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How to develop a cash flow forecasting system based on the concept of a Treasury Single Account: the case of Federal Government of Ethiopia Presentation by Negera Getachew and Kojo Oduro
Paper Outline
1. Country Background & PFM Reforms- Getachew Negera 2. Government Cash Management: Issues faced by developing and middle income countries and the key concepts- Kojo Oduro 3. The Treasury Single Account (TSA) and the challenges of its successful implementation to-date in most developing countries including Ethiopia-Kojo Oduro 4. The Operation of the ZBA before July 2011, the circumstances leading to the change and the impact thereafter-Getachew Negera 5. FGE Cash Management: Summary Analysis and Recommendations Kojo Oduro 6. A Cash Flow Forecasting framework based on the TSA, taking into account the operation of extra-budgetary funds and donor flows into government agencies: A framework that compares CFF to actuals and providing feedback- Kojo Oduro 7. Progress to-date and on-going challenges: what has been achieved and a realistic assessment of what is possible-Getachew Negera
Section 1:Country Background & PFM Reforms Getachew Negera Director of Treasury MoFED Federal Government of Ethiopia
Country Background
Ethiopia is the second most populous country in Africa with a population of above eighty million. The country is organised into a Federal Government, nine Regional State Governments and two City Administrations. The Regional Governments include Tigray, Afar, Amhara,Oromia, Somale, Benshagul-Gumuz, SNNP, Gambela and Harari, The Regional Governments have the power and functions to formulate and execute the economic, social and development policies, strategies and plans of the state; to levy and collect taxes and duties on revenue sources reserved to the state; and formulate and administer state budgets
Country Background
The federal and regional constitutions provide for a three-tier decentralization framework consisting of zones (clusters of districts), woredas (or districts) and kebeles (wards or neighbourhoods). The structure of government for all the regions is similar at all levels of government. The regional equivalent of the Federal MoFED is the Bureau of Finance and Economic Development (BoFED). In turn, there are ZoFEDs (for Zonal Administrations) and WoFEDs (for Woreda Administrations). Sector ministries at the federal level have their equivalents at lower levels of government: sector bureaus (SBs) at regional level and zonal and woreda offices at zone and woreda level. There are no zones in Tigray region; the relative responsibilities of the different levels vary somewhat across the regions.
Economic Context
Ethiopia has grown strongly in recent years, with real GDP growth of the order of 11 per cent over the last 2 years, with a similar rate forecast for 2011-12. The Ethiopian parliament approved a budget of ETB 137.8 billion for the 2012-13 fiscal year (about 21 per cent of GDP), an increase of 15 per cent from the preceding fiscal years budget. Of the approved budget: Federal capital expenditure ETB 55.5 billion(41%) Federal Recurrent Expenditure ETB 26.8 (20%) Regional governments direct subsidies represents ETB 36.5 billion (27 % ) ( recurrent ETB 27 Billion, Capital ETB 9 Billion) The expenditure targeted at millennium development goals ETB 20.0 billion(15%) The pro-poor sectors share: In the total spending: 70.4 %; In the GDP : 13.5 %
The source of domestic borrowing was not specified but was assumed to be the issue of Treasury bills (Tbills) The outstanding stock of Tbills was to double over 18 months (to the end of fiscal year 2011-12)
This would normally be considered an ambitious issue of stock
Economic Context
Government deficit financing contributes to inflation The IMF has identified the principal macroeconomic challenge as surging inflation, which reached 30 per cent in April 2011, specifically noting that: MoFED has emphasised the contribution of import prices to inflation According to government of Ethiopia the November /2012 inflation declines to 15 per cent.
Introducing the 2011 annual budget, the Prime Minister announced that the government would stop borrowing money from the NBE ( Central Bank). Other policy statements from the government reinforced that no further advances from the NBE, and that there should be direct control over cash disbursements.
PBs
REGIONAL (BOFEP)
CBE
Retail Banking
ZONES (ZOFED)
ZONES (ZOFED)
Section 2: Government Cash Management: Issues faced by developing and middle income countries and the key concepts Kojo Oduro Lead PFM Adviser Crown Agents, UK
Definition: The strategy and associated processes for managing costeffectively the governments short-term cash flows and cash balances both within government, and between government and the private sector
Objectives
It can also:
Section 3: The Treasury Single Account (TSA) and the challenges of its successful implementation to-date in most developing countries Kojo Oduro Lead PFM Adviser Crown Agents, UK
The TSA?
The TSA is a unified structure of government bank accounts to give a consolidated view of government cash resources. A fully-fledged TSA shares three essential features: Government banking arrangements should be unified No other government agency operates bank accounts beyond oversight of the Treasury Consolidation of government cash resources should be comprehensive and include all government cash resources, both budgetary and extra-budgetary Sub-account structure may have cash, or notional accounts (i.e. ZBA) as the case of Ethiopia If there is cash in the sub-accounts this should be mopped up overnight, and the account replenished the following day
Ethiopia
Dispersal of payment responsibility tends to be associated with dispersal to the banking system A dispersed model is likely to be more robust in the longer term ( as it will support a growing complexity and volume of transactions ) but some countries centralise before decentralising Where transactional accounts are necessary, any end-of-theday cash balances should be swept back into the TSA.
Section 4: The Operation of the ZBA before July 2011, the circumstances leading to the change and the impact thereafter Getachew Negera Director of Treasury MoFED Federal Government of Ethiopia
Treasury
transfers
CBE
transfers
CBE Zero Balance Account
PBs
Payment to beneficiaries
Section 5:FGE Cash Management: Summary Analysis and Recommendations 7 Key Areas Kojo Oduro Lead PFM Adviser Crown Agents, UK
ZBAs: Recommendations
The TD should revert to the use of ZBAs (but also deploy a cash buffer to cope with unanticipated cash demands). Improvements in cash flow forecasting will also give the TD more reassurance about the size of the cash buffer needed The ZBA system should be rolled out to all PBs, and providing that it is practical also to the release of cash to regions It will be facilitated by recent and prospective improvements in the banking network (although is strictly not dependent on them) Because of the extra complications associated with grants to the regions, give priority to rolling out ZBAs to all PBs
Grants to Regions
ZBA Regional SBs Dotted squares show existing ZBAs (pre July 2011)
FEDERAL GOVERNMENT
The system of disbursing funds or cash at the FGE is undergoing changes, while the payment systems in the PBs essentially remain the same B-Account-ZBA-back to B-Account: At the Treasury level the system has changed from a B-Account (without cash forecasting) system to the ZBA back to the B-Account system (the latter 2 with cash forecasting) A Decentralised payment system: Both the B-Account system and ZBA operated in an environment of a decentralised payment system at the PBs level The Disbursement system has encouraged the CFF to be turned into request for release of funds: the CFF system is intertwined with the system for requesting funds from the TD Attention to details and accuracy lacking: In both cases not much attention has been paid to the details of the forecasts. The current B-Account system is almost close to a cash rationing regime: It has been in place for only 3 to 4 months, but its dysfunctional aspects
DISBUSREMENT & PAYMENT SYSTEM: PBS ARE DIRECTLY RESPONSIBLE FOR PAYMENT PROCESSING IN A DECENTRALISED PAYMENT SYSTEM Budget Appropriation MoFED- BD Central NBE Treasury (The Ledger Central System Bank)(TSA) (IBEX) Reports to Treasury on Payments to Payment & Receipts Suppliers Accounts; Govt Receipts
MoFED- TD
MoFED- AD
Budget Appropriation
PBs
PBs Level Ledger System (IBEX) Expenditure transactions from PBs to TSA Bank; Reports to PBs on payment and Receipts
Short term actions to make the B-Account System work better: 1. Clear and transparent rules for ordering payments should be established 2. PBs should prepare regularly the time profile of expected cash disbursements of outstanding spending commitments: by preparing for their own use a schedule of commitments and likely cash outflows on a regular basis to support better forecasts Medium to Long term considerations in the disbursement and payment systems to make the TSA/ZBA system work better: 1. Disentangle budget execution and cash management : the cash flow forecasts should be developed independently of budget execution requirements. 2. The IFMIS system should be used for monitoring and controlling commitments: This responsibility should not be passed on to the banks through the cash management system. 3. Avoid use of physical cash in the transactions whenever possible.
Whilst some form of CFF by the PBs is in place, it is not well developed. Annual CFF not updated: The revenue forecast is done annually (the annual forecast is reasonable but could be improved further if it were updated in the same manner as the expenditure forecast) Monthly forecast are undertaken : The expenditure forecasts are done on a monthly basis rolled into quarters Manual: The process for collating the forecasts is unnecessarily manual It is closely linked with budget execution Lacks analysis: Little time is dedicated to analysing the forecasts against actual cash flows Feedback is not provided to the PBs or ERCA on their forecasting performance.
Section 6: A cash flow forecasting framework based on the TSA, taking into account the operation of extra-budgetary funds and donor flows into government agencies: A forecasting framework, that compares forecasts to actuals and providing feedbackKojo Oduro Lead PFM Adviser Crown Agents, UK
Title
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2,000
3,000
4,000
5,000
6,000
7,000
0 Revenue Expenditure
Title
Ham 1 Ham 8 Ham 15 Ham 22 Ham 29 Neh 6 Neh 13 Neh 20 Neh 27 Neh 4 Mes 7 Mes 14 Mes 24 Tik 1 Tik 8 Tik 15 Tik 22 Tik 29 Hid 6 Hid 14 Hid 21 Hid 28 Tah 5 Tah 12 Tah 19 Tah 26 Tir 4 Tir 12 Tir 19 Tir 26 Yek 3 Yek 11 Yek 18 Yek 28 Meg 5 Meg 12 Meg 19 Meg 26 Mia 3 Mia 10 Mia 18 Mia 25 Gin 3 Gin 10 Gin 17 Gin 24 Sen 1 Sen 8 Sen 15 Sen 22 Sen 29
Personal contacts
Avoid requests / information going up hierarchy, across and down Cash forecasters in Treasury must have direct contact with opposite numbers in major PBs and ERCA
TABLE 2
MONTHLY FORECAST
Payments 1. Personnel Services 2. Goods & Services 3. Fixed Assets & Construction 4. Subsidies, Grants & Other payments Payments Sub-total Other Payments 5. Repayments of CF advances 6. Transfers to other PBs account at NBE 7. Other payments Other Payments Sub-total Total Payments Extra- budgetary Receipts 1. Receipts Expected from External Assistance 2. Receipts Expected from Retained Revenue 3. Loans Total Receipts Financed by CF Transfers/Cash Flow Forecast -
TABLE 3
MONTHLY OUTTURN
Net Opening Balance b/fwd from last month End Month Balance for B-Account/ZBA-Account Payable Orders Outstanding at Month End Net Closing Balance CF Transfers on 1st working day Consolidated Fund Advances Top up budget issued External Assistance -
Total Funding Issued Total Funding Issued plus Opening Balance Implied Net Payment Flows Variance To be calculated
Submission Forecast:
of
Subsidies, Grants and Other Payments 6400 The forecast information will be submitted to the TD by prescribed dates and time, electronically. This will support aggregation of the data. The forecast shall be e-mailed by the PBs directly to the CMT. Other web-based data sharing technologies to be explored ( for example, Share Point)
TA clear line of communication between the TD and the Central Bank of the rolling forecasts. It will be subject to review, along with discussion of the necessary response, in the Treasury Fund Management Committee (TFMC). ( to be set up)
Distinction between the Cash Flow Forecasting Process and Budget Execution Analyses of Data
A clear separation will be made between the two. Cash flow forecasts should be prepared as a separate exercise to the budget execution process and
The CMU and their counterparts in the PB shall spend time to analyse the forecast against outturn, and seek means to improve the forecast.Data will be extracted from IBEX disaggregated analysed to identify patterns in sub-components of revenue and expenditure Disbursement patterns from external agencies shall be monitored and an assessment made of the pattern of any lags between commitment and disbursement. The TD should work closely with the Bilateral and IFI Directorates in MoFED to liaise with the agencies for up-to-date information. The TD should provide feedback to the PBs and ERCA about the accuracy of their forecasts against actual on a quarterly basis.
Feedback
Timing of Forecast 1: Presented in Ginbot 2: Presented in Sene 3:Presented in Hamle 4: Presented in Nehassie 5: Presented in Meskerem 6: Presented in Tikimt 7: Presented in Hidar 8: Presented in Tahisase 9 Presented in Tirr 10 Presented in Yekatit 11 Presented in Megabit 12 Presented in Miazia 13 Presented in Ginbot
M W M W M W M W M W M W M W M W M W M W M W M W M W
Month 3: Meskerem W1 W1 W1 W1 W1 W1 W1 W1 W1 W1 W1 W1 W1 W2 W2 W2 W2 W2 W2 W2 W2 W2 W2 W2 W2 W2 W3 W3 W3 W3 W3 W3 W3 W3 W3 W3 W3 W3 W3 W4 W4 W4 W4 W4 W4 W4 W4 W4 W4 W4 W4 W4 W5 W5 W5 W5 W5 W5 W5 W5 W5 W5 W5 W5 W5 Month 4: Tikimt Month 5: Hidar Month 6: Tahisase Month 7:Tirr Month 8:Yekatit Month 9:Megabit Month 10:Miazia Month 11:Ginbot Month12: Sene Month 1: Hamle Nehassie 2 Meskerem3
Month 3: Meskerem Month 4: Tikimt Month 5: Hidar Month 6: Tahisase Month 7: Tirr Month 8: Yekatit Month 9:Megabit Month 10: Miazia Month 11:Ginbot Month12: Sene Month 1: Hamle
Month 6: Tahisase Month 7: Tirr Month 8:Yekatit Month 9:Megabit Month 10: Miazia Month 11:Ginbot Month12: Sene Month 1: Hamle Nehaassie 2
Section 7: Progress to-date and on-going challenges: what has been achieved and a realistic assessment of what is possible-GN
Evidence of realistic budget in 2013 and the medium term ( 2014 and 2015)
On progress
Separation of the cash forecasting system from Budget Execution Re-introduction of the ZBA system Implementation of the new cash forecasting system Setting up of dedicated forecasting units in the TD Setting up of dedicated forecasting units in the PBs Extension of the ZBA to Regions
XX
Not Started
CBE has connected 180 Branches On progress, It is on the end user training On Progress
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Questions