Budget
Preparation
Core Public
Financials
â˘4. Commitment
Accounting
Public Expenditure
Management
â˘5. Procurement
â˘6. E-
Procurement
â˘7. Payment
Management
Government
Performance
â˘8. Audit
â˘Data integrity
â˘Encryption
â˘IT security
â˘User
management
â˘Budget &
Commitment
Controls
â˘Planning
â˘Historical data
â˘E-
Procurement
front office
â˘Secure
payments
â˘Audit trail
Political WillCapacity
Standards Compliance
Accounting
Procedures
Transparency
Civil Society
Internal Audit
External Audit
Independence
Enforcement
39. Version 7 section
⢠brief discussion
PEFA to PFM Component Map
Core Public Financials
& Budget Controls
Expenditure
Management
Receipts
Management
Treasury
Management
Civil Service
Management
Performance
Management
A. PFM-OUT-TURNS:
Credibility of the
budget
Budget Controls
Expenditure
Controls &
Forecasting
Revenue
Forecasting
Cash and Liquidity
Forecasting
Wage Bill
Forecasting
Budget Planning
Processes
B. KEY CROSS-
CUTTING ISSUES:
Comprehensiveness
and Transparency
Budget Classifications
Budget Transparency E-Procurement
Revenue
Transparency
E-Recruitment,
Wage & Expense
Disclosure
Results Portal
C(i) Policy-Based
Budgeting
Talent
Management
Budget Planning
Processes &
Performance
Management
C(ii) Predictability and
Control in Budget
Execution
Non-Salary Controls
Expenditure
Controls &
Forecasting,
Procurement
Value for Money
Taxpayer
Obligations & Tax
Collection
Cash and Bank
Controls
Payroll Controls
Audit trails &
Computer Aided
Audit Tools
C(iii) Accounting,
Recording and
Reporting
Timeliness and Completeness of Statements and Reports, Support for International Public Sector Standards
Quality of
Reports
C(iv) External Scrutiny
and Audit
Audit trails &
Computer Aided
Audit Tools
40. Version 7 section
⢠brief discussion
Governance
Rating
Gov
Effective
PFM Transparency
improves
enables
results
perception
behaviour
Impact of Public Financial
Management
Improvements on
International Governance
Ratings
Openness, Effectiveness,
Service Delivery, Growth,
Anti-Corruption
41. Version 7 section
⢠brief discussion
GRP Anti-Corruption Hospital Procurement Scenario
Government Resource Planning Software Governance Toolset
Governance
Enablers
Governance Signs
Governance
Indicators
Governance
Outcomes
chart of accounts | segregation of duties |integration | workflow & procedures | alerts & dashboards
ICT Platform
1. Secure
Infrastructure
Data Integrity
Improved Health
Outcomes
ď§ Child Health
CIESIN/YCELP
ď§ Reduce Child
Mortality MDG
ď§ Immunization
Rates WHO/UNICEF
ď§ Reduce Maternal
Mortality MDG
ď§ Universal Access
to Reproductive
Health MDG
Encryption
IT Security
2.User Group
Controls
User management
Government
Performance Mgmt
3. Budget Planning
Planning PEFA C3:
Accounting,
Recording,
Reporting
Historical data
Core Public
Financials
4.Commitment
Accounting Budget &
Commitment
Controls
Accounting
Procedures
PEFA C2:
Predictability &
Control in Budget
Execution
Public Expenditure
Mgmt
5. Procurement
6. E-Procurement
E-Procurement
front office
Transparency
PEFA B:
Transparency
WGI Control of
Corruption
World Bank Doing
Business IndexTI Corruption
PerceptionCivil Society
Procurement Graft
incidents7. Payment Secure payments
Increase in Foreign
Direct Investment
Government
Performance Mgmt
8. Audit Audit trail
Internal & External
Audit
PEFA C4: External
Scrutiny & AuditIndependence
Enforcement
standards | capacity | political will | compliance
42. Version 7 section
⢠brief discussion
Version 7 section
+ Public Finances
- Transparency
- Accountability
= Corruption
43. Version 7 section
⢠brief discussion
Version 7 sectionLessons Learned
⢠GRP Technology improves governance
⢠Hard to see success with good PFM processes
without a GRP
⢠Significant improvements in governance requires
institutional changes
44. Version 7 section
⢠brief discussion
Agenda
⢠Story behind âFreeBalanceâ
⢠Lessons in: ICT-enabled good governance
⢠Lessons in: PFM reform sequencing
⢠Lessons in: FMIS delivery and sustainability
⢠Conclusion
45. Version 7 section
⢠brief discussion
What Works in Technology-Enabled Public Financial Management?
An On-Going Debate
Technical
Reforms
Difficult
Technical
Reforms Easy
Technical
Reforms
Effective
Technical
Reforms
Ineffective
Use PFM Best
Practices
Use Country
Context
Itâs not
about
technology
Itâs all about
technology
Good
Practices
applied
technology
applied
practice
48. Version 7 section
⢠brief discussion
Evaluation Methods
Evaluation Method Scope Back-Office Technology Front-Office Technology
Public Expenditure and Financial Accountability
(PEFA)
Comprehensive PFM
assessment
No technology guidance although PEFA assessments attribute some
achievements to the use of technology
Commonwealth Public Financial Management
Self-Assessment Toolkit (CPFM-SAT)
Comprehensive PFM
assessment
A3: Use of IFMIS
B2: Use of Debt Management
software
No technology guidance for publishing
information
The Chartered Institute of Public Finance &
Accountancy (CIPFA) Whole Systems Approach
Comprehensive PFM
assessment
O7: Financial management
information systems
Revenue Watch Institute Index
Extractive Industries
transparency
Paris Declaration and Accra Agenda for Action Aid effectiveness
Use of country systems for PFM and procurement does not specify use of
technology
International Budget Partnership Open Budget
Index (OBI)
Budget preparation and
reporting transparency
Internet publishing of budget documents
gains higher rating for many categories
Gartner Group Open Government Maturity
Model
Open government
Provides open government technology
insight
Institute for Electronic Government e-
Democracy Model
E-Democracy Use of e-mail systems
Use of web technologyAndersen & Henriksen E-Government Maturity E-Government
Layne and Lee Framework of E-Government E-Government
Horizontal and vertical integration
within government
World Bank World Governance Indicators
Meta collection of 3rd party
indicators
No technology guidance
Global Integrity Report
Governance and anti-
corruption
49. Version 7 section
⢠brief discussion
Whatâs changed?
101011001110010101001010101
51. Version 7 section
⢠brief discussion
Government Performance Management
Data from Government Operations
Expenditures Revenue
Budget
formulation
Budget
execution
Human
Treasury Resources
Data from Government Operations
Government Performance Management
PFM Domain
52. Version 7 section
⢠brief discussion
Country
Research
Governance
Valuation
Solution
Blueprint
Implementation
Project
Governance
Product
Development
Government
Research &
Engagement
Customer
Sustainability
FreeBalance i3+qM Methodology
Aligning Customer Needs with Product, Service and Sustainability Offering
Steering
Committees
SWAT Teams
53. Version 7 section
⢠brief discussion
Calculates?
Technology
Priorities
PFM
Priorities
Country
Conditions
54. Version 7 section
⢠brief discussion
Anchor
Technology
Priorities
PFM
Priorities
Country
Conditions
Benchmark
Priority
Gaps
Sequencing
55. Version 7 section
⢠brief discussion
Sequenced
Technology
Priorities
PFM
Priorities
Country
Conditions
Benchmark
Priority
Gaps
Sequencing
capacity
56. Version 7 section
⢠brief discussion
Version 7 sectionLessons Learned
⢠PFM reform sequencing as much a science as an
art
⢠Holistic approaches that consider technology,
capacity, lessons in peer countries and
methodology increases success
57. Version 7 section
⢠brief discussion
Agenda
⢠Story behind âFreeBalanceâ
⢠Lessons in: ICT-enabled good governance
⢠Lessons in: PFM reform sequencing
⢠Lessons in: FMIS delivery and sustainability
⢠Conclusion
58. Version 7 section
⢠brief discussion
58
Risk of Project Failure Higher in Government
Includes ICT Project Risks + most
ERP risks
Complex legal reform
Need for continuous reform
Covers more âlines of businessâ
than private sector enterprises
Need to rationalize needs of
politicians, public servants and civil
society
Government Resource Planning
Includes all ICT Project Risks
High customization required
to achieve benefits
Often requires business
process re-engineering
Highly complex project covers
multiple organizational silos
Projects often delivered late
High maintenance costs,
especially upgrades leads to
high Total Cost of Ownership
(TCO)
EnterpriseResource Planning
Many ICT projects fail to
deliver on expectations
High maintenance costs to
keep âlights onâ
Complex ICT projects have
higher failure rates than
modest projects
Move to Cloud computing a
reaction by customers
against high ICT costs
ICT Projects
60. Version 7 section
⢠brief discussion
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Failure Unsuccessful Success
Reported Enterprise Resource Planning Success Rates
Multiple Studies, Multiple Methods, All Industries
42%
34%
24%
Successful
Unsuccessful but not
failure
Failure
Low, Average and High ratings from ERP
studies indicating Failure, unsuccessful
(including Failure) and Success
Calculated Average ERP Success,
Unsuccessful but not Failure and Failure
61. Version 7 section
⢠brief discussion
11
7
6
1
1
4
7
3
0 2
2
0
0
2
4
6
8
10
12
14
16
FreeBalance Oracle SAP Epicor
Failure
Problems
Successful
Failure = Abandoned or > 10 Years to Implement
Problems = Reported issues, incomplete implementations, late
Success = No exceptionally reported problems
Government Resource Planning Success in Developing Countries
National Government Level Implementations
Tier1 ERP Tier1 ERP Tier2 ERP
62. Version 7 section
⢠brief discussion
0.00%
50.00%
100.00%
150.00%
200.00%
250.00%
300.00%
350.00%
400.00%
450.00%
500.00%
ERP Price
FreeBalance
ERP 5 Year TCO compared to FreeBalance
Government Quotations from 2006-2012
63. Version 7 section
⢠brief discussion
0%
10%
20%
30%
40%
50%
60%
1. Upgrade & Optimize
2. Adapt Processes
3. New Apps
4. Process Automate5. Process Decisions
6. Decisions in Apps
7. Other Barriers to Success
Time Consuming
Enterprise Software Barriers to Success & Time Consuming Tasks
Information Week 2012 Enterprise Applications Survey
1. Changing,upgrading or optimizing existing
applications
2. Changingor adapting processes as business
requirements change
3. Implementing new applications
4. Automating or integrating business processes
5. Developing or improving decision-support
capabilities for processes
6. Developing or improving decision-support
capabilities within apps
7. Other
65. Version 7 section
⢠brief discussion
Version 7 section
⢠Conflict between customized vs. generic
solutions
⢠More vertical capabilities creates larger footprint
⢠Government focus reduces:
â Customization
â Technical footprint
â Time to implementation
Product Design and Sustainability
66. Version 7 section
⢠brief discussion
Version 7 sectionHuman Capacity
⢠Adaptable help
⢠Single file translation
⢠Methodology
⢠CIPFA partnerships
⢠Evans partnership
67. Version 7 section
⢠brief discussion
Version 7 section⢠Configuration options
â Parameters
â Business Rules
â Workflow
⢠Progressive Activation
⢠New âCustom Domainâ
capabilities
FreeBalance Model
68. Version 7 section
⢠brief discussionFreeBalance AccountabilitySuite
Country Specific Functionality
(CFG) Configuration
(CFCB) Chart of Accounts Builder
(CFCD) Custom Domains
(CFPR) Parameters
(CFWF) Workflow
FreeBalance
Accountability Suite
Configuration and
Metadata Management
70. Version 7 section
⢠brief discussion
Government
Functions
HibernateSpring TrinidadEclipse
Government
Applications
Government
Entities
Framework Java EE
Infrastructure
FreeBalance Web Architecture
71. Version 7 section
⢠brief discussion
First
Generation
âERP Eraâ to
2007
Strategic
Inflection
Point 2007-
2010
Second
Generation
âGRP Eraâ
2010+
73. Version 7 section
⢠brief discussion
73
Product
Management
Sales &
Marketing
User
Trainer
Consultant
Customer
Support
Product
Development
Product often designed
with different customers
in mind
Product developers
have no expertise in
government financials
Salespeople want to sell
to every possible
market.
Consultants help
customers to customize
code.
Government needs
may not go into
upgrades
Consulting firms
generate revenue from
customization.
Government is one of
many âverticalsâ
Typical Approach by Enterprise Software Vendors to
the Government Market
74. Version 7 section
⢠brief discussion
Product Management
Customer Support
Product Development
Consultant
User
All problems & feature
requests are tracked â
management dashboard
Vendor consultants bring
experience to write
specifications.
Developers visit customers
and are part of âSWATâ
teams.
Steering Committee sets
product direction.
Customers interact with Vendor staff
and other customers on collaborative
web application
Customers visited at
least once every year.
Local in-country
support pass on
needs.
Government Resource Planning and the Customer
Centric Approach
75. Version 7 section
⢠brief discussion
Version 7 sectionLessons Learned
⢠Software design matters: risk of failure & cost is
proportional to distance
⢠Separate product development and
implementation firms increases risks of failure
⢠African governments require vendor
commitment and better project governance
structures
76. Version 7 section
⢠brief discussion
Agenda
⢠Story behind âFreeBalanceâ
⢠Lessons in: ICT-enabled good governance
⢠Lessons in: PFM reform sequencing
⢠Lessons in: FMIS delivery and sustainability
⢠Conclusion
77. Version 7 section
⢠brief discussion
.943.286
low medium high very high
Canada
.908
Antigua
.764
Mongolia
.653
Liberia
.329
Timor-Leste
.495
| | |
Selection of FreeBalance Customers, National Level GRP Implementations
from low to very high Human Development Index
78. Version 7 section
⢠brief discussion
Customer
Experience
Market
Research &
Events
Participation
Customer-
Centric
Product
Governance
FreeBalance
Governance
Framework
FreeBalance
Governance
Valuation
1. Engage the PFM Community
⢠Similarity in
similar
circumstances
⢠Enhancement
requests from
governments
⢠Deep research in
public financial
management
⢠Engagement with
larger PFM
community at events
⢠Customers drive the
FreeBalance
product roadmap at
the FreeBalance
International
Steering Committee
⢠Framework links
Government
Resource Planning
(GRP) to positive
governance
outcomes
⢠Methodology
provides PFM
reform and
GRP
sequencing
blueprints
79. Version 7 section
⢠brief discussion
Government
Functions
HibernateSpring TrinidadEclipse
Government
Applications
Government
Entities
Framework Java EE
Infrastructure
FreeBalance Accountability Suite
100% Web Technology
open system runs on open
source and commercial
middleware
reusable âbusiness objectsâ
leveraged as part of the Service-
Oriented Architecture
no client/server or
legacy code used
multitier
design
separates
presentation,
business
logic and
data layers
80. Version 7 section
⢠brief discussion
8080
Economy
Approximate starting point
of current state and peace
building
Relative progress by 2010
Afghanistan 2001-02 Substantial
Cambodia 1991-93 Intermediate
Congo, Dem. Rep. 2001 Limited
Kosovo 1999 Substantial
Liberia 2003 Intermediate
Sierra Leone 2002 Substantial
Tajikistan 1997 Limited
West Bank & Gaza 1993-2002 Intermediate
81. Version 7 section
⢠brief discussion
Government
Performance
Budget
Planning
Budget Books
Advanced
Salary
Management
Treasury
Management
Transparency
Portal
Performance
Management
Modern-
ization
Accrual
Accounting
Advanced
Chart of
Accounts
De-
centralization
Fixed Assets
Human
Resources
Procurement
2. Possible to Leapfrog
Example FreeBalance Accountability Suite Implementations
83. Version 7 section
⢠brief discussion
A. PFM-OUT-TURNS: Credibility of the budget
B. KEY CROSS-CUTTING ISSUES: Comprehensiveness and
Transparency
C(i) Policy-Based Budgeting
C(ii) Predictability and Control in Budget Execution
C(iii) Accounting, Recording and Reporting
C(iv) External Scrutiny and Audit
FB Public
Public PEFA
Public PEFA PEFA
Avg
HDI
Avg
HDI
Category
FreeBalance
Customers
2.47 0.482 Low
*Countries
do not use
FreeBalance
2.35 0.569 Medium
3. GRP Can Improve Assessments
Only the Most Recent Public PEFA Assessment
85. Version 7 section
⢠brief discussion
Product Management
Customer Support
Product Development
Consultant
User
5. Success Requires Vendor Implementation & Long-
Term Support Commitment
86. Version 7 section
⢠brief discussion
Global
PFM
Provider
Canadian
Company
GRP
Leader
100%
Government
Focus
ISO-
9001/2008
Covers
Budget
Cycle
Modern
Web
Technology
High
Success
Rate
More:
www.freebalance.com/blog