ACKNOWLEDGEMENTS
Prepared for the United States Agency for International Development, USAID Contract Number
AID-182-C-12-00001, Albania Planning and Local Governance Project (PLGP)
This assessment report was prepared by:
John Wiggins
International Public Finance Management Consultant
Elton Stafa
Public Finance Management Expert
Co-Plan, Institute for Habitat Development
Merita Toska
Public Finance Management Expert
Co-Plan, Institute for Habitat Development
Tetra Tech ARD Home Office Address:
Tetra Tech ARD
159 Bank Street, Suite 300
Burlington, Vermont 05401 USA
Telephone: (802) 658-3890
Fax: (802) 658-4247
www.ardinc.com
Tetra Tech ARD Contact:
Adrienne Raphael, Senior Technical Advisor/Manager
adrienne.raphael@tetratech.com
PLGP contact:
Kevin McLaughlin, PLGP Chief of Party
kevin.mclaughlin@tetratech.com
The assessment team is grateful to Fier Municipality and its officials for their ready and patient
cooperation in providing all the information needed for the production of this Assessment. We are
grateful in particular to the Mayor, Mr. Armando Subashi, the Administrator General, Mr. Florjan Muçaj,
Ms. Enkelejda Peshkëpia, Ms. Evrinomi Zhezhi and Ms. Dorela Dollakaj for their support and
coordination of the entire process within the municipality.
About the USAID Planning and Local Governance Project
USAID’s Planning and Local Governance Project in Albania (PLGP) works both at the
national policy level and at the local level to promote acceptance of the principles of
decentralized governance, and to disseminate and institutionalize practical and effective
methods and techniques for municipal management. The PLGP ‘partner’ local selfgovernment units after the Territorial and Administrative Reform include: Tirana, Durres,
Fier, Lushnje, Berat, Kuçova, Patos, Vlora, Saranda, Elbasan, Korça, Vora and Kamza. The
program works in four main areas:
SUPPORT THE GOVERNMENT OF ALBANIA TO DRAFT AND IMPLEMENT EFFECTIVE
DECENTRALIZATION POLICIES AND LEGISLATION
The Project assists the Government of Albania (GOA), local government representatives,
and relevant NGOs/municipal associations to make informed decisions based on inclusive
consultations/broad consensus on the policy development framework for effective
decentralization such as the Territorial and Administrative Reform, the National CrossCutting Strategy on Decentralization and Local Governance 2014-2020, the Law on Local
Self-Government, the reformation of the unconditional grant system and the development
and discussion of the first-ever comprehensive law on local government finances, aiming at
a more equitable distribution of resources and improved delivery of services;. PLGP
continues to promote an inclusive dialogue and help building a bipartisan consensus on
issues of strategic importance to local self-governments and the citizens of Albania.
IMPROVE LOCAL GOVERNANCE
PLGP provides technical assistance and on-the-job training to staff in the 13 consolidated
partner municipalities to improve the efficiency of their management systems and service
delivery operations. A special focus is given to information and communication technology
(ICT) helping building e-government solutions that enhance both local operational efficiency
and public administration modernization. The program assists partner local self-governments
to improve tax collection by addressing systemic weaknesses of tax administration; develop
alternative methods to increase own-source revenues; better manage assets under local
government jurisdictions; and ensure the predictability, sustainability and transparency of
local government budgetary processes. It assists the selected local self-governments in
raising citizen awareness of local government functions, enabling the exercise of citizen
rights and responsibilities, and citizen participation in local government decision-making.
IMPROVE MANAGEMENT OF LOCAL SERVICES
PLGP assists the GOA and local governments in ensuring that laws, policies, procedures,
and services such as water, wastewater, and solid waste management are consistent with
EU standards and environmental standards in particular. It assists selected local
governments, and supervisory boards, in developing skills, defining roles, and building
knowledge needed to effectively manage and oversee jointly-owned utility companies
dealing with these services.
ASSIST THE GOA AND LOCAL GOVERNMENTS TO PLAN AND MANAGE URBAN AND REGIONAL
GROWTH
PLGP provides technical assistance to the GOA and selected local governments in
developing skills and knowledge to draft territorial plans in accordance with the Law on
Territorial Planning. It provides technical assistance to the National Territorial Planning
Agency to develop a conceptual framework for the National Territorial Plan in accordance
with the Territorial Planning Law and implementing regulations. Citizens, civil society groups,
businesses, and other NGOs will be provided opportunities for increasing their participation
in and oversight of territorial planning.
1
Contents
Executive Summary ............................................................................................................ 7
Chapter 1 Introduction ..................................................................................................... 10
1.1 Rationale and purpose .................................................................................................. 10
1.2 Assessment management and quality assurance ......................................................... 11
1.3 Assessment methodology ............................................................................................. 12
Chapter 2 Background information................................................................................... 15
2.1 Country economic situation .......................................................................................... 15
2.2 Fiscal and budgetary trends .......................................................................................... 17
2.3 Local Government Structure ......................................................................................... 18
2.4 Fier Municipality ........................................................................................................... 21
2.5 Legal and regulatory arrangements framework for PFM ............................................. 24
2.6 Institutional arrangements for PFM in Fier .................................................................. 26
Chapter 3 Evaluation of PFM systems, processes and institutions .................................... 29
3.1 Subnational PEFA indicator HLG-1: Transfers from a higher level of government ...... 29
3.2 Pillar 1. Budget Reliability ............................................................................................. 33
3.3 Pillar 2. Transparency of Public Finances ...................................................................... 40
3.4 Pillar 3. Management of Assets and Liabilities ............................................................. 49
3.5 Pillar 4. Policy Based Fiscal Strategy and Budgeting ..................................................... 55
3.6 Pillar 5. Predictability and Control in Budget Execution ............................................... 64
3.7 Pillar 6. Accounting and Reporting ............................................................................... 80
3.8 Pillar 7. External Scrutiny and Audit ............................................................................. 84
Chapter 4 Conclusions on the analysis of PFM systems..................................................... 87
4.1 Integrated analysis of PFM performance ..................................................................... 87
4.2 Effectiveness of the internal control framework .......................................................... 90
4.3 PFM strengths and weaknesses .................................................................................... 91
Chapter 5 Government PFM reform process ..................................................................... 93
5.1 Approach to PFM reform .............................................................................................. 93
5.2 Institutional considerations .......................................................................................... 93
Annex 1. Performance Indicator Summary ....................................................................... 94
Annex 2. Summary of observations on the Internal Control Framework ......................... 101
Annex 3A. List of documents consulted .......................................................................... 103
Annex 3B List of people interviewed .............................................................................. 104
Annex 3C Sources of information for each Performance Indicator .................................. 105
Annex 4. Disclosure of quality assurance arrangements ................................................. 106
2
Abbreviations
ALL
APP
CA
CHU
COFOG
DLDP
EU
FMC
FMIS
FY
GFS
GDTF
HLG
HR
HSC
IA
IFMIS
IIA
IPSAS
LGU
MOF
MOSLI
MTB
NA
NS
NU
NDSI
PEFA
PFM
PI
PLGP
PPC
PPL
PPP
RDF
SBT
SDC
SECO
STAR
TAR
TDO
TSA
UNDP
USAID
WB
Albanian Lek
Public Procurement Agency
Contracting authority
Centralized Harmonization Unit
Classification of Functions of Government
Decentralization and Local Development Program
European Union
Financial management and controls
Financial management information system
Fiscal year
Government Finance Statistics
General Department of Tax
High level of government
Human resources
High State Control
Internal audit
Integrated Financial Management Information System
Institute of Internal Audit
International Public Sector Accounting Standards
Local Government Unit
Ministry of Finance
Minister of State for Local Issues
Medium-term budget
Not Applicable
Not Scored
Not Used
National Strategy for Development and Integration
Public Expenditure and Financial Accountability Program
Public Financial Management
Performance indicator
Planning and Local Government Project
Public Procurement Commission
Public Procurement Law
Public-private partnership
Regional Development Fund
Small business tax
Swiss Agency for Development and Cooperation
Swiss Economic Cooperation and Development
Support to Territorial and Administrative Reform Project
Territorial and Administrative Reform
Treasury District Officer
Treasury single account
United Nations Development Program
United States Agency for International Development
World Bank
3
Currency and indicative exchange rate
Local currency unit: Albanian Lek (ALL)
Exchange rates, September 2016:
137 ALL per Euro
125 ALL per USD
Fiscal Year
1 January – 31 December
4
Executive Summary
Purpose, scope and management of the assessment
1. This report presents the findings of the first assessment of PFM systems in the Municipality
of Fier based on PEFA methodology. The objective of the assessment is to gain a better
understanding of the strengths and weaknesses of municipal PFM systems as a basis for
discussing PFM reform priorities and possible areas of support to the newly restructured
municipality. The assessment is based on the performance of the PFM systems as at October
2016 and during the period prior to that as defined by PEFA methodology. It is focused on the
amalgamated Municipality following the 2015 merger with nine former communes (Libofshë,
Dermenas, Qendër, Mbrostar, Topojë, Levan, Frakull, Portez and Cakran) as part of the
Territorial Administrative Reform (resulting in a more than doubling of the population), but
covers for a number of issues the period back to FY2013 inclusive. It is one of a series of five
assessments of Tirana and other municipalities financed by SECO and USAID/PLGP, with the
sample selected so as to have a view of PFM in large, medium and small municipalities. Fier,
with a population of 120,000 is the largest municipality assessed apart from the capital city,
Tirana.
Main findings of the assessment
2. The main findings of the assessment are focused on the whether the Municipality has
appropriate systems in place to assist it in maintaining aggregate fiscal discipline, allocating
resources strategically, and using them efficiently for service delivery. A summary of findings
on the individual elements of the PFM systems – indicator by indicator – is provided in section
4.1 of the report below, which is reflected in the table of scores at the end of this section.
Aggregate Fiscal Discipline
3. Overall fiscal discipline is not a primary concern, although a number of issues need to be
addressed. The Municipality is bound to balance its budget as – in common with almost all
Albanian municipalities - it has no realistic prospect of borrowing to finance a fiscal deficit.
About three quarters of its income consists of conditional and unconditional transfers from
central government, which effectively determine much of its expenditure. The amounts and
timing of these transfers are generally predictable during budget execution, but they are not
set within a multi-year framework which would enable the municipality to plan their use
effectively.
. A ajo o e is the i diffe e t pe fo a e i the Mu i ipalit s o
e e ue
collections. Fier collected only 58% of planned local revenues (incl. taxes that in practice
would be considered shared taxes) in 2013, 78% in 2014 and 85% in 2015. Such revenues on
5
average cover about two thirds of actual expenditure. Actual capital investments constitute
between 5%- % of Fie s udget f o o
lo al ta es a d fees a d f eel disposa le
intergovernmental transfers. Major public investment are currently financed from conditional
intergovernmental transfers from the Regional Development Fund. Funds awarded and
actually executed from the RDF constitute 23% and 37% of Fie s o
udget i FY
and
FY 2015. Notwithstanding the policy choices to seek investment financing from the RDF,
underperformance in revenue collection have thereby substantially reduced the it s s ope
for initiatives of its own. This situation is partly a reflection of limits placed by central
government on municipal taxing powers ut also efle ts i ade ua ies i the it s p ope t
and taxpayer records, and in the efforts made and instruments available to enforce payment.
Strategic Allocation of Resources
5. Municipalities in Albania have only limited scope for choice in the allocation of resources.
They have little responsibility for the provision of the main health and education services, and
their involvement in social protection is essentially that of an agent of central government. In
accordance with national requirements, Fier has prepared its General Local Plan (GLP), which
incorporates its Territorial Development Strategy (TDS) and provides the basis for its Capital
Investment Plan (CIP). However, implementation of these plans depends almost entirely on
funding from central government, which has been highly unpredictable from year to year. The
existence of these plans should mean that if resources become available, they will not be
wasted; but the municipality does not decide the order in which its chosen investments
should be executed.
. I est e t apa t, the it s p edi ta le esou es f o its o
e e ues a d f o
unconditional grants distributed according to a national formula are largely pre-empted by
the ongoing costs of running the city administration, keeping the city clean and tidy, and
maintaining the public infrastructure. The allocation of resources to these functions is unlikely
to change much within a fiscal year, or even between one year and the next. But the
unpredictability of investment funding means that the functional composition of expenditure
as measured by PEFA may change considerably between budget and out-turn.
7. Formal requirements for transparency and public consultation on the budget appear to be
observed. But there is no evidence that discussion by the Municipal Council of the mediumterm plans or the annual budget makes much overall difference to the outcomes. Although
the recommendations of external audit reports are freely available on the High State Control
website, the reports have not been discussed by the Council. Although freedom of
information legislation means that annual and in-year budget execution reports should be
available on the city website, it is not clear that this requirement is consistently followed.
Efficiency in Use of Resources for Service Delivery
6
8. It appears that the TAR has resulted in an overall reduction in the municipal wage bill, as
not all the staff of the former communes have been absorbed by the new municipalities. This
should al ead ea a effi ie
gai , hi h should e ei fo ed the e
u i ipalities
greater ability to deploy staff and other resources in preparing plans and dealing with
problems. In the medium term there should be scope for efficiency gains through the
improvement and integration of IT systems; while the fact that all revenue and expenditure
transactions are recorded in the national Treasury system provides an important element of
overall structure, there are no automatic links between municipal budgetary systems and the
Treasury, with most municipal operations (budgeting, revenue, payroll, procurement)
dependent on separate and relatively basic IT systems. There is clearly room for a central
initiative to develop integrated IT systems which could be used by all municipalities. There is
formal compliance with requirements for budgets to be presented in a programme format,
but many municipal operations do not readily lend themselves to this, while little progress
has been made in setting objectives to be secured by such programmes, and identifying
performance indicators to measure progress towards their achievement. Other efficiency
gains will be dependent on improvements in investment planning, which require changes in
the way the central government allocates conditional grant finance.
9. At the operational level, control of employment and payroll appears to operate reasonably
well as does the payment function for non-salary expenditure. Also, recent gains in
transparency and monitoring of procurement augur well for improvements in value for
money of expenditure, particularly if the medium-term planning of municipal investment can
be improved. Internal audit in Fier is useful and effective, and external audit by HSC is evolving
towards a greater focus on the performance of systems rather than simply inspecting
compliance.
Integrity and consistency of financial data
10. Considerable difficulty has been encountered in this assessment as a result of
inconsistencies between data provided by municipalities and data extracted from the
Treasury system. Clearer instructions are needed covering what is to be included in municipal
budgets, how they should be presented, and how budget execution should be reported. The
unpredictability of Regional Development Fund (RDF) funding and the differences in the way
it is reported by different municipalities, are the most glaring example of this. Rationalisation
of budget preparation, reporting and accounting requirements would facilitate the
development of better IT systems while improving the integrity of the data they contain
through greater discipline in the way data is managed.
7
Prospects for improvements in PFM
11. Fier as a relatively large municipality has the administrative capacity needed to discharge
the functions for which the municipality is responsible, although the limitations on its
resources mean that it cannot readily adapt to new challenges. The problems it faces are
common to all municipalities in Albania, which is at a cross-roads for the development of
municipal government. The need for more effective revenue raising through property taxes
based on realistic valuations is acknowledged, while permanent arrangements have not yet
been established to allocate to municipalities the resources they need in order to discharge
the responsibilities recently transferred to them. There are no arrangements in place to
allocate investment resources to each municipality in a way which enables them to plan their
investments within a medium-term fiscal framework. The absence of common standards for
the public presentation of fiscal information by municipalities is a further problem which
needs to be addressed.
Municipality of Fier - Summary Assessment 2016 ratings
Dimension Ratings
Scoring
PFM Performance Indicator
Method
i.
ii.
iii.
iv.
Pillar I. Budget reliability
Transfers from Higher Level of
HLG1
M1
B
C
A
Government
PI-1
M1
D
Aggregate expenditure out-turn
PI-2
M1
D
D
A
Expenditure composition out-turn
PI-3
M2
D
D
Revenue out-turn
Pillar II: Transparency of public finances
PI-4
M1
C
Budget classification
PI-5
M1
B
Budget documentation
Central government operations
PI-6
M2
A
A
NA
outside financial reports
Transfers to sub-national
PI-7
M2
NA
NA
governments
Performance information for service
PI-8
M2
D
D
B
D
delivery
PI-9
M1
D
Public access to fiscal information
Pillar III: Management of assets and liabilities
PI-10
M2
A
NA NA
Fiscal risk reporting
PI-11
M2
C
C
D
C
Public investment management
PI-12
M2
D
C
B
Public asset management
PI-13
M2
NA
A
NU
Debt management
Pillar IV: Policy-based fiscal strategy and budgeting
Macroeconomic and fiscal
PI-14
M2
NU
B
NU
forecasting
PI-15
M2
A
B
D
Fiscal strategy
Medium-term perspective in
PI-16
M2
B
A
D
NA
expenditure budgeting
PI-17
M2
C
A
D
Budget preparation process
PI-18
M1
A
A
B
C
Legislative scrutiny of budgets
Pillar V: Predictability and Control in Budget Execution
PI-19
M2
B
C
D
D*
Revenue administration
PI
Score
C+
D
D+
D
C
B
A
NA
D+
D
A
D+
C
A
B
B
B
C+
C+
D+
8
Municipality of Fier - Summary Assessment 2016 ratings
Dimension Ratings
Scoring
PFM Performance Indicator
Method
i.
ii.
iii.
iv.
PI-20
M1
A
D
D
Accounting for revenue
Predictability of in-year resource
PI-21
M2
A
C
D
C
allocation
PI-22
M1
D
A
Expenditure arrears
PI-23
M1
B
A
B
C
Payroll controls
PI-24
M2
A
A
B
B
Procurement management
Internal controls on non-salary
PI-25
M2
B
C
A
expenditure
Pillar VI: Accounting and reporting
PI-26
M1
C
B
B
B
Internal audit
PI-27
M2
B
A
NA
D
Financial data integrity
PI-28
M1
A
A
C
In-year budget reports
PI-29
M1
D
D
C
Annual financial reports
Pillar VII: External scrutiny and audit
PI-30
M1
C
D
C
C
External audit
PI-31
M2
D
NA
NA
NA
Legislative scrutiny of audit reports
PI
Score
D+
C+
D+
C+
B+
B
C+
B
C+
D+
D+
D
9
Chapter 1 Introduction
1.1 Rationale and purpose
1. The objective of conducting a subnational PEFA in five selected municipalities is to gain a
better understanding of the strengths and weaknesses of subnational PFM in Albania as a
basis for discussing PFM reform priorities and possible areas of support to the newly
restructured municipalities.
2. During the last two years, the local governance environment has changed dramatically. In
July 2014, the Parliament enacted the Territorial Administrative Reform (TAR), decreasing the
number of local government units in Albania from 373 very fragmented communes and
municipalities to just 61 consolidated and larger municipalities. It is generally agreed that this
as the g eatest ha ge to Al a ia s s ste of lo al go e
e t si e the de o ati
transition in 1992 and it provides an unprecedented opportunity to strengthen local
government capacities. The TAR aims at improving efficiency and effectiveness, not only of
local governments but also of the central government. To fulfil this, it needs to be
accompanied by significant changes in the area of local government finances.
3. After the reform, a series of consequent legal and institutional changes occurred: i) local
elections took place in June 2015 and 61 Mayors took office in the newly constituted
municipalities; ii) a new National Crosscutting Strategy on Decentralization and Local
Go e a e has ee fo ulated to p o ide o e la it o the Go e
e t s isio o
decentralization and (iii) a new Law on Local Self-Governance was enacted. The latter
decentralized a number of important and costly functions to the new local government units
which will have important implications for financial management as well.
4. The next step to complete the legal framework is the drafting and approval of the first-ever
comprehensive Law on Local Government Finances, which will bring together all principles
and procedures related to local government sources of revenues, expenditure management
and intergovernmental dialogue and consultation. The key objectives of the new law are to
ensure the adequacy of local government financial resources; strengthen local government
taxing powers; guarantee the equity, transparency and predictability of intergovernmental
transfers; support the effective and transparent use of local financial resources in accordance
with the strategic priorities and local needs; ensure fiscal discipline and enable efficient
delivery of public services; enable local governments to effectively use their right to borrow
resources; and ensure a continuous dialogue between the two levels of governance on the
key issues that affect local government functions and responsibilities and their financial
resources.
10
5. The development of municipal government in Albania has particularly been supported by
USAID and the Swiss Government (SECO/SDC). In accordance with this SECO has
commissioned and financed the assessments of three municipalities (Tirana, Berat and
Tropoja), while USAID/PLGP has been responsible for the assessments of Fier and Kuçova.
Other development partners (EU, UNDP, World Bank, SDC) have been consulted in the
preparation of the terms of reference and have commented on the draft reports. Overall the
five municipal PEFA assessments are intended to:
Provide government officials at both, central and local level with an assessment of
PFM performance at subnational level and improve the understanding of the need
for a well-functioning PFM system at local level;
Provide information and inputs to the legal and regulatory reforms with regard to
the subnational PFM area;
Provide an analytical starting point for deeper support of PFM reforms at
subnational level in Albania, possibly also informing future TA projects in this
area;
Provide opportunities for donor alignment and further use of synergies.
1.2 Assessment management and quality assurance
6. USAID/ PLGP and SECO are the lead agencies responsible for the procurement of the
assessment teams and supervision of the work of the assessors.
Box 1 Assessment management and quality assurance arrangements
PEFA Assessment Management Organization
Oversight Team – covering all five municipalities :
o Ministry of Finance (MOF), Fran Brahimi, co-chair;
o Minister of State for Local Issues (MOSLI), Enea Hoti;
o High State Control (HSC), Bajram Lamaj;
o Representatives of each of the five municipalities, (Fier- Florian Muçaj);
o EU Delegation, Edina Halapi;
o UNDP, Viktor Malkaj;
o World Bank (WB), Hilda Shijaku;
o SDC/ DLDP, Valbona Karakaçi,
o USAID/ PLGP, co-chair, represented by Kevin McLaughlin
o SECO, co-chair, represented by Philipp Keller, Swiss Embassy in Tirana.
Assessment Team for Fier: International PFM consultant John Wiggins (team
leader), as well as local PFM consultants Elton Stafa and Merita Toska.
Review of Concept Note for all five municipalities:
Concept Note draft prepared by SECO and USAID/PLGP, circulated for review to OT
11
members and PEFA Secretariat on 1st September 2016.
Invited reviewers: MOF, HSC, MOSLI, PEFA Secretariat, SDC, DLDP, EU Delegation,
WB, UNDP, five municipalities.
Reviewers who provided comments: MOF (Fran Brahimi), HSC (Bajram Lamaj), SDC
(Elda Bagaviki), PEFA Secretariat (Guillaume Brule) all on 13 September; and DLDP
(Stefan Pfäffli) on 12 September.
Final Concept Note approved by OT on 20 th September, 2016.
Review of the Assessment Report for the Municipality of Fier:
Assessment report draft circulated December 14th and December 27th, 2016:
Invited reviewers: Municipality of Fier, Ministry of Finance, SECO, and PEFA
Secretariat.
Reviewers who provided comments: Ministry of Finance, SECO, PEFA Secretariat
1.3 Assessment methodology
7. The overall assessment work covers the following five municipalities: Berat, Fier, Kuçova,
Tirana and Tropoja. The municipalities were selected taking into consideration the following
criteria:
Representative sample of population size, rural/urban and geographical coverage,
average income, political balance;
Municipal commitment, staff capacities and data availability;
Synergies with donor support activities.
Ti a a, as the apital it
ith so e
pe e t of the ou t s populatio , was
automatically selected for assessment. Fier, Berat and Kuçova (in order of population) were
selected as municipalities with substantial urban centres, while Tropoja was included in order
to have an insight into a remote and largely rural municipality. Apart from the water utility
Fier does not control any operations which are not accounted for as part of its budget, and
has no interest in other business activities. There is no further tier of government subordinate
to the municipality.
8. The territorial changes to the municipalities induced by the TAR necessitated a scoping
mission prior to conducting the PEFA assessments in order to evaluate on which basis PEFA
assessments may be conducted. The scoping mission was undertaken 26th June to 3rd July by
a team of five consultants, contracted by SECO through ECORYS: international PFM
consultants Frans Ronsholt (team leader) and Jorge Shepherd, as well as local PFM
consultants Elona Gjika and Sabina Ymeri. USAID/PLGP participated in the scoping mission
through a local PFM expert Elton Stafa. A Scoping Mission Report was issued on 15th July 2016
and became the basis for preparing the Concept Note, which was finally approved by the OT
on 20th September 2016.
12
9. The aim of the scoping mission was to evaluate for each of these municipalities whether
the assessments could be conducted in accordance with the requirements of the 2016 PEFA
Framework considering that the relevant assessment periods spanned the transition phase of
the TAR. The territorial coverage of each municipality in FY2016 is significantly different from
the coverage in FY 2014, and FY 2015 represents a hybrid year of transition. Therefore, an
assess e t of the u i ipalities pe fo a e i
a ot e u de take ith o plete
adherence to the PEFA 2016 Framework.
Tirana apart, Fier continues to have the highest ratio of own revenues to total income among
the four municipalities assessed (see Table 2.11 below). The assessment team has therefore
assessed indicator dimensions with multi-year coverage on the basis of the pre-TAR
municipality as regards FY2014 and FY2013 together with data for the amalgamated
municipality during the hybrid FY2015.
13
10. In the case of Fier Municipality the impact of TAR on the organisation and overall level of
financial operations is only moderate. While the integration of the 9 communes into the
municipality implies an increase in potential own revenues of 75 per cent, it does not require
a fundamental change in the financial management arrangements. Across the country the
integration of rural areas with urban settlements implies an increase in the new
u i ipalities depe de e o fi a e f o
e t al go e
e t as o pa ed ith the
position of the former municipalities. The map attached illustrates the large increase in the
area of the Municipality of Fier.
11. This PEFA assessment follows the structure, methodology and guidelines of the PEFA 2016
Framework and the Supplementary guidance for subnational PEFA assessments dated March
2016. As there is no subnational government level below municipalities, indicator PI-7 and
dimension PI-10.2 do not apply. Fier and Kuçova are the owners or part owners of the water
and sewerage utilities which operate in their areas, but neither municipality has any other
subordinate institutions or extra-budgetary activities. Moreover, and in line with guidance,
macroeconomic forecasting and macro fiscal sensitivity analysis in PI-14 as well as debt
management strategy PI-13.3 have been excluded as they are central government functions
which a municipality would not be expected to undertake. These indicator dimensions are
a ked NA fo Not Appli a le .
12. Two assessment teams have been fielded for the municipal assessments proper. The
SECO/ECORYS team that undertook the scoping mission also undertook the assessments of
Tirana, Berat and Tropoja. A team commissioned by USAID/PLGP consisting of John Wiggins
(international consultant) and Elton Stafa and Merita Toska (local experts) undertook the
assessments of Fier and Kuçova. The field mission schedule for the team covering Fier and
Kuçova was as follows:
Table 1.1. Field Mission Schedule
Date
15th September
15th-16th September
30th September
24th-28th October
31th October - 4th November
9th December
13th December
16th December
Activity
OT meeting
PEFA capacity building workshop for all five
municipalities
Wrap-up meeting with Swiss Embassy, USAID/PLGP,
MOF and HSC.
Data collection/interviews in Kuçova (Municipality and
central governmental institutions)
Data collection/interviews in Fier (Municipality and
central governmental institutions)
Follow up meeting with the Municipality of Fier
Follow up meeting with the Municipality of Kuçova
Wrap-up meeting with Swiss Embassy, USAID/PLGP,
MOF and HSC.
14
Chapter 2 Background information
2.1 Country economic situation
1. From 1945 to 1990 Albania was ruled by the most repressive communist regime in the
world. Freedom of movement, speech and religion were all denied, and private property was
expropriated. Most of Al a ia s su sta tial e o o i
esou es e e asted o
unproductive investments sustained by keeping Albania isolated from the rest of the world.
Compared to the rest of Europe real incomes remained very low, and the public infrastructure
very inadequate. By the time of the fall of the Berlin Wall and the collapse of the Soviet Union
the fo es i Al a ia seeki g fu da e tal ha ge had e o e i esisti le, a d the “tude ts
Mo e e t led to the sudde i stallatio of de o a a d a a ket e onomy in the place
of dictatorship and the former command economy. In the vacuum resulting from the
disappearance of the former regime uncontrolled private interests tended to prevail over the
interests of society as a whole. Since the turn of the millennium Albania has been working to
build the social, political and judicial institutions which will support social and economic
development, while ensuring the rule of law. While progress has been made, further work
remains to be done.
Table 2.1. Some facts about Albania
Republic of Albania
Name
fo
Population:
Total surface
Land boundaries:
Coastline:
Average age of
inhabitants:
Natural resources
e l People s “o ialist ‘epu li of Al a ia
2.821.977 inhabitants (-8.0% compared to 2001 census)
(estimated 500.000 emigrants living abroad)
28,748 km2
(land: 27,398 km2, water: 1,350 km2)
717 km border;
Greece 282 km, Macedonia 151 km, Montenegro 172 km, Kosovo 112 km
362 km on Adriatic and Ionian Sea
(strategic location along Strait of Otranto)
35.3 years (from 30.6 years in 2001);
Petroleum, natural gas, coal, bauxite, chromite, copper, iron ore,
nickel, salt, timber, hydropower.
Source: Population and Housing Census 2011, INSTAT
2. The transition to the a ket e o o
e essitated la ge ha ges i the ou t s e o o i
structure. Much industrial capacity immediately became uncompetitive, resulting in high
unemployment and a continuing large trade deficit as people satisfied pent-up demand for
goods which could only be obtained from abroad. The trade deficit has been mainly financed
by foreign direct investment (FDI), particularly in the tourism, finance and distribution sectors,
by the sale of state assets to foreign purchasers, and by remittances from Albanians who had
moved abroad in search of work. During the period up to the global financial crisis in 2008
these forces resulted in rapid economic growth. But since then conditions have been much
15
more difficult, and economic growth slowed progressively from 7.5 per cent in 2008 to 1.1
per cent in 2013. The last three years have seen a partial recovery based in inward investment
and construction, with growth expected to each 3 per cent in 2016. For this recovery to be
sustained the country needs to build productive capacity, for which a continuing flow of FDI
will be needed, particularly to ensure that the country benefits from the introduction of new
technology. This investment will in turn be dependent on Albania providing an adequately
trained work force and a stable and reliable business and legal environment.
Table 2.2. Main macroeconomic indicators
Inflation (y-o-y, average, in %)
Core Inflation (in %)
Total inflation (in %)
Economic Growth
Real GDP growth rate (in %)1
Nominal GDP (ALL billion)
GDP per capita (Euro)
Labour Market
Population (/000)
Employed (/000)
Unemployment Rate (in %)3
Fiscal Sector (General Government)
Fiscal Balance (incl. grants, % on
GDP)
Public Debt ( % of GDP)
Revenues (% of GDP)
Expenditures (% on GDP)
External Sector
Current Account (% on GDP)
Goods imports (fob, % on GDP)
Goods exports (fob, % on GDP)
Foreign direct investments (inflow,
% on GDP)
Foreign Reserve Assets (EUR
million)
Monetary and Financial Sector
Repo rate (end of period)
M3 Aggregate (y-o-y, end of
period)
Credit to Private Sector (y-o-y, end
of period)
12M Yield (annual average)
Average USD/ALL ER
Average EUR/ALL ER
2008
2009
2010
2011
2012
2013
2014
2015
2.8
1.4
1.8
3.2
1.7
0.2
0.1
-0.2
3.4
2.3
3.6
3.5
2.0
1.9
1.6
1.9
7.5
3.3
3.7
2.5
1.4
1.1
2.0
2.7
1,089
1,148
1,240
1,301
1,333
1,351
1,401
1,443*
3,088
3,191
3,305
3,323
3,457
3,575*
2,947
2,928
2,913
2,905
2,900
2,897
2,894
2,889
974.1
899.3
1,153
1,127
1,097
990
1,006
1,051
12.7
13.7
14.2
14.3
13.8
16.4
17.9
17.4
-5.5
-7.0
-3.1
-3.5
-3.4
-4.8
-5.2
-4.1
54.7
59.4
57.7
59.4
62.1
70.4
71.8
73.0
26.7
26.0
26.2
25.4
24.8
24.3
26.3
26.4
32.3
33.0
29.3
28.9
28.2
29.2
31.5
30.5
-15.6
-15.3
-11.9
-13.5
-10.7
-11.2
-13.2
-9.8
37.7
35.1
36.2
39.4
36.7
35.7
38.6
35.9
10.3
8.6
13.2
15.2
15.9
18.2
18.4
17.4
7.5
8.2
8.8
6.8
6.9
9.5
8.2
9.3
1,675
1,646
1,904
1,912
1,972
2,015
2,192
2,879
6.25
5.25
5.00
4.75
4.00
3.00
2.25
1.75
7.7
6.8
12.5
9.2
5.0
2.3
4.0
1.9
32.2
11.7
10.1
10.4
1.4
-1.4
2.0
2.3
8.16
9.17
7.98
7.34
7.03
5.16
3.4
3.3
83.9
95.0
103.9
100.8
108.2
105.7
105.5
126.0
122.8
132.1
137.8
140.3
139.0
140.3
139.4
139.7
Source: INSTAT, Ministry of Finance, Bank of Albania.
1
Last update on 2015 Q3.
2
Labour Force Survey Results, referring to 15-65 years old range.
3
According to Labour Force Survey Results.
*The GDP data for 2015 are derived from IMF.
16
3. Meanwhile fiscal and external imbalances continue to present challenges. Poor economic
conditions in Greece and Italy mean lower remittances and the return of some emigrants,
while weak domestic confidence is holding back credit demand despite unprecedentedly low
interest rates. Nevertheless the country is currently making progress in addressing these
imbalances, and meeting all the performance criteria agreed with the IMF under the current
(2014-17) Extended Fund Facility (EFF) arrangement.
2.2 Fiscal and budgetary trends
4. As tables 2.2 and 2.3 show, total General Government revenue has been running at about
26 per cent of GDP, while total expenditure has been 30 per cent or more. The 2008 global
crisis led to a fiscal deficit of 7 per cent of GDP in 2009, and although this was reduced to 3
per cent in 2010 the subsequent trend was upward until the deficit reached 5.9 per cent in
2014. Measures in accordance with the current IMF EFF arrangement brought the deficit
down to 4.5 per cent of GDP in 2015, and a further improvement to 2.5 per cent is expected
for 2016. The succession of fiscal deficits has resulted in an increase in total government debt
from 55 per cent of GDP in 2008 to 73 per cent at the end of 2015, with particularly large
increases in 2012 and 2013. The prospect is that 2016 will see a modest reversal of this
upward trend, but substantial further fiscal consolidation will be needed – of the order of 3
per cent of GDP – to achieve the objective of bringing this ratio down by 2020 close to the
legal maximum of 60 per cent of GDP required by current Albanian legislation as well as by
the EU as a condition of membership.
Table 2.3 General government revenue and expenditure (in ALL billion)
2013
2014
2015
TOTAL REVENUE
328.6
366.7
379.2
As % of GDP
24.3%
26.3%
26.4%
Grants
5.7
10.1
11.2
Tax and Social and Health Insurance
290.6
323.5
330.6
Local Government own revenue 1
10.8
12.4
11.7
LG own revenue as % of GDP
0.8%
0.9%
0.8%
Non tax revenues
21.6
20.7
25.7
TOTAL EXPENDITURE
394.1
438.8
437.4
As % of GDP
29.2
31.5
30.5
CG Current expenditure
298.8
308.4
316.7
LG Current expenditure 2
29.8
32.9
34.1
As % of GDP
2.2
2.4
2.4
Capital expenditure inc. net lending
65.4
60.5
63.1
Arrears
0
33.8
17.6
AGGREGATE DEFICIT
-65.4
-72.1
-58.2
As % of GDP
-4.8
-5.2
-4.1
General Government Debt as % of GDP
70.4
72.0
73.0
Source: Ministry of Finance, Table 4, 2016 Budget Law, Table 6.1 2016 Budget Law, Fiscal Statistics JanuaryDe e e
; IMF C‘ /
; Autho s al ulatio s.
1
Local own revenue here excludes certain non-tax revenue from fees, asset management income etc. It also
excludes any type of revenues transferred by the national government or borrowing receipts.
2
Local Government expenditure here includes expenses financed through own source revenues from taxes,
fees, asset management revenues, freely disposable unconditional grants and competitive grants allocated
17
through the Regional Development Fund. This item excludes financing of delegated functions or other local
functions which are financed by line ministries.
2.3 Local Government Structure
5. The local government system in Albania is based on the Constitution, and is built on the
principles of decentralisation of authority and subsidiarity. The Constitution provides for the
establishment of two tiers of local governments. Since 2000 the decentralisation process
devolved more administrative and fiscal authority to the first tier local government. Starting
from 2015, local government structure underwent a series of structural and institutional
reforms. These reforms began at end 2013 with a sweeping reorganisation of local first tier
governments by reducing their number from 373 to only 61. Since June 2015 the 61
municipalities of Albania have assumed the responsibilities and challenges of managing local
public matters. A new organic law on local government was adopted in December 2015,
establishing the organisation and functioning of local governments, including the division of
powers and responsibilities between the central and local governments.
Table 2.4 Overview of subnational government structure in Albania
Level of Govt.
Corporate Body
Own political leadership
Approves own budget
Number of jurisdictions
Average population
% of public revenue
% of public expenditure
% funded by transfers
Central
Yes
Yes
Yes
1
2.8 mill.
97%
92.2%
3%
Regional
Yes
Yes
Yes
12
233,000
0%
0.4%
100%
Municipal
Yes
Yes
Yes
61
45,900
3%
7.4%
62%
6. The Council and Mayor of municipalities are directly elected every four years. Regional
Councils are not directly elected, but are composed of representatives of the constituent
municipalities. The main (exclusive) responsibilities of municipalities are the provision and
maintenance of the local infrastructure, including roads, local amenities, waste disposal,
public lighting, control of building, social services, pre-university education infrastructure and
irrigation systems. They also perform delegated responsibilities on behalf of central
government, such as civil registration services. Regional Councils have very limited direct
responsibilities, with the focus of their work on the harmonisation of local and national
st ategies. The lio s sha e
% of u i ipal e pe ditu e is fi a ed th ough g a ts f o
the state budget. Municipalities may obtain resources through local taxes as established by
law, fees and user charges for services, revenue from property, and donations.
18
7. National and subnational budgetary systems are governed by the same legal and regulatory
framework. The budgetary system is managed through a unified Treasury account, controlled
by the Ministry of Finance. Each budgetary entity, including municipalities and their
institutions have their own accounts and sub-accounts with the Treasury, which is linked with
the second-tier banking system. Municipalities and regional councils approve their own
budgets, which are subject to a conformity/legality check by the Prefect, a deconcentrated
institution mandated by the Prime Minister to each region.
8. As Table 2.3 shows, local government accounts for only a relatively small part of total
General Government revenue and expenditure. This is a reflection of the limited
responsibilities given to municipalities, and the limited sources of revenue available to them.
As noted above, the revenue which municipalities collect through their own decisions
corresponds to only about 3 per cent of total government revenue (and less than one per cent
of GDP). Their expenditure represents somewhat less than 8 per cent of total government
expenditure, with investment, which accounts for at least a quarter of municipal expenditure,
almost entirely dependent on finance from central government. By contrast central
government capital expenditure represents only about an eighth of total expenditure. Very
little of the expenditure required for public education and health services falls to be met by
municipalities, although they have recently been given more responsibility for the provision
and operation of facilities in the areas of education, health and irrigation and drainage. Total
expenditure by municipalities amounted to about US$170 per head of population in 2015. All
municipal revenue and expenditure takes place within the national Treasury system managed
by the Ministry of Finance; all revenue received by municipalities from non-government
sources is paid into the Treasury account at the Bank of Albania, and all payments on behalf
of municipalities are met from it.
9. The allocation of municipal expenditure by economic classification is shown in Table 2.5
and the functional allocation in Table 2.6. Current expenditures represented more than 70%
of total expenditures during the period 2010-2015. Within this category, personnel and
transfers account for the largest share. Personnel costs remained generally stable over the
period, and operational costs increased only a little. Capital expenditures represented on
average about 26.2% of total expenditures; they declined from 2010 to 2012, and
subsequently recovered to their former level. Expenditure on transfers increased significantly
from 2013..
Table 2.5. Gross current and capital expenditure of all municipalities (/000 ALL)
I. Current expenditures
Personnel
Operational
Subsidies
Grants and Transfers
Interest Payment
2010
21,263
9,580
8,771
2,407
457
47
2011
19,027
9,640
8,146
771
438
32
2012
20,387
9,583
8,532
1,665
573
35
2013
20,155
10,058
8,692
852
521
32
2014
21,094
10,384
9,544
572
568
27
2015
20,647
10,218
9,290
499
586
55
19
II. Capital expenditures
Total Expenditures
Source: Ministry of Finance, T easu
16,538
13,574
10,778
37,801
32,601
31,166
“ ste , Autho s al ulatio s.
13,035
33,190
15,469
36,563
16,526
37,173
10. As noted above, the main responsibilities of municipalities are the provision and
maintenance of the local infrastructure, including roads, local amenities, refuse disposal,
public lighting and control of building. Expenditure on social protection, where municipalities
act as agent for the central government in selecting the recipients of means-tested benefits
according to centrally determined criteria, and making the payments out of specific grants
provided by central government is excluded from the statistics presented here. The costs of
municipal administration are covered by General Public Services, with most other expenditure
classified as Economic Services or Housing and Community Amenities.
Table 2.6. Functional allocation of expenditures (61 Municipalities, ALL million)
2010
2011
Total Expenditures
37,801
32,601
General public administrative services
11,096
10,476
Public order and safety
174
159
Economic affairs
8,192
6,867
Environmental protection
0
0
Housing and community amenities
11,498
8,439
Health
19
86
Recreation, culture and religion
1,507
1,877
Education
4,868
4,295
Social protection
446
402
Source: Ministry of Finance, T easu “ ste , Autho s al ulatio s.
2012
31,166
10,881
174
5,077
0
8,487
88
1,585
4,462
412
2013
33,190
10,221
190
7,483
0
9,481
44
1,553
3,733
485
2014
36,563
10,753
212
8,979
0
9,441
11
1,569
5,109
488
2015
37,173
9,953
190
10,909
0
9,969
46
1,542
4,069
497
11. O l a elati el s all pa t of u i ipalities i o e is full u de thei o t ol. A oss
the ou t a out th ee ua te s of u i ipalities total i o e is de i ed f o o ditio al
and unconditional grants from central government, and from predetermined shares of taxes
collected by central government. The main sources of revenue under municipal control are
annual property taxes on buildings and land, annual fees charged for the provision of
municipal services (which are very similar to property taxes), and the infrastructure impact
tax levied in respect of new buildings. The potential revenue from property taxes is limited by
central government restrictions on tax rates, as well as by inadequacies in the documentation
of chargeable properties; it appears that municipalities have in many cases made only limited
efforts to collect property taxes from households, considering that the potential revenue did
not justify the trouble involved. The yield from the infrastructure impact tax is potentially
important, but it has been reduced during the 2013-15 period by the centrally-imposed ban
on the issue of new building permits. The different streams of municipal revenue are shown
in Table 2.7.
Table 2.7. Municipal revenues (61 Municipalities, ALL million)
Revenues from taxes
Small business tax1
2010
9,171
2,478
2011
9,084
2,641
2012
7,599
2,267
2013
7,501
2,090
2014
8,993
1,698
2015
8,339
2,064
20
1,605
1,564
1,970
1,840
3,101
3,315
Property Taxes
123
122
93
78
85
101
Tax on Hotels
2,622
3,209
1,642
1,796
2,439
1,420
Tax on Infrastructure.
291
378
536
614
581
606
Tax on Transf. Immov. Prop.
398
381
390
373
374
357
Tax on Billboards
1,654
788
701
710
716
476
Other taxes
3,573
3,445
4,319
4,185
4,762
4,717
Revenues from fees and charges
1,251
1,249
1,693
1,656
2,001
2,065
Fees for local public services
Fees for the occupation of public
299
334
446
347
418
328
space
2,023
1,863
2,180
2,182
2,343
2,325
Administr. charges and other n.e.c.
10,562
10,205
9,230 10,955 12,128
11,252
Unconditional grant
1,170
1,309
1,407
1,509
1,065
1,133
Shared taxes 2
13,178
8,456
8,541
8,572
8,960
11,733
Conditional grants for Local Functions
5,486
2,685
2,173
2,667
1,771
2,005
Ministry of Transport & Infrastructure
2,633
2,206
2,403
1,694
2,731
1,800
Ministry of Education and Sport
159
313
Ministry of Urban Development
39
44
78
27
56
Ministry of Environment
42
513
155
112
114
55
Ministry of Culture
41
49
47
52
51
50
Ministry of Economy
Ministry of Health
3
72
81
26
1
32
88
166
184
109
42
0
Ministry of Agriculture
RDF for Local Transp. Infrastructure 3
4,884
2,726
3,454
3,833
4,066
7,421
148
86
69
468
654
Net Annual Local Borrowing
37,801
32,601
31,166 33,190 36,563
37,173
Total receipts
“ou e: Mi ist of Fi a e, T easu “ ste , Autho s al ulatio s.
1
The small business tax has in practice become a shared tax from 2014 when the central government started
collecting it on behalf of local government units.
2
The outturn of Regional Development Fund for Local Transport Infrastructure is obtained by processing data
from the Treasury System with other data from the Ministry of Finance.
2.4 Fier Municipality
Municipal economic situation
12. TAR has resulted in an increase in the municipal population from 55,000 to 120,000
through the incorporation of nine mainly rural communes. Fier is an important regional centre
of a relatively prosperous agricultural area, and has not had to contend with the decline of
major industries or government activities. It now has good road links with Tirana on recently
constructed four-lane highways. It plans to reinforce its role as a regional centre by the
provision of new hospital facilities.
Revenue and Expenditure
13. Fier in common with other municipalities raises its own revenue through taxes on
property and charges for municipal services. It receives unconditional grants and shares of
nationally collected taxes to spend at its discretion, and also funds from central government
to be spent on investment projects and on particular devolved and delegated functions.
Municipal budgets are set by reference to funds which are freely disposable, excluding
conditional grants whose amounts are unknown at the time municipal budgets are fixed.
21
Tables 2.8 – 2.10 provide information about the revenue and expenditure of the Fier
municipality for the period 2013-15. They show that revenue and expenditure per head at
about $75 were a little below the national average of about $101 for 2014. Fier started
utilizing the Water Utility as a tax agent in late 2016, therefore the municipal revenue
department has been responsible for the collection of local taxes and fees over the past three
completed fiscal years. The revenue and expenditure figures from the municipality and
Treasury sources are generally reasonably consistent for the years 2013 and 2014, with
revenue and expenditure broadly in balance, while the functional allocations in 2014 to
General Public Services, Housing and Community Amenities, Education and Social Protection
were all broadly in line with the national averages calculated from Table 2.6. Fier spent
relatively few of its own resources on Economic Affairs in all three years. However the same
function has received substantial support from the RDF in 2014 and 2015 when the proportion
of expenditure allocated to Economic Affairs increased by 5 and 10 times when compared to
what the municipality spent on the function on its own.
14. Budget planning is essentially focused on what can e fi a ed f o the u i ipalit s
own revenues (property taxes and service charges) and unconditional transfers from central
go e
e t i ludi g the u i ipalit s sha e of atio all olle ted ta es . Fi a e fo
investment depends almost exclusively on conditional transfers from central government
(including amounts received from the RDF) whose amounts cannot be predicted from year to
year and which are not included in the budget as approved by the municipal council, although
such capital spending is reported and accounted for alongside the expenditure provided for
in the municipal budget. Funds allocated to meet the specific costs of functions recently
transferred to the municipality are similarly excluded from the budget, but reported in the
out-turn.
Table 2.8. Fier Revenues 2013-15 (ALL thousands)
data in /000 ALL
Own Source Revenues
Revenues from Own Local Taxes
Property taxes on buildings and agricultural land
Infrastructure impact tax
Public space occupation tax
Other taxes
Revenues from Local Fees and Charges
Cleaning fee
Greening fee
Public lightening fee
Parking fee
Other fees
Other revenues from assets, donations etc.
Freely disposable transfers
Unconditional transfer from the state budget
2013
Out-turn
2014
Out-turn
2015
Out-turn
165,050
94,963
26,806
67,037
91
1029
62,615
25,682
1,859
3,600
2,474
29,000
7,472
308,745
184,510
218,667
111,053
66,695
43,272
114
972
100,844
55,244
5,925
7,988
2,772
28,915
6,770
293,485
208,300
312,665
155,099
130,097
19,621
2,940
2441
119,341
63,446
7,284
8,754
3,529
36,328
38,225
541,699
418,022
22
Shared taxes
124,235
85,185
Vehicles Registration Tax & Mineral Rent
32,922
24,927
Property transfer tax
13,798
11,053
Small businesses tax
77,515
49,205
Total Budget, excluding carry-overs
473,795
512,152
Conditional Grants
355,713
583,419
Conditional Transfers from line ministries
355,713
420,358
Ministry of Social Welfare and Youth
344,413
410,037
Ministry of Transport and infrastructure
0
0
Ministry of Interior
7,763
8,022
Ministry of Education
0
2,299
Ministry of Urban Development
0
0
Other Central Institutions
3,538
0
Regional Development Fund (Road Infrastructure)
0
163,061
Total conditional grants excl. MSWY & RDF
11,300
10,321
TOTAL
829,508
1,095,571
Source: Municipality of Fier, T easu “ ste , Mi ist of Fi a e, Autho s al ulatio s.
123,677
33,142
15,969
74,566
854,364
879,779
596,522
527,598
35,000
20,717
3,027
0
10,180
283,257
68,924
1,734,143
Table 2.9. Fier: Economic Classification of Expenditure (ALL /000)
2013
2014
2015
Personnel
262,069
301,025
326,359
Operational
139,882
163,471
241,579
Capital
35,200
34,567
28,822
1
Transfers
19,415
22,199
24,393
Total expenditures
456,566
521,262
621,153
Source: Municipality of Fier, T easu “ ste , Mi ist of Fi a e, Autho s al ulatio s.
1
This line item excludes transfers to poor families financed through earmarked grants from the Ministry of
Social Welfare
Table 2.10. Fier: Functional Classification of Expenditure (ALL /000)
General Public Administrative Services
Public order and safety
Economic Affairs
Housing and community amenities
Recreation, culture and religion
Education
Social Protection
Total
Source: Municipality of Fier, T easu “ ste , Mi ist
2013
2014
129,595
145,665
0
0
31,131
33,462
161,666
186,289
95,468
105,366
38,706
50,480
0
0
456,566
521,262
of Fi a e, Autho s al ulatio s.
2015
294,211
0
25,060
185,777
59,194
56,911
0
621,153
The Development Strategy of the Municipality of Fier
The Municipality of Fier has adopted its Strategy for the Development of the Territory for the next 15 years in
accordance with la o.
/
Fo Pla i g a d De elop e t of the Te ito , as pa t of its General
Local Plan (approved by the Municipal Council in December 2016). its development vision is to be
accomplished by pursuing five strategic objectives: (i) increase of economic competitiveness supporting the
diversification of its economic profile; (ii) support to the agriculture and tourism sector as two of the key
sectors for the development of the local economy ; (iii) protection and regeneration of its natural assets as
base elements for economic and social regeneration; (iv) orientation and control of urban development
through the intelligent management of land and the creation of planned infrastructures for the whole of its
territory ; and (v) smoothing of social disparities through improvement of the education and health systems. It
has to be recognised, however, that the Municipalit s a ilit to p o ote these o je ti es is li ited, si e its
23
role in relation to social policy, health and education is relatively minor, and it will remain dependent on the
central government for the financing of much of the necessary investment.
2.5 Legal and regulatory arrangements framework for PFM
Legal Framework
15. Table 2.10 presents an overview of the main laws and regulations that guide the PFM
systems in Albania. The impact of the legal framework in respect to specific areas is discussed
in more detail in the narrative of the respective Performance Indicators. Internal financial
control is analysed in detail in Chapter 4.2.
Table 2.4. Summary of PFM Legislation
Area
Description
General
Articles 155-160 of the Constitution provide the basis
for the approval by the National Assembly of annual
budgets submitted by the Government.
Budget
preparation
and Law on the Management of the Budgetary System in
execution
the Republic of Albania (2008) and the Standard
Budget Instructions (2012) issued in accordance with
the law. The Instructions cover the Medium Term
Budget Preparation and define the roles, functions
and responsibilities in management of government
revenue and expenditure, including the accounting,
control and reporting systems.
Annual budget preparation and execution
instructions are also issued every year.
Law on Financial Management and Control (2010),
defines management responsibilities for execution
and control of budgets.
Debt
Law on State Debt, and State Guarantees in the
Republic of Albania (2006) defines the authorities and
procedures for debt administration
Law on local government borrowing (2008) defines
local borrowing limitations as well as authorities and
procedures for local debt.
Tax administration
General laws governing tax administration: Law on
Tax Procedures (2008);
General laws for direct and indirect taxes:
Law On National Taxes (2008);
Law on Income Tax (1998);
Law on Value Added Tax (2014);
Law on excise duties (2002);
Law on the System of Local Taxes (2006).
Public sector entities
La O Co essio s a d Pu li P i ate Pa t e ships
(2013);
24
Expenditure
control
internal audit
External Audit
and
Legislative oversight of the
preparation and execution of
the Budget
Decentralisation
Transparency
La O o
e ial o pa ies
.
Law on Public Procurement (2006);
Law on Internal Auditing in the Public Sector (2015).
Provision for the independent exercise of the
functions of the Supreme Audit Institution (High State
Control) is made in Articles 162-165 of the
Constitution;
Law on the Organisation and Functioning of the High
State Control (2014).
The Constitution (1999), Articles 155-160.
Law on Organisation and Functioning of the Council of
Ministers.
Articles 108-113 of the Constitution provide the basis
for elected local governments;
Law on Local Self Government (2015)
National Cross Cutting Strategy for Decentralization
and Local Governance (2015);
On the right to information (2014);
On Public Notice and Consultation.
16. The La
/
O the ad i ist ati e a d te ito ial di isio of lo al go e
e t u its
i the ‘epu li of Al a ia edu ed the u e of lo al go e
e t u its f o
communes and municipalities and 12 regions to 61 municipalities and 12 regions. Such an
administrative consolidation represents the merger of in average 6 -7 former LGUs into one
new municipality (with a range from 4 to 14 LGUs). There is no level of general government
below municipalities. A regional level of general government exists. It is made up of
representatives of the municipalities and funded from municipal contributions. The regions
have only a coordinating function among municipalities in each regional and the budget is
minimal.
17. The main purpose of the TAR, consistently ith the Go e
e t s st ateg o
Decentralization and Local Governance, is to increase the efficiency of local administration
and improve the quality and standards of service delivery. Larger LGUs with greater human
and financial resources should be able to discharge effectively wider responsibilities for the
de elop e t of thei te ito ies i a o da e ith the e o ga i la o Lo al “elfGo e
e t e a ted i De e e
, hi h ai s to o solidate the de e t alizatio
process and delegate further functional and fiscal autonomy to the local level. Some new
functions in the area of pre-school education, fire protection, irrigation and agriculture were
accordingly transferred to the local level from the beginning of 2016. Pending the
establishment of new permanent arrangements for the distribution of central funding to the
municipal level, municipalities were given additional block grants to meet the costs of the
staff employed and other operational expenses on the functions transferred to them.
25
18. The new consolidated municipalities were constituted following the June 2015 local
elections and took office during July and August. Consolidation of the five municipalities with
o
u es fi a es took pla e th ough the a alga atio of the o
u es t easu
accounts into one single treasury account for each new municipality and the resulting
elimination of separate commune treasury accounts. The accounts of the pre-TAR
municipalities and communes were closed in July 2015 and the balances transferred to the
new municipalities. Subsequently, budgets for the remaining 5 months of the fiscal year were
created for each new municipality by mechanically adding the balances on the budgets of
each of the merged LGUs. These tasks were, reportedly, executed through a smooth and swift
process confronting no major challenges, in part due to the assistance provided by the STARproject which prepared financial statements as at July 2015 for all LGUs and as well as the
corresponding consolidated ones for the new municipal territories.
19. In order to complete the legal framework for local governments, the MOF is currently
drafting a comprehensive Law on Local Government Finances. This is the first time such a law
has been prepared in Albania. It aims at incorporating all principles and procedures with
ega d to lo al go e
e ts sou es of e e ues o
e e ues a d t a sfe s , pu li
finance management and related intergovernmental dialogue and consultation. A first draft
has been prepared and it is expected that the text will be finalized before the end of 2016 for
submission to the National Assembly.
2.6 Institutional arrangements for PFM in Fier
20. It is the responsibility of the Mayor to prepare the three-year budget projections and the
annual budgets for approval by the Council in accordance with the organic Budget Law which
applies at municipal as well as at national level and with instructions from MoF. The Finance
Directorate acts at municipal level in the same way as MoF at central government level in
preparing budgets and fiscal plans on the basis of submissions by the spending units
responsible for each of the Mu i ipalit s fu tio s. The assessment and collection of
municipal taxes and fees is the responsibility of the Revenue Directorate, although the actual
collection is mainly in the hands of the Municipality s ate utilit alo gside the ills
businesses and householders have to pay for water. Internal control arrangements are set out
in detail in Chapter 4.2. The Municipality of Fier has at maximum, 1300 employees. The it s
administrative organization is shown in the following Chart, together with the number of
employees engaged in each function.
26
Table 2.51. Organizational chart of the Municipality of Fier, 2016
Internal Audit Directorate 3
MAYOR 1
MUNICIAPAL COUNCIL
Cabinet of the mayor 7
Secretary of Municipal Council 1
VICE – MAYOR 1
VICE – MAYOR 1
ADMINSTRATORS 15
General
Economic
Directorate
12
General
Directorate
Tax & Tariff
49
General
Directorate
Law Issues 23
General
Directorate
Public Works
22
General Directorate
Planning &Territorial
Development Directory
24
General Directorate
Health, Agriculture,
Forestry and Vet. 32
General Directorate
HR and Services 41
General Directory
Art and Culture 44
Directorate
Finance and
Budget 7
Directorate
Control &
Inspection 24
Directorate
Legal Issues 4
Directorate
Public
Services 15
Directorate
Planning & Development
Control 8
Sector for Consulting
and Forestry 21
Directorate
Personnel and
Administration 15
Public Library 16
Directorate
Registering –
Evaluation 16
Directorate
doc. prep.
agricultural
land
registering 10
Directorate
Asset Mng. 4
Directorate
Economic
Center 423
Sector for
Collection 7
NRC 4
Directorate
Social
Services 21
Handicap
People Center
16
Civil Emergencies 3
Directorate
Public
Procurement
4
Directorate
Transport &
Licenses 3
Public Works
Company 114
Office Social
Housing Mng
2
Culture House 5
Directorate Planning
Legalizations 15
Directorate
Veterinary 11
Arts Gallery 2
Museum 7
Directorate
Public Relations 4
Directorate Foreign &
National Investment
Projects 5
Theatre 28
Directorate
for Agriculture 10
Directorate
Education, Culture,
Youth & Religion 7
Municipal Police 15
Sector
Sports Club & Multi
Sports 16
Cleaning &
Greening
Company 242
Directory Irrigation &
Drainage 23
Sector
Archive & Protocol 11
Fire Protection Services 31
IVMT 6
Object Guards 61
Source: Municipality of Fier
27
Table 2.62. Overview of Amalgamation of the Municipalities selected for PEFA Assessment
Municipality
Name
Tirana
Berat
Kuçova
Fier
Tropoja
No. communes
absorbed
13
4
3
9
7
No. population1
PreTAR
418,495
36,946
12,654
55,845
5,340
TAR
increase
557,422
60,031
31,262
120,655
20,517
33%
62%
147%
116%
284%
Total Revenues2 ALL
million
PreTAR
increase
TAR
8,245 10,305
25%
778
1,139
46%
286
548
92%
1,005
2,015
100%
146
538
268%
Own source revenues4 ALL
mill
PreTAR
increase
TAR
4,733
5,880
24%
202
262
30%
79
116
47%
305
530
74%
22
30
36%
Share of own source
revenues to total
Pre-TAR
TAR
57%
26%
28%
30%
15%
57%
23%
21%
26%
6%
Pre-TAR: the municipality as it was defined prior to amalgamation of municipalities and communes under TAR i.e. up till June 2015.
TAR: the new municipality after amalgamation i.e. from August 2015 onwards, but based on pre-TAR data
1
2
Source: Census 2011, Institute of Statistics.
Source: End-of year budget execution data for 2014 fiscal year, Ministry of Finance & PLGP/USAID.
28
Chapter 3 Evaluation of PFM systems, processes and institutions
3.1 Subnational PEFA indicator HLG-1: Transfers from a higher level of
government
This indicator assesses the extent to which transfers to the subnational government from a
higher-level government are consistent with the original approved high-level budgets, and
are provided according to acceptable time frames. The indicator contains the following three
dimensions and uses the M1 (WL - Weakest link) method for aggregating dimension scores:
Dimension HLG-1.1. Outturn of transfers from higher level government (last three
completed fiscal years);
Dimension HLG-1.2. Earmarked grants outturn (last three completed fiscal years);
Dimension HLG-1.3. Timeliness of transfers from higher-level government (last three
completed fiscal years);
Background
All 61 Municipalities in Albania receive five types of transfers from the budget of the central
government:
Unconditional grants – over which Municipalities have full discretion to spend as they
see fit;
Shared taxes – in this category are comprised the mineral rent and the annual tax on
used vehicles, where Municipalities are entitled 18% of the vehicles tax collected by
the central tax administration and 5% of the mineral rent generated in their
jurisdiction. There are also two other taxes that despite being described in law
139/2015 on Lo al “elf-Go er e t as local taxes, are actually shared taxes where
the tax base and rates are wholly determined by central government. These are the
small businesses tax 3 (or the simplified tax on small businesses) and the property
transfer tax. Revenue from these taxes is accordingly treated here in the same way as
sha ed ta es, hose p o eeds a e used at the u i ipalit s dis etio i the sa e
way as unconditional grants.
Conditional transfers – for financing delegated functions and can only be used for a
specific program/purpose;
Specific transfers – which are a new type of conditional transfers municipalities
receive from central government to be used exclusively for financing the newly
transferred functions (Law 139/2015 on Local Self-Government);
Competitive grants for selected investment projects from the Regional Development
Fund (RDF) allocated during the course of the year.
3
The simplified profit tax (formerly small business tax) became a shared tax in January 2014, hence it is not
included in the calculations for 2013.
29
With regard to the conditional transfers Municipalities receive from central government
institution, evidence showed that Municipalities do not include these funds in their original
annual budgets. The only items included in the budget document are those financial resources
flowing from the unconditional transfers, shared taxes and own revenues. Meanwhile,
records regarding conditional transfers are kept separate from those of the approved budgets
although the amounts and conditions are formally notified to the Municipal Council. In budget
execution reports and balance sheets of the Municipality of Fier, expenditures are presented
in consolidated format from all sources of financing, thus including conditional transfers from
the Regional Development Fund or other central government agencies. The city has also
presented tables and documentation evidencing expenditure financed through its own
budget from local taxes and fees and from freely disposable transfers.
Planned values for conditional transfers classified under current expenditures linked with
previously delegated functions such as business registry and civil registry, poverty and
disability cash benefits, and maintenance expenditures for pre-university school dormitories,
are shared with the municipality by the relevant line ministries at the beginning of each year.
Any unspent balances are to be returned to the respective ministries.
HLG-1.1 Outturn of transfers from higher level government
Annual deviation of actual total HLG transfers from the original total estimated amount
provided by HLG to the sub-national entity for i lusio i the latter’s udget.
In Albania during the period 2013-15 municipalities received unconditional transfers from
central government distributed according to a formula mainly based on population and area,
a relatively small share of nationally collected taxes (as shared taxes), and conditional
transfers to finance investments and meet the cost of social assistance payments, maintain
dormitories, and social service centers, kindergartens etc. Some of these transfers were
provided by the line Ministries concerned, but in some cases substantial amounts were
p o ided
the e t al go e
e t s ‘egio al De elop e t Fu d ‘DF o a o petiti e
basis. Amounts to be provided as unconditional transfers were generally notified [by the end
of October ea h ea ] i ti e to e take i to a ou t i p epa i g the u i ipalit s udget,
while some guidance was given by the Ministry of Finance on the amounts likely to be
received from shared taxes. But the amounts of conditional transfers and RDF assistance, if
any, were notified only after the budget year had begun, and therefore not taken into
consideration in the preparation of the budget. Furthermore, municipal officials state that
they receive resources from the higher levels of government for delegated functions, without
being informed at the same time about the amounts and purposes. This creates confusion
about available conditional cash resources. As municipalities do not have direct IT access in
the treasury system, such transfers are reconciled with the treasury officials on a weekly and
monthly basis. It would be useful if line ministries making such transfers gave the
30
municipalities concerned full information at the same time about the amounts and purposes
of the transfers. In Fier such resources constitute less than 15% of conditional transfers.
According to the municipality, the amounts of unconditional transfers were paid in full, and
the conditional transfers to meet the costs of services including social assistance payments
were also paid. The municipality has also benefitted from competitive grants under the
Regional Development Fund which once notified from the central government were paid in
full. In 2014 Fier has been awarded from the RDF about 181.4 million ALL for investments, of
which 139.7 million ALL for transport infrastructure. In 2015 it has been awarded 452.5 million
ALL, out of which 398.3 for transport infrastructure. The out-turns have been much lower
given the lengthy procurement process and the fact that public works have advanced a pace
slower than planned. There were shortfalls in receipts of shared taxes in of 1.6 million ALL in
2013 and 45.6 million in 2014 (mainly due to receipts of Small Business Tax and the Property
Transfer Tax). In 2015 the amounts transferred exceeded those planned by 49 million ALL.
The amounts are shown in Table 1; for 2013 and 2014 the figures cover only the former Fier
municipality, while for 2015 the additional nine former communes (now administrative units)
are included for the whole year.
Table 3.1. Planned and actual receipts from state budget transfers
2013
data in /000 ALL
Plan
Outturn
316,839
184,510
41,016
13,798
77,515
355,713
355,713
344,413
2014
Plan
Freely disposable transfers
318,510
341,300
Unconditional transfer
184,510
208,300
Vehicle registr. tax & Mineral Rent
33,000
33,000
Property transfer tax
17,000
17,000
Small businesses tax
84,000
83,000
Conditional Transfers
358,303
612,119
Cond. Transf. from line ministries
358,303
430,710
Ministry of Social Welfare
344,490
420,232
Ministry of Transp. and infrastr.
Ministry of Interior
7,782
7,763
8,022
Ministry of Education
2,456
Ministry of Urban Development
Other Central Institutions
6,031
3,538
Total Regional Development Fund
181,409
of which for Road Infrastructure
139,746
TOTAL
676,813 672,552 953,419
Freely dispos. transf. out-turns/plan
99.5%
Cond. transfers out-turns/planned
99.3%
Total state transfers out-turns/plan
99.4%
Composition variance
0.7%
Source: Municipality of Fier, Ministry of Finance & Authors calculations.
2015
OutOutPlan
turn
turn
295,646 537,504 586,538
208,300 418,022 418,022
37,941
37,423
71,493
11,053
14,856
15,965
38,353
67,203
81,058
583,419 1,072,488 879,779
420,358 620,014 596,522
410,037 539,467 527,598
44,624
35,000
8,022
21,803
20,717
2,299
3,755
3,027
10,365
10,180
163,061 452,474 283,257
121,435 398,257 229,043
879,065 1,609,992 1,466,317
86.6%
109.1%
95.3%
82.0%
92.2%
91.1%
5.4%
18.4%
Since total receipts were at least 90 percent of the original budget estimate in two of the last
three years, the score is B.
31
HLG-1.2 Earmarked grants outturn
As table 3.1 shows, receipts of conditional transfers were within 10 per cent of the planned
amounts in two of the last three years. While conditional grants from line ministries were paid
in full, grants from the RDF have not. The RDF grants have been awarded to Fier once the
budget year had started. Further, the delays the procurement procedures and in the physical
progress of work have impacted the amounts that have actually executed, ending up with an
outturn of 90% and 63% in 2014 and 2015. As a result the composition variance is higher in
2014 and 2015; as the variance between the originally notified amount and actual earmarked
grants was 10 percent or less in two of the last three years, the score is C. The level of outturns
of RDF financing depends also on the timing of the transfers from the central government. If
municipalities were informed beforehand about the amounts awarded it would create
preconditions for a better planning of the implementation phase, including procurement
procedures and physical progress of works.
HLG-1.3 Timeliness of transfers from higher level government
According to the finance and budget department officials, a quarterly disbursement plan is
prepared by the Ministry of Finance for both conditional and unconditional grants (with some
front-loading in the first quarter of the year), which the central government (CG)
subsequently adheres to. Revenues from the mineral rent, the vehicles registration tax, the
small businesses tax and the property transfer tax are transferred from central authorities to
the Municipality in monthly instalments and without delays. The flows of conditional grants
from the Ministry of Social Welfare and the Ministry of Interior did not present any significant
problems. There is no regular calendar for financial resources obtained from other line
Ministries or those obtained on a competitive base for investment projects from the Regional
Development Fund. Overall the weighted impact of any delays would be relatively minor, not
calling into question the requirement that 75 per cent of funds must be received without
delay in relation to the original schedule. Score: A
PI
HLG-1
Dimension
Transfers from a higher
level of government (M1)
Score
C+
HLG1.1
Outturn of transfers from
higher level government
B
HLG1.2
Conditional transfers
outturn
C
HLG1.3
Timeliness of transfers
from higher-level
government
A
Justification for score
Scoring Method M1
Total receipts were at least 90 percent of the
original budget estimate in two of the last
three years
The difference between the original budget
estimate and actual earmarked grants was 10
percent or less in two of the last three years
A quarterly disbursement plan for unconditional
grants is prepared by MoF, and implemented as
scheduled. Delays in the payment of shared taxes
and conditional grants were of minor significance.
32
3.2 Pillar 1. Budget Reliability
PI-1: Aggregate expenditure out-turn
This indicator measures the extent to which aggregate budget expenditure outturn reflects
the amount originally approved, as defined in government budget documentation and fiscal
reports. There is one dimension for this indicator assessed on the basis of the last three
completed fiscal years (years 2013 and 2014 refer to the former (pre - TAR) Municipality, and
2015 data concern the new enlarged Municipality (post – TAR).
As explained in relation to HLG-1, and based on the current framework in regard, conditional
grant amounts are not notified to the municipality in time to be included in the original
budget. In its budget the municipality takes into account only the prospective receipts from
unconditional transfers and those items falling under the shared taxes (mineral rent, vehicles
registration tax, small businesses tax and the property transfer tax), and the budgeted yield
of its own revenues. Amounts of conditional transfers from line Ministries and the RDF are
therefore considered to be outside the budget (and thus to be taken into account in PI-6
below), although they are included in the subsequent budget execution reports. Deduction of
conditional transfers and RDF funding from the out-turn totals should therefore give some
indication of the overall performance of budgeted expenditure against plans.
Table 3.2. Total expenditures and total expenditures net of conditional transfers
2013
2014
2015
data expressed in /000 ALL
Planned
Total expenditures
715,662
Deviation of out-turn from plan
Absolute deviation as % of planned
Out-turn
456,566
Planned
Out-turn
635,889
521,262
Planned
963,782
Out-turn
621,153
-259,096
-114,627
-342,629
36.2%
18.0%
35.6%
Source: Municipality of Fier and Ministry of Finance & Authors calculations.
Table 3.2 gives an approximation of what the municipality plans in its budget, and its actual
expenditure from freely disposable revenue sources. There is an extreme gap between what
the municipality plans and the actual outturn at the end of the year, because of both policy
choices in the allocation of resources and shortfalls in revenue collection. Since actual
expenditure was between 64% and 82% of budget in all three years, score is D.
PI
PI-1
Dimension
Aggregate expenditure
outturn
Score
D
Justification for score
Actual expenditure was between 64% and 82%
of budget in all three years.
Ongoing reform
The Albanian government with the support donor community is currently working on the
development of a new law on local government finances. The new law on local finances aims
33
to provide the basic rules which should regulate intergovernmental transfers and fiscal
relation in Albania. The draft law is intended to regulate the financing of the Municipalities
and Qarks defining their revenues from local taxes and fees, shared taxes and central
government transfers as well as their other revenues, including borrowing. It specifies the
basic rules for determining and allocating intergovernmental transfers as well as the policies
and procedures for municipal budgeting, intergovernmental dialogue and other issues
important to the financing of local government functions. This draft-law was submitted for
the consideration to Council of Ministers before the end of February 2017.
PI-2: Expenditure composition out-turn
This indicator measures the extent to which reallocations between the main budget
categories during execution have contributed to variance in expenditure composition. It
contains three dimensions and uses the M1 (WL) method for aggregating dimension scores.
It is assessed on the basis of the last three completed fiscal years (years 2013 and 2014 refer
to the former (pre - TAR) Municipality, and 2015 data concern the new Municipality (post –
TAR). This Indicator has three dimensions:
Dimension 2.1. Expenditure composition outturn by function - which looks at changes
in the composition of expenditure by function between budget and out-turn;
Dimension 2.2. Expenditure composition outturn by economic type – looking at
changes in composition by economic classification;
Dimension 2.3. Expenditure from contingency reserves – looking at the extent to
which expenditure is charged to Contingency.
Expenditure out-turns by function and economic classification are shown in Chapter 2 of this
report, but no comparable breakdown of expenditure at budget/planning stage is available
to provide a basis for scoring the first dimension.
PI-2.1. Expenditure composition out-turn by function
The following table shows planned and actual expenditure by functional classification for the
total expenditure, excluding that financed from conditional grants from line ministries and
the RDF. As can be noted, the actual amounts for all functions deviate substantially from the
original estimates for all functions in all three years. It is important to note that arriving at the
functional classification of expenditures required an elaboration of the budget
documentation presented by the municipal officials. From such documentation it appears
that the administrative classification is used as the basis for the functional classification. This
explains why no expenditure is planned and recorded for the functions of Public Order and
Safety and Social Protection. This situation is mostly due to the lack of comprehensive
national guidelines and templates as well as human capacities to work on program based
budgeting. Since, the variance in expenditure composition by functional classification was less
than 15% in only one of the three years, the score for this indicator is D.
34
Table 3.3. Expenditures by functional classification
2013
Out
Planned
turn
2014
Planned
2015
Out
turn
General Public Administrative Services
170,498 129,595
171,278 145,665
Public order and safety
0
0
0
0
Economic Affairs
159,110
31,131
66,164
33,462
Housing and community amenities
198,495 161,666
205,450 186,289
Recreation, culture and religion
123,686
95,468
114,195 105,366
Education
63,873
38,706
78,802
50,480
Social Protection
0
0
0
0
Total
715,662 456,566
635,889 521,262
Composition variance
32.2%
13.7%
Source: Municipality of Fier & Authors calculations based on PEFA instructions.
Planned
406,918
0
152,204
235,020
99,920
69,720
0
963,782
Out
turn
294,211
0
25,060
185,777
59,194
56,911
0
621,153
25.5%
PI-2.2. Expenditure composition by economic classification
The following table shows planned and actual expenditure by economic classification for the
total expenditure, excluding that financed from conditional grants from line ministries and
the RDF. There is a substantial change in the composition of expenditure in all three years for
all line items. The largest shortfall is on investments planned to be executed from own source
revenues. As the municipality appears to plan most of its own expenditure other than
investments be financed from the unconditional grant, revenue collection shortfalls have
greatly impacted the realization of investments. On average, in the last three years Fier has
realized less than one third of planned investments. On the other hand, in 2014 and 2015 Fier
received substantial funds for investments from the central government through the RDF. If
we consider only outturn data, investment actually financed from the RDF has been 5 and 10
times higher than what Fier has financed through its own budget. Since the calculated
variances in expenditure composition were 33.2%, 32.8%, 23.8% for the three years 2013-15
respectively the score is D.
Table 3.4. Expenditures by economic classification
data in /000 ALL
Personnel
Operational
Capital Investments
Transfers
Total expenditures
Planned - 2013
291,966
262,069
226,507
139,882
163,889
35,200
33,300
19,415
715,662
456,566
Planned - 2014
Personnel
Operational
Capital Investments
Transfers
Out turn -2013
Overall
difference
Composition
variance
-36.2%
33.2%
-18.0%
32.8%
Out turn -2014
316,334
301,025
218,522
163,471
67,755
34,567
33,278
22,199
35
Total expenditures
635,889
Planned - 2015
Personnel
Operational
Capital Investments
Transfers
Total expenditures
521,262
Out turn -2015
405,831
326,359
369,297
241,579
154,804
28,822
33,850
24,393
-35.6%
23.8%
963,782
621,153
Source: Municipality of Fier & Authors calculations based on PEFA instructions.
PI-2.3. Expenditure from contingency reserves
In the budget documents of the Municipality of Fier there are two line items, similar in nature
and not allocated: the contingency fund and the reserve fund. While the reserve fund funds
are used to cover unexpected temporary needs for financial resources during the fiscal year,
contingency funds are used to cover expenditure needs above the planned allocations or to
cover any underperformance in revenues during the execution phase of the budget (Law
9936/2008, O the a age e t of the udgetar s ste i the Repu li of Al a ia , Art. 3).
Over the last three fiscal years, the budgeted amounts for contingency and reserve funds
were about 9 million ALL in 2013 and 2014, and about 10 million ALL in 2015. The amounts
charged to contingency were about 5.1 million ALL, 4.8 million ALL, and 5.2 million ALL
respectively.
Table 3.5. Contingency and reserve funds
2013
data in /000 ALL
Planned contingency and reserve funds
Out turns for contingency funds
Total expenditures
Contingency fund out turns/total expenditures
9,000
5,113
715,662
0.71%
2014
2015
9,000
4,803
635,889
0.76%
10,000
5,200
963,782
0.54%
Source: Municipality of Fier & Ministry of Finance & Authors calculations based on PEFA instructions.
The percentages of total expenditures these amounts were 0.71%, 0.76%, and 0.54% in 2013,
2014 and 2015 respectively. As long as the average percentage is lower than 3%, the score is
A.
PI
PI-2
PI-2.1
PI-2.2
PI-2.3
Dimension
Expenditure composition outturn
Expenditure composition out-turn
by function
Expenditure composition out-turn
by economic classification
Expenditure from contingency
reserves
Score
D+
D
D
A
Justification for score
Scoring Method M1.
The variance was less than 15% in only
one of the three years.
The variances were more than 15% in
all three years
The average amount charged to
contingency was 0.67% of total
expenditure in 2013-15
36
PI-3: Revenue out-turn
This indicator measures the change in revenue between the original approved budget and
end-of-year outturn. It contains two dimensions and uses the M2 (AV) method for aggregating
dimension scores. It is assessed on the basis of the last three completed fiscal years (years
2013 and 2014 refer to the former (pre - TAR) Municipality, and 2015 data concern the new
Municipality (post – TAR). There are two dimensions to this Indicator:
Dimension 3.1. Aggregate revenue outturn – considering the difference between
budgeted and out-turns for own source revenues;
Dimension 3.2. Revenue composition outturn - measuring changes in the composition
of those revenues between budget and out-turn
As suggested by the PEFA Secretariat, the data considered for this indicator include revenues
actually administered and collected by the Municipality or on behalf of the Municipality by
directly contracted collection agencies. Taxes considered as shared taxes (the mineral rent,
vehicle registration tax, small businesses tax and the property transfer tax) are also included
in the calculations for this indicator. They have also been considered as part of transfers from
central government and assessed together with other transfers under the HLG-1. As noted in
Chapter 2 above, the collection of local fees from businesses and households, from late 2016
is undertaken on behalf of the municipality in the area of the former municipality and the
communes by the water utility. Thus all revenues for the last three completed fiscal years
have been the direct responsibility of the municipal revenue department.
PI-3.1. Aggregate revenue out-turn
As explained above, for aggregate revenue out-turn we have considered only those revenues
which the municipality actually plans in its budget. Total budgeted and realised figures for
own revenues are summarised in the following table. [
Table 3.6. Revenue out-turn
data in /000 ALL
Taxes, incl. shared taxes
2013
Budget
2014
Out-turn
Budget
2015
Out-turn
Budget
Out-turn
390,129
219,198
256,006
196,238
366,009
278,776
Fees
80,700
62,615
127,837
100,844
141,170
119,341
Other (assets)
25,000
7,472
6,000
6,770
5,000
38,225
495,829
289,285
389,843
303,852
512,179
436,342
Total
Actual as % of budgeted
58.3%
77.9%
85.2%
Source: Municipality of Fier & Ministry of Finance & Authors calculations based on PEFA instructions.
The data show that own source revenues fell far short of what budgeted in all three years
under analysis. The most significant shortfalls were in the revenues from local taxes
(especially the infrastructure impact tax imposed on new buildings, mainly due to the central
37
government decision to halt the issuance of construction permits until General Local Plans
(GLPs) had been approved. Substantial shortfalls are registered also from the small business
tax, which in 2014 became a shared tax the base and rate of which are outside municipal
control (from 2014 this tax started being collected by the central government agencies and
transferred back in full to the municipalities). Nevertheless, from a systemic point of view
such large shortfalls are related also to overoptimistic revenue forecasts and to the inclusion
in revenue projections of substantial amounts of tax arrears (accumulating from a number of
years) which fail to materialize in the fiscal year. Since out-turns of revenues were less than
92% of budget in all three years, the score for this dimension is D.
PI-3.2. Revenue composition out-turn
There were substantial changes in the composition of revenues between budgets and outturns in each of the three years under analysis. Details are shown in the following table, which
shows the nominal values for nine line items of revenues, the overall difference and
composition variance. Each budget line is adjusted by the overall difference between budget
and out-turn, and the absolute differences between these adjusted lines and actual revenues
summed to give the overall variance as a percentage of actual total revenues. The shortfalls
in revenue from the infrastructure impact tax, the small business tax and the cleaning fee
were the most important elements in changing the relative composition of revenues during
the period 2013-15.
PI
PI-3
PI-3.1
PI-3.2
Indicator/Dimension Score
Justification for score
Scoring Method M2
Revenue out-turn
D
Own source revenue was less than 92% of budget
in all three years 2013-15. Despite the facts that
data for 2013 - 2014 represent the pre-TAR
Aggregate revenue
municipality and that 2015 data is not completely
D
out-turn
comparable due to TAR, the differences are so
significant that a score can be assigned with
confidence.
Revenue
Variance in revenue composition exceeded 15% in
D
composition out-turn
all three years 2013-15.
Ongoing reform: The new law on local finances that is actually under discussion, foresees the
introduction of some fiscal rules, including indications on the need for more evidence based
projections, and clear rules not allowing the introduction of tax arrears older than 18 months to be
included in the revenue projections for next year.
38
Table 3.3. Revenue composition out-turn
2013
2014
Budget
Actual
Adj. B
Diff.
30,200
26,806
17,620
Small businesses tax*
Infrastructure impact tax
Public space occupation tax
Other taxes
Vehicle registr. tax & Min. Rent*
Property rights transferring tax*
Cleaning fee
Greening fee
Public lightening fee
Parking fee
Other fees
Asset Revenue
Other revenues
84,000
223,329
1,000
1,600
33,000
17,000
32,000
3,200
6,000
3,200
36,300
5,000
20,000
77,515
67,037
91
1,029
32,922
13,798
25,682
1,859
3,600
2,474
29,000
4,498
2,974
Total revenues
Absolute sum of differences
Total revenue deviation
Composition variance
495,829
289,285
Property tax on build. & agricult. land
2015
Budget
Actual
Adj. B
Diff.
Budget
Actual
Adj. B
9,186
55,416
66,695
43,192
23,503
143,134
130,097
121,940
8,157
49,009
130,298
583
933
19,253
9,918
18,670
1,867
3,501
1,867
21,179
2,917
11,669
28,506
-63,261
-492
96
13,669
3,880
7,012
-8
99
607
7,821
1,581
-8,695
83,000
65,000
1,000
1,590
33,000
17,000
63,517
15,703
16,406
3,200
29,011
5,000
1,000
49,205
43,272
114
972
24,927
11,053
55,244
5,925
7,988
2,772
28,915
2,179
4,591
64,692
50,662
779
1,239
25,721
13,250
49,507
12,239
12,787
2,494
22,612
3,897
779
-15,487
-7,390
-665
-267
-794
-2,197
5,737
-6,314
-4,799
278
6,303
-1,718
3,812
70,343
85,390
8,709
6,154
37,423
14,856
71,452
5,280
6,720
3,500
54,218
5,000
0
74,566
19,621
2,940
2,441
33,142
15,969
63,446
7,284
8,754
3,529
36,328
4,762
33,463
59,927
72,746
7,419
5,243
31,882
12,656
60,872
4,498
5,725
2,982
46,190
4,260
0
14,639
-53,125
-4,479
-2,802
1,260
3,312
2,574
2,786
3,029
547
-9,862
502
33,463
289,285
0
389,843
303,852
303,852
0
512,179
436,342
436,342
0
144,913
-41.7%
25.1%
79,265
-22.1%
13.0%
Diff.
140,538
-14.8%
16.1%
Source: Municipality of Fier & Ministry of Finance & Authors calculations based on PEFA instructions.
39
3.3 Pillar 2. Transparency of Public Finances
PI-4 Budget classification
This indicator assesses the extent to which the government budget and accounts classification
is consistent with international standards. It is assessed on the completed fiscal year 2015.
A o di g to the la
o.
/
O the Ma age e t of the Budgeta “ ste i the
‘epu li of Al a ia the fo ulatio , e e utio a d epo ti g of the budget should be broken
down according the administrative unit, economic classification and functional classification.
While standardized systems and document templates have been developed for the
formulation, execution and reporting of the budget of central go e
e t s age ies, su h
systems and templates have never been extended to the local level. With the exception of
standardized templates to be shared with the Treasury District Offices, municipalities have
developed their own templates for budget formulation, execution and reporting. This is one
of the main reasons why budget documentation differs from municipality to municipality and
why comparisons of budgets and outturn following different classifications require a
substantial effort even within single municipalities. On the other hand, Treasury District
Offices require municipalities to present and register their budgets in the treasury system
following the administrative, economic and programmatic classification at both the 7 (for
expenditure) and 3 (for revenue) digit level of economic accounts. In theory this should allow
for consistent comparisons between budgets and out-turns.
As the documents of the municipality show, budgets are set by administrative classification,
with the amounts for each administrative unit broken down by economic classification at the
3-digit level. The Administrative classification is then processed and presented in terms of the
COFOG ten main functions. The budget (including expenditure financed through conditional
grants not included in the original budget) is executed through the Treasury system, which
contains sufficient details of each transaction as to enable all expenditure to be analysed by
reference to administrative, economic and functional classifications. But the templates used
by the municipality to plan and report the budget require some additional efforts to be
entirely comparable with the more detailed information extracted by Treasury system.
However, consistent comparisons between budget and out-turn can be made based on
administrative and economic classifications at the GFS 3 digit level. Score: C
PI
PI-4
Indicator/Dimension
Score
Budget classification
C
Justification for score
Scoring Method M1.
The 2015 budget classifications and Chart of
Accounts are based on economic and
administrative classification at the GFS standard 3digit level, although consistent comparisons
between budget and out-turn require additional
efforts.
40
PI-5 Budget documentation
This Indicator assesses the comprehensiveness of the information provided in the annual
budget documentation, as measured against a specified list of basic and additional elements.
These are shown in the following table. It is assessed on the content of the last municipal
budget submitted do the legislature, thus the budget document for 2016 4 . Budget
documentation is published on the municipal website (see PI-9 below).
Table 3.4. Budget documentation
Full description of PEFA 2016
requirements
Requirements
fulfilled?
(Yes/No)
Basic elements
1. Forecast of the fiscal deficit or surplus or
accrual operating result.
Yes
2. Previous year’s udget outturn,
presented in the same format as the
budget proposal.
Yes
3. Current fis al ear’s udget presented in
the same format as the budget proposal.
This can be either the revised budget or the
estimated outturn.
4. Aggregated budget data for both
revenue and expenditure according to the
main heads of the classifications used,
including data for the current and previous
year with a detailed breakdown of revenue
and expenditure estimates.
Additional elements
5. Deficit financing, describing its
anticipated composition.
4
Information included in
2016 budget
By law, the local
government units are
required to present
balanced budgets (on cash
basis).
The Decision of the
Municipal Council
approving the Budget is
presented without
comparisons with other
years. However tables
accompanying the
Cou il s De isio p o ide
comparisons with the outturn of the previous years,
the expected budget for
the current year and the
three coming years.
Yes
Same as for basic element
2.
Yes
Data and projections are
provided with respect to
the p e ious ea s outturn, the expected budget
and the coming three
fiscal years.
Yes
No deficit is foreseen.
The budget document for 2016 was approved with Municipal Council Decision No. 60 dated 17/12/2015.
41
6. Macroeconomic assumptions, including
at least estimates of GDP growth, inflation,
interest rates, and the exchange rate.
7. Debt stock, including details at least for
the beginning of the current fiscal year
presented in accordance with GFS or other
comparable standard.
8. Financial assets, including details at least
for the beginning of the current fiscal year
presented in accordance with GFS or other
comparable standard.
9. Summary information of fiscal risks,
including contingent liabilities such as
guarantees, and contingent obligations
embedded
in
structure
financing
instruments such
as public-private
partnership (PPP) contracts, and so on.
10. Explanation of budget implications of
new policy initiatives and major new public
investments, with estimates of the
budgetary impact of all major revenue
policy changes and/or major changes to
expenditure programs.
11. Documentation on the medium-term
fiscal forecasts. In this element, the
content of the documentation on the
medium term forecast should include as a
minimum medium term projections of
expenditure, revenue, and fiscal balance.
12. Quantification of tax expenditures. In
this element, tax expenditure refer to
revenue foregone due to preferential tax
treatments such as exemptions,
deductions, credits, tax breaks, etc.
Yes
Guidance from Min. of
Finance is reproduced and
considered for the MTBP.
Yes
Apart from expenditure
arrears, the Municipality
of Fier has no debt.
No
No information is given
about bank balances or
amounts owed to the city.
No
Information is not
provided about the Water
Utility owned by the city.
Yes
There are some
explanations of new policy
initiatives (taxes and fees).
Yes
These are published on
the Municipality of Fier
website
(http://bashkiafier.gov.al)
MTBP 2016-2018
No
In the Fiscal Package of
2016 some exemptions for
vulnerable families are
provided. But no details
are given of the cost to
the Municipality of the tax
concessions.
Source: Municipality of Fier
PI
PI-5
Indicator/Dimension
Budget classification
Score
B
Justification for score
Budget documentation fulfils 9
elements, including all four basic
elements.
42
PI-6 Government (subnational) operations outside financial reports
This indicator measures the extent to which revenue and expenditure under the control of
the Municipality is excluded from its financial reports. It covers all municipal operations during
the last completed fiscal year. It contains the following three dimensions and uses the M2
(AV) method for aggregating dimension scores:
Dimension 6.1. Expenditure outside financial reports;
Dimension 6.2. Revenue outside financial reports;
Dimension 6.3 Financial reports of extra-budgetary units.
6.1 Expenditure outside financial reports
Fier has no activities controlled by the Municipality, other than its share in the Water Utility
which is considered under PI-10, which are not fully covered by its financial reports. Thus
there is no expenditure outside financial reports, resulting in the score A.
6.2 Revenue outside financial reports
Fier has no activities controlled by the Municipality, other than its share in the Water Utility
which is considered under PI-10. Thus there is no revenue outside financial reports, resulting
in the score A.
6.3 Financial reports of extra-budgetary units
Since there are no extra-budgetary units, this dimension is Not Applicable.
PI
PI-6
Indicator/Dimension
Municipal operations outside
financial reports
PI-6.1 Expenditure outside financial
reports
PI-6.2 Revenue outside financial reports
PI-6.3 Financial reports of extrabudgetary units
Score
A
A
A
NA
Justification for score
Scoring method M2
There is no expenditure controlled
by the municipality which is not
fully covered in financial reports
There is no revenue accruing to Fier
which is not fully covered in
financial reports.
There are no extra-budgetary units.
PI-7 Transfers to lower levels of government
Since there are no government units subordinate to the city of Fier, this Indicator is Not
Applicable.
43
PI-8 Performance information for service delivery (M2)
This indicator examines the service delivery performance targets in budget documentation,
and the subsequent reporting of actual performance against the targets. It contains four
dimensions and uses the M2 (AV) method for aggregating dimension scores.
Dimension 8.1 Performance plans for service delivery (covering information for 2016);
Dimension 8.2 Performance achieved for service delivery (covering information for
2015);
Dimension 8.3 Resources received by service delivery units (covering information for
2015);
Dimension 8.4 Performance evaluation for service delivery (covering information for
2013-2015);
The first two dimensions ask what information is provided about the level of services planned,
and the level of services actually delivered, while the second two dimensions ask first whether
information is available about the resources received by individual schools and health clinics,
and second, whether there have been any independent evaluations of the services provided.
These questions are only just beginning to be considered by municipalities in Albania, despite
being required by the current legislation to provide information on services programmes and
performance indicators related to them. Article 33, subsection 2 of law no. 139/2001 On
local self-go er e t states in relation to instruments to manage public services that
Regardless of the sele ted i stru e t, i a e e t the lo al u it shall e respo si le for: a
Designing and implementing a system of service performance management, based on the
local standards and/or national minimum standards; (b) Designing and implementing a
system of indicators, including the gender aspect, for measuring service performance; (c)
Creating a special unit within their structures to be responsible for presenting, supervising,
a d o itori g ser i e perfor a e, i ludi g the ge der aspe t .
PI-8.1 Performance plans for service delivery
Only major objectives and the related activities for expenditure programmes are set out in
the budget documentation. No quantitative targets or goals are specified which could be used
in measuring the efficient and effective use of resources. Hitherto budget documentation has
not provided any information about the standard of service to be provided, for example
concerning the availability of public lighting, or the services to be provided in terms of preschool education. Since no information is available about plans for service delivery, the score
for this dimension is D.
PI-8.2 Performance achieved for service delivery
There is some limited reporting of actual standards of service, but no information is available
about performance against targets. Score: D
44
PI-8.3 Resources received by service delivery units
Fier implements three fees for public services: the cleaning fee, the greenery fee and the
public lighting fee. Further there are revenues also from kindergartens, nurseries etc.
Revenues from such fees are planned and reported regularly by the municipality on a
monthly, quarterly and annual basis. Further, the treasury system collects sufficient
information about each transaction to make possible reporting of the resources received by
each service delivery unit (nurseries, kindergarten, library, football club etc.). Reports have
been prepared and surveys undertaken identifying the resources received by services delivery
units, the amounts to be subsidized by the municipal budget. The administration prepares
also estimates and projections on how much fees should increase to get closer to cost
recovery. Such projections are included also in the fiscal package and budget documentations
presented to the municipal council. Score: B.
PI-8.4 Performance evaluation for service delivery
There have been no evaluations of effectiveness and efficiency of service delivery by
independent bodies for any major expenditure programs or departments at least once within
the last three years. Nor have either external audit (High State Control) or the Municipalit s
internal audit service produced any reports about standards of service achieved. Score: D.
PI
PI-8
Indicator/Dimension
Performance information for
service
delivery
Score
D+
PI-8.1
Performance plans for service
delivery
D
PI-8.2
Performance achieved for
service delivery
D
PI-8.3
Resources received by service
delivery units (SDUs)
B
PI-8.4
Performance evaluation for
service delivery
D
Justification for score
Aggregation method M2
No plans are published at any
frequency about the levels of
service to be provided.
Reporting of service levels
achieved against targets is not yet
established.
Reports have been produced
about the resources received by
individual SDUs.
No evaluations have been
produced by internal or external
auditors, or by other independent
bodies.
PI-9 Public access to fiscal information
This indicator assesses the comprehensiveness of fiscal information available to the public
based on specified elements of information to which public access is considered critical. The
45
score for this indicator depends on how many of five basic elements of information, and of
four additional elements, are available to the general public. It covers the last completed fiscal
year, the year 2015. At least four of the five basic elements must be available for a score of C
or higher.
The Municipality of Fier is engaged actively in increasing transparency, consultation and
participation of the community in the overall management of the city (as stated in the budget
do u e t of
, i a o da e ith the e o ga i la
o.
/
On local selfgo er e t which i t odu ed a e ti e hapte egulati g transparency, consultation and
i i parti ipatio :
- Local self-government units shall guarantee to the public the transparency of their
activity (Art.15/1);
- Every act of local self-government bodies shall be published on their official website
and displayed in particular places for public announcements (Art.15/2);
- Each unit of local self-government shall be obligated to appoint a transparency
coordinator and adopt a transparency program, ensuring access for all, especially for
the poorest communities, in accordance with the provisions of the applicable law for
access to information (Art.15/3);
- Keep accounts in conformity with the applicable legislation, and provide information
and financial reports for the design and implementation of their budgets to the central
government or the citizens (Art.9/1.3/d).
The situation in the Municipality of Fier with regard to fiscal documentation to which citizens
have access is set out in the following table.
Table 3.5. Public access to fiscal information
Elements
Fulfilled
(Yes/No)
Reference / Means of
publication
Basic Elements
1) Annual executive budget proposal
documentation. A complete set of
executive budget proposal documents (as
presented by the country in PI-5) is
available to the public within one week of
the e e uti e s su issio of the to the
municipal council.
2) Enacted budget. The annual budget law
approved by the municipal council is
publicized within two weeks of passage of
the decision.
No
Yes
Although incomplete
documentation is available on
the Municipality of Fier website
http://bashkiafier.gov.al/sqal/Bashkia/Pages/Buxheti.aspx
PEFA Secretariat advise that
full information in accordance
with PI-5 must be available for
the element to be satisfied.
Published on the Municipality
of Fier website
http://bashkiafier.gov.al/sqal/Bashkia/Pages/Buxheti.aspx
46
3) In-year budget execution reports. The
reports are routinely made available to the
public within one month of their issuance,
as assessed in PI-27.
4) Annual budget execution report. The
report is made available to the public
withi si o ths of the fis al ea s e d.
5) Audited annual financial report,
incorporating or accompanied by the
e ternal auditor’s report. The reports are
made available to the public within twelve
o ths of the fis al ea s e d.
Additional elements
6) Pre-budget Statement. The broad
parameters for the executive budget
proposal regarding expenditure, planned
revenue, and debt are made available to
the public at least four months before the
start of the fiscal year.
7) Other external audit reports. All nono fide tial epo ts o the u i ipalit s
consolidated operations are made
available to the public within six months of
submission.
8) Summary of the budget proposal. A clear,
simple summary of the executive budget
proposal or the enacted budget accessible
to the non-budget experts, often referred
to as a itize s udget, a d he e
appropriate translated into the most
commonly spoken local language, is
publicly available within two weeks of the
e e uti e udget p oposal s su issio to
the legislature and within one month of
the udget s app o al
No
No
& www.financatvendore.al &
http://www.vendime.al/catego
ry/fier/2015-fier/ . According
to Fier officials, it was
published on 18/12/2015 after
the approval by with
Municipality Council in
Decision no. 60, dated
17/12/2015.
There are half yearly budget
execution reports produced by
the finance and budget unit
officials but they are for
internal use only and there is
no regular publication.
The report is not published on
the website of the Municipality
of Fier.
NA
No opinion is given on annual
budget execution reports as it
is not a legal requirement in
Albania.
Yes
Information is provided about
the fiscal outlook prior to
budget preparation in the
Medium Term Budget Program.
Yes
No
Recommendations in audit
reports are published on HSC
website http://www.klsh.org.al
No user-friendly budget
itize s udget summary is
published.
47
Not applicable at municipal
level
Supplementary elements (in case any of the additional elements is not applicable to
sub-national governments)
10)
Information on fees, charges, and
The information with regard to
taxes that belong to the subnational
fees, charges and taxes is
Yes
government. The information is publicly
published in the Fiscal Package
available and up to date.
document.
9) Macroeconomic forecasts
NA
Since only two of the four applicable basic elements and two additional elements are satisfied,
the score is D.
PI
PI-9
Dimension
Public access to fiscal
information
Score
D
Justification for the score
Only one out of the five applicable
basic elements are satisfied.
48
3.4 Pillar 3. Management of Assets and Liabilities
PI-10 Fiscal risk reporting
This indicator measures the extent to which fiscal risks to central government are reported.
Fiscal risks can arise from adverse macroeconomic situations, financial positions of
subnational governments or public corporations, and contingent liabilities from the central
go e
e ts o
p og a s a d a ti ities, i ludi g e t a udgeta u its. The a also
arise from other implicit and external risks such as market failure and natural disasters. This
indicator contains three dimensions and uses the M2 (AV) method for aggregating dimension
scores. The indicator is assessed for the last completed fiscal year.
Dimension 10.1 Monitoring of public corporations
Dimension 10.2 Monitoring of subnational governments
Dimension 10.3 Contingent liabilities and other fiscal risks
The first dimension of this indicator looks at reporting by corporate bodies owned by the city,
whose operations are not included in the annual city budget. The second dimension is
concerned with the monitoring of lower level governments, and is therefore Not Applicable.
The third asks about the annual publication of information on contingent liabilities and other
fiscal risks.
PI-10.1 Monitoring of public corporations
The only body owned by the municipality but excluded from its budget is the water utility,
whose audited annual report has been published within six months of year-end. The it s
Finance Director is a member of the management board. The water utility acts as the
u i ipalit s fis al age t i olle ti g u h of the fee a d ta e enue due to the city from
businesses and households, and its operations are expected to be integrated into the city
budget for 2017. Score: A
PI-10.2 Monitoring of subordinate governments
Since there are no subordinate governments in this case, this dimension is considered as not
applicable at municipal level. Score: NA
PI-10.3 Contingent liabilities and other fiscal risks
According to the information provided by the experts in the Municipality of Fier, they have
not engaged in any transactions which would generate risks of this kind. Score: NA
PI
Dimension
Score
Justification for the score
PI - 10
Fiscal risk reporting
A
M2
49
PI – 10.1
Monitoring of public
corporations
PI – 10.2
Monitoring of subordinate
governments
PI – 10.3
Contingent liabilities and
other fiscal risks
A
The water utility has submitted
audited annual financial reports
within 6 months of year-end.
NA
Not applicable at municipal level.
NA
Fier has not guaranteed any
borrowing by subordinate
institutions, or participated in any PPP
operations.
PI-11 Public investment management
This indicator assesses the economic appraisal, selection, costing, and monitoring of public
investment projects by the municipality, with emphasis on the largest and most significant
projects. The time period considered for assessing this indicator is the last completed fiscal
year. It contains four dimensions and uses the M2 (AV) method for aggregating dimension
scores.
Dimension 11.1 Economic analysis of investment projects
Dimension 11.2 Investment project selection
Dimension 11.3 Investment project costing
Dimension 11.4 Investment project monitoring
The four dimensions of this indicator accord better with the situation of a central government
rather than with that of an individual municipality. The first dimension asks whether
investment proposals are subject to economic analysis in accordance with national guidelines;
the second asks whether projects are prioritised on the basis of published standard criteria;
the third asks whether full life-cycle costs are taken into consideration, and the fourth asks
about the monitoring of project execution.
PI-11.1 Economic analysis of investment proposals
The Ministry of Finance introduced Public Investment Management procedures in 2007 and
a new methodology for monitoring, evaluating and reporting of public investments has been
introduced in 2014. These procedures require an economic analysis for all investment
projects whereas a thorough analysis and full appraisal applies only for projects with an
estimated value of above 100 million ALL. However it is unclear whether these procedures
apply for municipalities and apparently there are no published guidelines for economic
analysis of investment proposals by municipalities in Albania. Unless the central government
provides the necessary resources – directly, through the provision of RDF funds, or through
external funding – Fier does not have the resources to undertake major investment projects
requiring sophisticated analysis. As explained in PI-2 above, very little was executed in the
2013 and 2014 and 2015 budgets for investment, with significant actual expenditure
beginning after receipt of RDF funds in 2014 and 2015. In bidding for such financing the
50
municipality aims to put forward proposals consistent with its Territorial Development
Strategy which reflect some assessment of the costs and analysis of the benefits to different
sections of the population. Although there are no centrally imposed guidelines regulating
these processes, Fier has prepared project fiches for the RDF committee that include an
economic, financial and social cost benefit analysis. The road projects currently in process of
execution are financed by the RDF, which is effectively in charge of project selection. Since
the RDF has some selection criteria for the projects it finances, the score for this dimension is
C.
PI-11.2 Investment project selection
Investment projects are proposed by spending units and are shortlisted by the strategic
management group. Later on the short list is consulted with the public in public hearings.
Project selection where finance is provided by RDF (or other similar financial resources
provider) is primarily determined by the central government, although projects are prepared
and executed by the municipal governments concerned. There are no published rigorous and
transparent criteria regulating the basis of the choices made by central government through
the RDF. Since all projects are prioritised by central government, the score for this dimension
is C.
PI-11.3 Investment project costing
New projects are not for the most part included in budget documentation, because decisions
on which projects should be financed are not made within the relevant timescale. Thus
arrangements do not meet the minimum requirements for a C score, which depends on the
availability of full information on total capital costs as well as information on spending during
the year immediately ahead. Therefore, the score for this dimension is D.
PI-11.4 Investment project monitoring
Project execution is monitored by the Public Works Directorate and the Finance Department,
with information on both physical and financial progress reported periodically at least 3-4
times a year in the budget implementation reports prepared for the municipal council.
Payments to suppliers are linked with to evidence of physical progress, quality assurance from
an independent expert (work supervisor) and acceptance from the Public Works Directorate.
The urban planning department also prepares 3-4 reports each year on both physical and
financial progress for every phase of the project implementation. While there is no strict
calendar for this, the municipality follows the legislative requirements setting up the
procedures for investment project monitoring. As there is no regular calendar, and the
reports are not published, the score for this dimension is C.
51
PI
PI-11
Dimension
Public investment
management
Score
D+
PI-11.1
Economic analysis of
investment proposals
C
PI-11.2
Investment project
selection
C
PI-11.3
Investment project
costing
D
PI-11.4
Investment project
monitoring
C
Justification for score
Scoring Method M2
Projects are put forward to central
government taking into account some
analysis of the costs and the likely
beneficiaries.
Prior to their inclusion in the budget, some
of the major investment projects are
prioritized by a central entity. Most projects
are selected by central government through
the RDF.
Decisions on project implementation are
generally taken after municipal budgets
have been set, with no information in
budget documentation about the total
capital costs of projects.
Project implementation is regularly
monitored by the Public Works Directorate,
but the reports are not published.
PI-12 Public asset management
This indicator assesses the management and monitoring of subnational government assets
and the transparency of asset disposal. It contains the following three dimensions, which are
assessed on the last 12 months, and uses the M2 (AV) method for aggregating dimension
scores:
Dimension 12.1 Financial asset monitoring
Dimension 12.2 Nonfinancial asset monitoring
Dimension 12.3 Transparency of asset disposal
This Indicator has three dimensions: the first looks at the u i ipalit s holdi gs of fi a ial
assets, the second at non-financial assets, and the third at rules for the transfer and disposal
of assets.
PI-12.1 Financial assets monitoring
Revenue arrears are considered to be financial assets and are included in total in the financial
statements of the municipality, but the amounts are very uncertain. However, these financial
statements are neither published nor subject to any regular audit. Given uncertainties about
amounts owed to the municipality, the score for this dimension is D.
52
PI-12.2 Non-financial assets monitoring
The municipality maintains a record/register of all its physical or fixed assets: land (urban,
rural - arable, pasture, forestry, unproductive), roads and pavements, buildings of different
kinds, irrigation canals, plant and equipment. All changes in non-financial assets are regularly
reported as part of the investment progress monitoring. Information on changes is included
in the budget monitoring reports and financial statements. The asset register is not published,
and contains only partial information on their usage, age, improvements and depreciation. It
is part of the (unpublished) consolidated financial statement. The score for this dimension is
C.
PI-12.3 Transparency of asset disposal
Although the municipality has a register of its non-financial assets, its ability to exploit them
is limited by the fact that they are not for the most part included in the national register of
properties. Registering all property will be time-consuming and expensive. Disposal or
transfer of property is regulated by the national legislation and requires the approval of the
municipal council; sales are by public auction, with a reserve price stated. However, in
practice there has not been any sale or disposal of assets with the exception of very outdated
and depreciated automobiles and equipment. The disposal of such assets took place through
public auction (thus following the rules for public procurement) with each step of the
procedure being managed by the legal department, the procurement unit, the finance
department, and the relevant departments responsible for those assets. The score for this
indicator is B.
PI
PI-12
Dimension
Public asset management
Score
C
PI-12.1
Financial asset
management
D
PI-12.2
Non-financial asset
management
C
PI-12.3
Transparency of asset
disposal
B
Justification for score
Scoring Method M2
Data in the unpublished financial
statements about revenue arrears is very
uncertain.
There is a register of fixed assets, but it is
not published.
There are procedures regulating asset
disposals, and reports to the council
contain information on disposals.
PI-13 Debt management
This indicator assesses the management of domestic and foreign debt and guarantees. It
seeks to identify whether satisfactory management practices, records, and controls are in
place to ensure efficient and effective arrangements. The indicator contains the following two
dimensions relevant to municipalities, which are assessed on the basis of the last 12 months,
and uses the M2 (AV) method for aggregating scores:
53
Dimension 13.1 Recording and reporting of debt and guarantees
Dimension 13.2 Approval of debt and guarantees
Dimension 13.3 Debt management strategy
All the applicable dimensions of this indicator concern debt and guarantees contracted
directly by the subnational governments and serviced by the subnational government. The
third dimension, which concerns debt management strategy at central government level is
considered Not Applicable at municipal level.
13.1 Recording and reporting of debt and guarantees
Fier has not contracted any loans, so this dimension is Not Applicable.
13.2 Approval of debt and guarantees
The legal framework regulating the subnational borrowing in Albania is the Law no.
/
O
o o i g of lo al go e
e ts . A o di g to the la o
o o i g,
subnational governments may access short and long term loans, subject to limits on amounts
outstanding set by reference to freely disposable annual revenue and annual debt service
obligations. To keep total public debt under control, all borrowing is subject to control by the
Ministry of Finance, under article 6 and 7 of the law. This has been reinforced by the 2015
Administrative Order which requires all municipalities to seek the permission of the Ministry
of Finance to undertake any borrowing. In practice despite this provision in the law, there has
been very little borrowing by a small number of municipalities. The total outstanding debt at
the end of 2015 was 0.065% of GDP or 0.09% of total public debt. Although Fier has not
contracted any debts, resulting in Not Applicable for 13.1, PEFA Secretariat consider that a
score should be given for 13.2 based on the current legislation. Since all borrowing is
ultimately controlled by MoF, score is A.
13.3 Debt management strategy
In accordance with the terms of refence this dimension is Not Used.
PI
PI-13
PI-13.1
PI-13.2
PI-13.3
Dimension
Debt management
Debt recording and
reporting
Approval of debt and
guarantees
Debt management strategy
Score
A
NA
A
NU
Justification for score
Scoring method M2
Fier has not contracted any
loans
All municipal borrowing is fully
controlled by MoF.
Excluded by terms of reference.
54
3.5 Pillar 4. Policy Based Fiscal Strategy and Budgeting
PI-14 Macroeconomic and fiscal forecasting
This indicator measures the ability of a country to develop robust macroeconomic and fiscal
forecasts, which are crucial to developing a sustainable fiscal strategy and ensuring greater
predictability of udget allo atio s. It also assesses the go e
e t s apa it to esti ate the
fiscal impact of potential changes in economic circumstances. It contains three dimensions
and uses M2 (AV) for aggregating dimension scores.
PI-14.1 Macroeconomic forecasts
PI-14.2 Fiscal forecasts
PI-14.3 Macro fiscal sensitivity analysis
PI-14.1. Macroeconomic forecasts
The first dimension of this indicator concerns the preparation of macroeconomic forecasts by
the central government, and the third the impact on fiscal forecasts of different
macroeconomic assumptions. According to the terms of reference these dimensions are Not
Used.
PI-14.2 Fiscal forecasts
The second dimension asks whether fiscal forecasts covering revenue and expenditure for the
budget year immediately ahead and the two subsequent years have been submitted to the
municipal Council with the budgets for the years 2014-16. The Medium-Term Budget
Projections provide such information, with details of both revenue and expenditure shared
with the municipal council. Both the numerical tables with revenue and expenditure forecasts
(following the economic, functional and administrative classifications) and the accompanying
report (including the underlying assumptions) are published in the municipal website. For an
A score the information provided must include an explanation of the main differences from
previous fiscal forecasts submitted to the Municipal Council. Since such an explanation has
not been provided in the Municipality of Fier, the score for this dimension is B.
PI-14.3 Macro fiscal sensitivity analysis
This dimension is not applicable to the sub-national government since relevant to the central
government only as set out in the concept note.
PI
PI-14
PI-14.1
Dimension
Macroeconomic and fiscal
forecasting
Macroeconomic forecasts
Score
B
NU
Justification for score
Scoring Method M2
Excluded by the terms of
reference for the assessment.
55
PI-14.2
Fiscal forecasts
PI-14.3
Macro fiscal sensitivity
analysis
B
NU
The city administration prepares
forecasts of fiscal indicators,
including underlying
assumptions, revenues (by type),
aggregate expenditure, and the
budget balance, for the budget
year and two following fiscal
years. These projections have
been submitted to the Council in
each of the last three years and
published.
As 14.1
PI-15 Fiscal strategy (M2)
This indicator provides an analysis of the capacity to develop and implement a clear fiscal
strategy. It also measures the ability to develop and assess the fiscal impact of revenue and
expenditure poli p oposals that suppo t the a hie e e t of the go e
e t s fis al goals.
It covers the entire municipal operations and contains the following three dimensions and
uses the M2 (AV) method for aggregating dimension scores:
Dimension 15.1. Fiscal impact of policy proposals (the last three fiscal years);
Dimension 15.2. Fiscal strategy adoption (the last fiscal year);
Dimension 15.3. Reporting on fiscal outcomes (the last completed fiscal year).
The first dimension of the indicator asks whether the city administration submits to the
Council estimates of the fiscal impact of all proposed changes in revenue and expenditure
policy for the following three years. The second asks whether the administration has
submitted its fiscal strategy for the following three years to the Council (for at least one
budget year and the two following fiscal years), including time-based fiscal goals. The last
dimension of the indicator asks whether the administration has submitted to the Council a
report on progress in implementing its previously adopted fiscal strategy. This indicator thus
presupposes that the municipal administration is able to control the whole of its budget, and
plan the whole of its expenditure with a time horizon of at least three years. In reality in
Albania municipal administrations cannot do this (or cannot fully do it), because a large part
of their overall expenditure is devoted to capital investment where decisions are taken by the
central government outside the municipal annual budget framework.
PI-15.1 Fiscal impact of policy proposals
The administration presented its Medium-Term Budget Forecast (MTBF) for 2016-18 to the
Council, including all elements of revenue and expenditure under its direct control, and the
impact of changes, if any. Estimates include all types of revenues from local taxes and fees,
56
asset management, etc., whereas expenditure estimates include projections based on the
administrative, economic and functional classifications for the three years to come, and the
actual figures for the previous year. Estimates were included of the impact of fiscal policy
changes (revenue and expenditure) and also of changes in applicable laws made by the central
government5. A report explaining the underlying assumptions is prepared and shared with
the municipal council and is published in the municipal website. But as explained above, this
can only be a partial presentation (since the municipalities have no basis for forecasting
capital expenditures financed through the RDF or other similar instruments controlled by the
central government). However, it appears to meet the requirements of the PEFA criteria and
the score for this dimension is A.
PI-15.2 Fiscal strategy adoption
Municipalities must present balanced budgets (according to Law No. 139/2015, O Lo al
Self-Go er e t , Art. 34/6 and corresponding Art. 12 of the Law No. 9936/2008 O the
Budgeti g “ ste Ma age e t i the Repu li of Al a ia ), unless they have approval from
the Mi ist of Fi a e fo o o i g. Fie s MTBF
-2018 is submitted on the basis of
balanced budgets, which amount to fiscal targets. These could be seen as meeting the
requirement for a fiscal strategy, although this has no real substance and contains no
qualitative objectives for achievements during the period. However, since quantitative
objectives are presented to the Council for three years ahead, the suggested score for this
dimension is B.
PI-15.3 Reporting on fiscal outcomes
Although reports have been produced showing comparisons between original budget and
out-tu figu es, these ha e ot i luded a e pla atio of diffe e es et ee o e ea s
MTBF and that for the following year. Score: D
PI
PI-15
Indicator/Dimension
Fiscal Strategy
Score
B
PI-15.1
Fiscal impact of policy
proposals
A
PI-15.2
Fiscal strategy adoption
B
PI-15.3
Reporting on fiscal
outcomes
D
Justification for score
Aggregation Method M2
MTBF includes estimates of revenue and
expenditure, taking account of any changes
in policy. But the coverage is incomplete.
Balanced budgets represent a kind of fiscal
strategy. But there are no qualitative
objectives associated with it.
No explanations have been given for
diffe e es et ee o e ea s MTBF a d
that for the following year.
Law No. 142/2015 for some changes and additions to Law no 9632/2006 O Lo al Ta “ ste
guidelines provided by the Ministry of Finance during early January of 2016.
5
and other
57
PI-16 Medium-term perspective in expenditure budgeting
This indicator examines the extent to which expenditure budgets are developed for the
medium term within explicit medium-term budget expenditure ceilings. It also examines the
extent to which annual budgets are derived from medium-term estimates and the degree of
alignment between medium-term budget estimates and strategic plans. It covers the last
budget submitted to the Council and contains the following four dimensions, and uses the M2
(AV) method for aggregating dimension scores:
Dimension 16.1. Medium-term expenditure estimates;
Dimension 16.2. Medium-term expenditure ceilings;
Dimension 16.3. Alignment of strategic plans and medium-term budgets;
Di e sio
. . Co siste
of udgets ith p e ious ea s esti ates.
The first dimension of the indicator reviews the extent of detail in medium-term fiscal
projections prepared by the subnational government as part of the annual budget cycle. The
second assesses whether the expenditure ceilings for three years for each service or
administrative unit are determined by the Mayor at the beginning of the process; the third
dimension assesses whether expenditure policy proposals are consistent with medium-term
strategic plans; and the fourth whether explanations are given for changes between
su essi e ea s MTBFs. As for PI-15 the plans put forward by the city administration do not
cover much expenditure on investment, and so do not represent a complete plan for the
development of the city.
PI-16.1 Medium-term expenditure estimates
In Albania the practice is first to prepare the MTBF covering the following three years, which
is completed [in August] each year. The MTBF covers only expenditures, broken down by
administrative and economic classification, which is expected to be able to be financed from
unconditional t a sfe s a d e e ues u de the u i ipalit s o t ol, thus e ludi g ost
investment expenditure. The MTBF 2016-2018 includes forecasts of expenditures for the
years 2016, 2017 and 2018 and the actual figures for the previous year. A draft MTBF 20172019 has been prepared and approved in the Municipal Council and deposited in the Ministry
of Finance. Each unit in the city administration is required to work within expenditure ceilings
set by the Mayor. The completed MTBF is submitted to the Council, and thereafter used as
the asis fo the p epa atio of the follo i g ea s udget. The udget as fi all p oposed
may differ slightly from the MTBF figures, but the second and third year figures are not revised
at that stage, and not presented in the budget documentation. If the MTBF figures are
considered sufficient for this PI, the score would be B, since the projections are put forward
based on administrative and economic classifications.
58
PI-16.2 Medium-term expenditure ceilings
Expenditure ceilings for each of the three years for each administrative unit are issued by the
Mayor at the first stage of the process. Each spending unit must abide to the ceilings during
budget preparation. Budgetary requests above the ceiling are recorded, discussed and
eventually approved in subsequent meetings by the Group for Strategic Management headed
by the Mayor. Thus the proposed score is A.
PI-16.3 Alignment of strategic plans and medium-term budgets
Due to legislative changes, the Municipality of Fier has adopted (approved by the Municipal
Council) a Territorial Development Strategy of the Municipality in 2016, as part of the General
Local Plan (expected to be approved before the end of December 2016). Accordingly, the
vision and strategic objectives as provided in the TDS of the Municipality have been developed
and translated in financial terms in the Capital Investment Plan for 2016-2030. In theory, the
CIP contains detailed information for the prioritized investment projects, which in turn should
be linked to and translated in the MTBPs. Because most municipal investment depends on
unpredictable grants from central government (RDF funding or other similar programs),
municipalities are not in a position to prepare strategic plans which are in alignment with
budget projections. Score: D.
PI-16. Co siste
of udgets ith pre ious ear’s esti ates
The documentation provided by the municipality of Fier with regard to the MTBF 2016-2018
and the 2016 budget documentation do not contain any information with regard to previous
years estimates. Because of the recent municipal reorganisation there has been no question
as et of e plai i g the diffe e es et ee o e ea s MTBF a d the e t. The s o e fo the
indicator is Not Applicable.
PI
PI-16
Indicator/Dimension
Medium-term perspective in
expenditure budgeting
Score
B
PI-16.1
Medium-term expenditure
estimates
B
PI-16.2
Medium-term expenditure
ceilings
A
PI-16.3
Alignment of strategic plans
and medium-term budgets
D
Justification for score
Aggregation method (M2)
Revenue and expenditure projections
for the following three years based on
administrative and economic
classifications are submitted to the
Council.
Ceilings for each of the three next
years are issued to each
administrative unit at the start of the
MTBF process.
The unpredictability of investment
financing precludes the preparation of
59
PI-16.4
Consistency of budgets with
p e ious ea s esti ates
NA
strategic plans which can be executed
over a specified time period.
There has as yet been no opportunity
to explain changes from a previous
ea s MTBF si e the
u i ipal
reorganisation.
PI-17 Budget preparation process
This indicator measures the effectiveness of participation by relevant stakeholders in the
budget preparation process, including political leadership, and whether that participation is
orderly and timely. It covers budgetary municipal government and contains the following
three dimensions and uses the M2 (AV) method for aggregating dimension scores:
Dimension 17.1. Budget calendar (covering the last annual budget submitted to the
Municipal Council);
Dimension 17.2. Guidance on budget preparation (covering the last annual budget
submitted to the Municipal Council)
Dimension 17.3. Budget submission to the legislature (covering the last three annual
budgets submitted to the Municipal Council)
PI-17.1 Budget calendar
A clear annual budget calendar is issued by the Mayor early each year in accordance with the
budgeting calendar guidelines provided in Law No. 9936/2008. Instructions on the annual and
medium term budget preparation are issued in February of every year from the Ministry of
Finance and then by all municipalities. This provides first for the development of the MTBF by
the late summer, which then serves as the basis for the prepa atio of the follo i g ea s
budget. Final instructions to each administrative unit are, however, only issued in November
leaving less than four weeks before the budget is submitted to the Municipal Council. After
the June 2015 elections that created the new and larger municipalities, Fier approved the new
and consolidated budget for FY2015 (including the nine amalgamated Communes) on July
21st. Work on the new 2016 budget proposal started in September, with a new calendar being
developed and subsequently followed. Until November spending units prepared budgetary
requests which were discussed in the Strategic Management Group and publicly consulted
with citizens. In November the Council approved the fiscal package including all tax and fee
levels for the entire (new) territory for 2016, including revenue projections. The final 2016
draft budget proposal was presented to the Council in December 10th, one week before the
date planned for its consideration and adoption, and in advance of final decisions by the
Government on the amounts of unconditional transfers. Since the time available for the
preparation of final submissions is very short, the score for this dimension is C.
PI-17.2 Guidance on budget preparation
60
Clear instructions, including expenditure ceilings are given to each of the municipalit s
administrative/spending units at each stage of the MTBF and budget preparation process. The
Strategic Management Group composed of the heads of the budget programs and the mayor
convene regularly to provide such instructions, evaluate and decide on budgetary request
submitted by all spending units. Guidance, opinions and recommendations are included in
the budget preparation templates fulfilled by all spending units. Instructions are provided to
budgetary units also for RDF financing, whenever the central government publishes a call for
proposals. Political leadership of the municipality helps in setting priorities for RDF financing.
Score: A
PI-17.3 Budget submission to the Council
The draft budget and the fiscal package (i.e. the proposed fiscal policies on local taxes and
fees for the coming year) have been put forward for public consultation. In general also
municipal councillors participate in such events. The finalized proposals on the budget and
the fiscal package are thereby made available to the Council, at least one week before the
meeting scheduled for their consideration and approval, but less than one month before the
start of the fiscal year. Based on the Law on Local Self-Government, municipal council
decisions proposals must be submitted for consideration to the council at least one week in
advance of the planned plenary session. In the last three years the draft-budget has been
presented to the municipal council on 16 January 2014 for the 2014 budget proposal; 23
December 2014 for the 2015 budget proposal and December 10th, 2015 for the 2016 budget
proposal. The 2016 budget proposal was adversely affected by the implications of the TAR
and the delays of the central government in adopting the state budget that defines the
unconditional grant and very late changes to the Law regulating the local tax systems.
However, unlike many other LGUs, Fier managed to have the 2016 budget adopted before
the start of the fiscal year. Because the Council has only one week to consider the proposals,
score for this dimension is D.
PI
PI-17
Indicator/Dimension
Budget preparation
process (M2)
Score
C+
PI-17.1
Budget calendar
C
PI-17.2
Guidance on budget
preparation
A
PI-17.3
Budget submission to
the legislature
D
Justification for score
Aggregation method (M2)
There is a clear budget calendar, but
administrative units have less than four
weeks to prepare their final submissions.
Expenditure ceilings are issued to
administrative units at each stage of the
MTBF and budget preparation process
For each of the 2014-16 budgets
proposals have been sent to the Council
one week before the plenary session
which approved them.
61
PI-18 Legislative scrutiny of budgets
This indicator assesses the nature and extent of legislative scrutiny of the annual budget. It
considers the extent to which the legislature scrutinizes, debates, and approves the annual
udget, i ludi g the e te t to hi h the legislatu e s p o edu es fo s uti a e ell
established and adhered to. The indicator also assesses the existence of rules for in-year
amendments to the budget without ex-ante approval by the Council. The indicator covers
municipal budget operations only and the most recent budget cycle i.e. the budget for FY2016
(except for dimension 18.3 which covers the last three budget cycles). It contains the
following four dimensions and uses the M1 (WL) method for aggregating dimension scores:
Dimension 18.1. Scope of budget scrutiny;
Dimension 18.2. Legislative procedures for budget scrutiny;
Dimension 18.3. Timing of budget approval;
Dimension 18.4. Rules for budget adjustments by the executive.
PI-18.1 Scope of budget scrutiny
The Municipal Council reviews the fiscal package with policies and rates on taxes, fees and
charges, medium-term fiscal outlook on revenues and expenditures, including any revenue
policy changes, and the annual budget proposal document on the basis of the MTBF which is
submitted in advance of the budget proposals. The Cou il s E o o
a d Fi a e
Committee, composed mostly of councillors with some experience of economics and finance,
has convened to analyse and discuss the budget proposal at least one day before the budget
proposal is presented in the plenary for final approval. The Committee prepares a report with
findings and recommendations which is presented in the plenary session. Such proposals and
recommendations on amendments to the budget are voted. Any proposal amending the
draft-budget needs to comply with budget rules and regulations for a balanced and
sustainable budget. Score: A.
PI-18.2 Council procedures for budget scrutiny
The Cou il s o side atio of the udget p oposals is p e eded
pu li o sultatio
eeti gs, a d also i ol es e ie
the Cou il s E o o a d Fi a e Co
ittee efo e
it reaches the full Council. The standard procedures for budget scrutiny and the functioning
of the Economy and Finance Committee are approved by the Municipal Council itself. The
executive and the administration provide technical support to the Economy and Finance
Committee and all Council Members to analyse and scrutinize the budget proposal. The
Cou il s egulatio fo udget s uti i lude ules fo egotiatio a d e isio s. Score: A
PI-18.3 Timing of budget approval
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Based on the provisions of Law No. 9936/2008 O the Budgeti g “ ste Ma age e t i the
Repu li of Al a ia , Art. 32., the municipal budget shall be approved by the legislature
before the start of the new fiscal year. This requirement has been met only on two of the last
three fiscal years considered for assessing this dimension. Therefore, the score for this
dimension is B.
Table 3.6. Budget submission and approval by the Council
Budget Year
FY2014
FY2015
FY2016
Date of Council approval of the budget
23 January 2014
30 December 2014
17 December 2015
Source: Municipality of Fier
PI-18.4 Rules for budget adjustments by the executive
The Mayor can authorise transfers within the allocations to each administrative unit, but
transfers between administrative units require the approval of the Municipal Council. Budgets
are formally adjusted to reflect conditional grants to finance investments, but RDF assistance
towards investments has been treated as entirely outside the budget, and not subject to any
supervision by the Municipal Council. Because substantial RDF funding has not been subject
to any supervision by the Council included in the budget, the score for this dimension score is
C.
PI
PI-18
PI-18.1
Indicator/Dimensi
on
Legislative scrutiny
of budgets
Scope of budget
scrutiny
Score
C+
A
PI-18.2
Council procedures
for budget scrutiny
A
PI-18.3
Timing of budget
approval
B
PI-18.4
Rules for budget
adjustment by the
executive
C
Justification for score
Aggregation method (M1)
The Council considers the MTBF before the
budget is submitted.
Procedures are well-established, including
public consultation and review by a specialist
committee.
Budget has been approved before the
beginning of the new fiscal in two of the last
three budgets.
Although budgets have been adjusted in
response to the provision of conditional grants
for investment, RDF grants have not been
included in these arrangements.
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3.6 Pillar 5. Predictability and Control in Budget Execution
PI-19 Revenue administration
This indicator assesses the procedures used to collect and monitor sub national government
revenues. It contains the following four dimensions and uses M2 (AV) method for aggregating
dimension scores:
Dimension 19.1. Rights and obligations for revenue measures (assessed as at time of
assessment);
Dimension 19.2. Revenue risk management (assessed as at time of assessment);
Dimension 19.3. Revenue audit and investigation (assessed on experience in 2015
and subsequently);
Dimension 19.4. Revenue arrears monitoring (assessed on experience in 2015 and
subsequently).
The composition of municipal own revenue in Albania is described in Chapter 2 above, and
the details of Fie s e e ue a e set out i PI-3 above.
PI-19.1 Rights and obligations for revenue measures
Law No. 9632/2006 O Lo al Ta es “ ste as subsequently amended provides the basis for
the local taxes and fees levied by municipalities. The central government fixes the indicative
rate for the main taxes levied by municipalities, but each Council has the right to vary this rate
up or down by up to 30 per cent. Since 2006 this law has been subject to substantial changes,
and a complete new law on local taxation is expected to be approved within the next few
months. For the municipality of Fier, information about liabilities to pay taxes and fees is
eadil a aila le o the it s e site. The it s ate utilit Wate & “e e age Co pa
Fier) has recently taken responsibility for the collection of taxes and fees alongside the water
charges in the city and in the former communes. It appears that this is resulting in an
improvement in compliance rate especially for businesses.
The ta lia ilit otifi atio se t by the municipal revenue department to all taxpayers
contains all relevant information with regard to rights and obligations in the case of nonpayment. In the case of late payments, a penalty as a percentage of total amount per diem
may be applied for a maximum of 365 days. Taxpayers can appeal to the Tax Directorate,
which must respond within 5 working days. If the response is unsatisfactory, the taxpayer can
appeal to the Mayor 6 ho ust espo d ithi
da s. If the Ma o s espo se is
unsatisfactory a further appeal can be made to the Administrative Court. Fier officials stated
that there had been very few appeals to the Tax Directorate or the Mayor and none to the
6
http://bashkiafier.gov.al/sq-al/Services/Pages/Kerkese-Ankese.aspx
64
Court. Since information is available for taxpayers both from the water company and from
the municipal revenue department, collects between them collect about 80% of municipal
own revenues, the score for this dimension is B.
PI-19.2 Revenue risk management
Fier does not have an integrated tax management system covering both for household and
non-household taxpayers. While the compliance rate is higher in the case of non-household
taxpayers, the situation is considered unsatisfactory for household taxpayers. Available
information indicates that there is considerable uncertainty about the amounts payable,
given that enforcement is far from complete. The largest tax revenue – the infrastructure
impact tax – shows very large proportionate shortfalls between budgets and out-turn mainly
as a result of action by the central government in blocking developments, while the Other
ta es line shows substantial unbudgeted receipts in 2014 which were not repeated in 2015
(see PI-3 above). The collection of fees from both households and businesses appears to have
improved during the period 2013-15. More attention has apparently been paid to the
collection of the larger amounts of taxes and fees due from businesses than to collection from
households where both the individual amounts and the overall total due are smaller. Payment
by businesses may be enforced by blocking the bank accounts of non-payers; there were said
to be about 75 such cases each year. For household taxpayers other services might be
withheld from non-payers, although the legal basis for this was doubtful. Since the focus on
collection from business taxpayers can be seen as a response to risk, score is C.
Households that do not have a contract with the water utility pay their tax obligations in cash
at municipal cash desks in the former communes and four offices in the city. Transactions are
kept in excel based modules, not linked to any IT system, and lists are processed manually.
Cashiers provide taxpayers with a hard copy of the cleared tax liability. The taxpayer is then
cleared from its tax liabilities in the excel list for the given year. Cash is transferred then
through banks in the treasury system. In total, in 2016 such revenues constituted about 2%
of the o e all e e ues olle ted
Fie s e e ue ad i ist atio , the ate utilit a d the
cash desks.
PI-19.3 Revenue audit and investigation
This dimension is of greater significance in relation to central government income taxes and
VAT. Apart from the infrastructure impact tax, where there may be risks resulting from
buildings being constructed without the tax being applied, the liability to pay taxes and fees
should generally be straightforward, not requiring complex investigation. (There remains the
question of ensuring a complete and accurate register of taxable households, given the large
disparity between the numbers registered in each municipality and the generally much smaller
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– except in Tirana – numbers found to be resident through the census.) It does not appear that
there is any systematic approach to investigations of non-payment. Score: D
PI-19.4 Revenue arrears monitoring
No data have been provided by Fier officials about the stock and movement of revenue
arrears. It appears that more attention has been paid to collections from businesses who pay
three quarters of own source revenues, but in the case of households there are no consistent
records of the amounts and ages of payment arrears. In the absence of information the score
for this dimension is D*.
PI
PI-19
Indicator/Dimension
Revenue administration
Score
D+
PI-19.1
Rights and obligations for
revenue measures
B
PI-19.2
Revenue risk management
C
PI-19.3
Revenue audit and
investigation
D
PI-19.4
Revenue arrears monitoring
D*
Justification for score
Aggregation method (M2)
Tax and fee payers have ready access
to information on obligations, and
procedures exist for appeals.
The main focus of collection effort is on
business taxpayers who contribute the
largest share of revenue.
There is no systematic approach to the
investigation of non-payment of
households.
No data are available about the nature,
amounts and ages of revenue arrears.
PI-20 Accounting for revenue
This indicator assesses procedures for recording and reporting revenue collections,
consolidating revenues collected, and reconciling tax revenue accounts. It covers both tax and
nontax revenues collected by the municipality. This indicator contains the following three
dimensions and uses M1 (WL) for aggregating dimension scores:
Dimension 20.1. Information on revenue collections;
Dimension 20.2. Transfer of revenue collections;
Dimension 20.3. Revenue accounts reconciliation.
PI-20.1 Information on revenue collections
All revenue collected by municipal departments is paid immediately into the Treasury system
either through banks/post offices. The amounts and type of revenue are notified by the
Treasury Branch to the city administration competent office daily, and reports are compiled
at least monthly. Revenue collected by the water company is fully reported on a monthly
basis. The finance department exchanges information with the Tax Directorate which
66
prepares informational reports for the Mayor, at least on a monthly basis. The system is not
automated, so that the Tax Directorate has to match the bank record of every single
transaction with its own assessment records. Since the monthly reconciliations are complete,
the score for this dimension is A.
PI-20.2 Transfer of revenue collections
Revenue received by Municipal departments from local taxes and fees from the business
taxpayers is transferred daily to the it s a ou ts i the T easu s ste f o the
banks/post offices which receive it. Also revenue collected from municipal cash desks in the
fo e o
u es a d the it s fo offi es a e t a sfe ed dail to the t easu s ste f o
municipal officials through the banking system. But revenue collected through the water
company hi h o olle ts the ajo it of the u i ipalit s o
evenues is transferred
only o thl to the it s a ou ts i the T easu s ste . The score for this dimension is D.
PI-20.3 Revenue accounts reconciliation
Banks and the water company collect the names of tax and fee payers and the amounts paid
and the nature of the payments. The city revenue department then has to reconcile this
information with its manual records of assessments in order to establish amounts still
outstanding. While there appears to be adequate reconciliation between Treasury and city
records of the total amounts received of different taxes and fees, the absence of data on
payment arrears suggests that full reconciliations are not carried out at the level of the
individual payers so as to provide the basis for establishing the total amounts assessed but
not paid. The score for this dimension is D.
PI
PI-20
Indicator/Dimension
Accounting for revenue
Score
D+
PI-20.1
Information on revenue
collections
A
PI-20.2
Transfer of revenue
collections
D
PI-20.3
Revenue accounts
reconciliation
D
Justification for score
Aggregation method (M1)
Information is available daily about the
nature and amounts of receipts, and
reports are made.
All revenue received by municipal
departments is paid immediately into
the it s a ou ts i the T easu
system, but amounts collected by the
water company, which now collects the
majority of municipal revenues are paid
into the Treasury account monthly.
Reconciliations do not establish total
amounts outstanding or the amounts
owed by individual tax and fee payers.
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PI-21 Predictability of in-year resource allocation
This indicator assesses the extent to which the Municipality is able to forecast cash
commitments and requirements and to provide reliable information on the availability of
funds to budgetary units for service delivery. It contains the following four dimensions and
uses the M2 (AV) method for aggregating dimension scores:
Dimension 21.1. Consolidation of cash balances (as at time of assessment);
Dimension 21.2. Cash forecasting and monitoring (last 12 months budget cycle);
Dimension 21.3. Information on commitment ceilings (last 12 months budget cycle);
Dimension 21.4. Significance of in-year budget adjustments (last 12 months budget
cycle).
PI-21.1 Consolidation of cash balances
The Municipality conducts all its revenue and expenditure transactions through its one official
a k a ou t, ope ati g th ough the Natio al T easu s Dist i t Offi e. “ o e: A
PI-21.2 Cash forecasting and monitoring
Based on the guidance instructions 93 to 104, 132 and 255, from “ta dard Pro edures of
Appli atio for Budget Preparatio , issued by the Ministry of Finance, in February 2012, a
cash flow forecast is produced at the beginning of the year, taking into account the agreed
quarterly path for receipts of unconditional grants, and revised in the light of information
about amounts of conditional grants and about revenue trends. However, it appears that in
practice Fier updates the cash plan only when there are intergovernmental transfers but not
to reflect actual revenue collection performance. Since there is not a regular pattern for the
revision of the forecast, and there are continuing uncertainties surrounding some revenue
and expenditure, the score for this dimension is C.
PI-21.3 Information on commitment ceilings
According to Art. 50, Orga i Budget La , Authorizi g offi ers of ge eral go er e t u its
shall maintain information on financial commitments, and shall not allow undertaking of any
new commitment if that exceeds the limit of the budget appropriatio . The municipality s
administrative units normally have information about the annual commitment ceilings right
after the budget is approved by the council and allocated to spending units. Budget units may
undertake commitments where there is provision in the budget, where the amount has been
i luded i the it s p o u e e t pla as otified to the T easu , a d he e the ti i g of
the payments is consistent with the cash flow forecast. While commitment ceilings are
updated to reflect in-year-budget adjustments or conditional grants from the central
government it appears they are not timely or regularly updated to reflect the effective
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revenue collection. Because in practice budget units may at any time find that funds are not
available to meet planned expenditures, the score for this dimension is D.
PI-21.4 Significance of in-year budget adjustments
Budgets have to be adjusted in the light of information about the prospective availability of
conditional grants, which were not taken into account when the budget was first approved.
(Underspending resulting from revenue shortfalls does not have to be ratified through a
revised budget.) Changes are notified to the Council, but not otherwise published. Score: C
PI
PI-21
PI-21.1
Indicator/Dimension
Predictability of in-year
resource allocation
Consolidation of cash
balances
Score Justification for score
C+
A
PI-21.2
Cash forecasting and
monitoring
C
PI-21.3
Information on
commitment ceilings
D
PI-21.4
Significance of in-year
budget adjustments
C
Aggregation method (M2)
All ala es a e held i the it s
Treasury account.
A cash flow forecast is prepared at the
beginning of the year, and may be
updated to take account of the
prospective availability of conditional
grants but not revenue trends.
Administrative units have little
assurance that funds will be available to
meet planned expenditures.
Budgets are adjusted to take into
account the prospective availability of
conditional grants.
PI-22 Expenditure arrears
This indicator measures the extent to which there is a stock of arrears, and the extent to which
a systemic problem in this regard is being addressed and brought under control. It contains
the following two dimensions and uses the M1 (WL) method for aggregating dimension
scores:
Dimension 22.1. Stock of expenditure arrears (last three completed fiscal years);
Dimension 22.2. Expenditure arrears monitoring (as at time of assessment).
In Albania, there is no legal definition of when an outstanding invoice becomes an arrear.
Arrears will generally be treated as such when payment has not been made within the normal
30 day credit period. The Treasury offices execute payments on behalf of subnational
governments based on the availability of cash, generally within one month. All invoices not
paid at the end of the year are considered expenditure arrears. Municipalities or budgetary
institutions present received invoices from suppliers, approve them, and submit them to the
Treasury District Office (TDO) for payment. In the system there are registered the date the
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i oi e a i ed a d e te ed the s ste , the date of the T easu s p o edu es, a d the date
the payment is executed. Currently, there is an initiative by the Ministry of Finance to
establish the level of expenditure arrears for all 61 Municipalities (Decision No. 50/2014
“trateg for Cleara e a d Pre e tio of Arrears A u ulated the Ce tral Go er e t
with the intent to apply the same for local government). The latest evidence refers to June
2016.
PI-22.1 Stock of expenditure arrears
After the TAR, a significant concern was raised about possible expenditure arrears. At the end
of 2015 the Treasury system shows that Fier had arrears (payments outstanding for more
than 30 days) of ALL 138.4 million, representing about 9.2 per cent of total 2015 expenditure
(of about ALL 1,501 million). Of these, about ALL 99 million, mostly inherited from the former
communes recently incorporated into the municipality, were incompletely documented.
Fie s udget do u e tatio fo
sho s that arrears were 141.4 million ALL at the end
of 2013 (31% of total expenditure in 2013 of 456.6 million ALL), and 15.3 million ALLL (2.9%
of total expenditure of 521.3 million ALL) at the end of 2014. Since arrears were more than
10 % of total expenditure in two of the three years, the score for this dimension is D.
Table 3.7. Information on total arrears of the Municipality of Fier (in ALL)
2013
2014
Total Budget Out-turns
Arrears with regular documentation
Arrears without regular documentation
Total arrears
Total arrears/Budget
456,566
141,394
31.0%
2015
521,262
621,153
15,342
2.9%
39,011
99,406
138,417
22.3%
Source: Municipality of Fier & Ministry of Finance
*Data for 2013 and 2014 concern the old Municipality of Fier and are derived from the 2016 budget document.
While for 2015, data concern the new Municipality of Fier and the source is the Ministry of Finance.
22.2 Expenditure arrears monitoring
The Municipality of Fier has full records of the amounts, composition and ages of all the
expenditure arrears of which it has been notified, which are available in real time (it is possible
that some invoices have not been presented where contractors know that cash is not yet
available to meet them). In 2016 such a register has been approved by the municipal council.
A report on expenditure arrears has been prepared on a quarterly basis and shared with the
municipal council and the Ministry of Finance. Information on arrears is included also in the
budget documentation and budget implementation reports and the unpublished and
unaudited annual financial statements. Fier has conducted an audit of the legality of payment
arrears and has approved a strategy for their clearance. The score for this indicator is A.
PI-22
Indicator/Dimension
Expenditure arrears
Score
D+
Justification for score
Aggregation method (M1)
70
PI-22.1
PI-22.2
Stock of expenditure arrears
Expenditure arrears
monitoring
D
The stock of expenditure arrears was
more than 10% of total expenditure in
two of the three years 2013-15.
A
Data on the stock, age, and composition of
expenditure arrears is generated quarterly
within four weeks of the end of each
quarter.
PI-23 Payroll controls
This indicator is concerned with the payroll for public servants only: how it is managed, how
changes are handled, and how consistency with personnel records management is achieved.
Wages for casual labour and discretionary allowances that do not form part of the payroll
system are included in the assessment of non- salary internal controls, PI-25. This indicator
contains the following four dimensions and uses the M1 (WL) method for aggregating
dimension scores:
Dimension 23.1. Integration of payroll and personnel records (as at time of
assessment);
Dimension 23.2. Management of payroll changes (as at time of assessment);
Dimension 23.3. Internal control of payroll (as at time of assessment);
Dimension 23.4 Payroll audit (last three completed fiscal years).
PI-23.1 Integration of payroll and personnel records
The payroll management process includes several components:
i. Organizational structure – in accordance with Law No.
/
O Lo al “elfGo e
e t , A t.
, the Ma o has the ight to Appro e the orga izatio al
structure, the categories/classes of salaries for each civil service position and the basic
statutes of the municipal administration, municipal budgetary units, and institutions
o trolled
the u i ipalit , i a orda e ith the appli a le la . In accordance
with Art.54 (d) the Municipal Council has the right to Appro e the salar a d o us
payment rates for employees and other persons, elected or appointed, in accordance
ith the appli a le la . In Fier, a single payroll covers all 1300 employees.
Appointments and promotions are controlled by the Human Resources Directorate
(HRD), with appointments approved by the Mayor, and salary levels within the
nationally prescribed range are approved by the Municipal Council. About 385
employees belong to the central city administration, and the rest to the five
subordinated institutions.
ii. personnel information files – all the information is organized, updated and stored by
HRD exclusively. There have been no comprehensive internal audits of payroll, and the
first is scheduled for 2016;
iii. attendance list is prepared by each director monthly and is submitted to HRD;
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iv.
there is only one payroll prepared by the Finance Department based on the lists
provided the HRD (validated and confirmed by the Finance Department). Calculations
are made using simple excel sheets and payments are executed by the Treasury District
Office as are all other transactions.
Since there is full documentation of all changes to the payroll, and HRD has exclusive control
over personnel records, the score for this dimension is B.
PI-23.2 Management of payroll changes
HRD updates the payroll monthly. Salary increases based on the acquisition of new
qualifications are implemented from the day HRD are notified, and there have been no cases
of retroactive adjustments. Score: A
PI-23.3 Internal control of payroll
The separate roles of HRD and the Finance Directorate ensure that personnel records and
payroll data are reliably controlled, and only changed when properly authorised. Based on
the legal framework, changes to personnel and payroll data require a number of checks from
different bodies: the municipal council, the mayor, the HRD, the Finance Department, the
directorate under which the employee is employed, and the (central government)
Department of Public Administration for those employees vested with civil servant status. The
authority to change personnel records is restricted to the HRD; whenever there is a change
the process requires separate verification steps. The HRD is responsible for maintaining and
archiving all personnel records, including salary levels. The payroll is prepared on the basis of
the timesheets approved by all directorates who prepare their monthly timesheets for every
employee and submit them to the HRD. The HRD consolidates timesheets and prepares the
payroll that is then sent to the finance department. The finance department finalizes the
payroll which is paid through the treasury with the previous clearance from the executing and
authorizing officers. Score; B
PI-23.4 Payroll audit
High State Co t ol H“C hi h is Al a ia s “up e e Audit I stitutio audited the e pe ditu e
of Fier in 2013 and 2014. The audit included substantive testing of elements of the payroll.
HSC consider municipal payrolls relatively low risk, and did not find proble s. The it s
Internal Audit Department is currently engaged in a series of payroll audits, beginning with
the ate utilit hi h is to e i teg ated i to the it s udget e t ea
. It p e iousl
audited aspects of the staff management and payrolls of the former communes as they were
integrated into the city. This work can be seen as partial payroll audits, sufficient for the score
C.
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PI
PI-23
Indicator/Dimension
Payroll controls (M1)
Score
C+
PI-23.1
Integration of payroll and
personnel records
B
PI-23.2
Management of payroll
changes
A
PI-23.3
Internal control of payroll
B
PI-23.4
Payroll audit
C
Justification for score
Aggregation method (M1)
Changes in the payroll are initiated by
HRD on the basis of changes in personnel
records, but there are no automatic links
between them.
The payroll is updated monthly on
instructions from HRD. There have been
no retroactive adjustments.
Procedures in HRD and the Finance
Directorate provide sufficient assurance
of the integrity of personnel records and
payroll data.
‘e e t audit o k H“C a d the it s
Internal Audit Department constitute
partial payroll audits.
PI-24 Procurement
This indicator examines key aspects of procurement management. It focuses on transparency
of arrangements, emphasis on open and competitive procedures, monitoring of procurement
results, and access to appeal and redress arrangements. The indicator covers municipal
procurement operations only, assessed for the last completed fiscal year i.e. the fiscal year
2015. The indicator contains the following four dimensions and uses the M2 (AV) method for
aggregating dimension scores:
Dimension 24.1. Procurement monitoring
Dimension 24.2. Procurement methods
Dimension 24.3. Public access to procurement information
Dimension 24.4. Procurement complaints management
The procurement activity at national and sub-national level is regulated by Law No.
9643/2006 O Pu li Pro ure e t which has been amended almost 10 times. The
procurement law is generally in conformity with EU standards (Procurement Directive
2004/18), and with stringent requirements for the publication of information, and there is
provision for independent adjudication of procurement complaints. Open tendering should
be the default method for large procurements, and some form of competition should be
arranged unless there are special circumstances. Competing bids must all be registered
through the on-line e-procurement system. There appears, however, to be limited public trust
in the system, with criticisms that contracts may be fragmented in order to avoid tendering
procedures, that specifications are distorted to favour particular bidders, and that there is
unjustified use of contracts negotiated with a single supplier.
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PI-24.1 Procurement monitoring
In Fier a separate Directorate deals exclusively with procurement activity (with 5 employees).
Municipalities are required by 20 January each year to send their procurement plans prepared
consistently with recently approved budgets to the Public Procurement Agency (PPA), which
publishes them on its website within 30 days from receiving it. They are also registered by the
Treasury Office, which subsequently checks whether contracts registered and eventual
payment instructions are consistent with the procurement plans. The it s P o u e e t
Directorate keeps full records of all procurements of goods, services and works whatever the
costs, and publishes all procurement opportunities, including low value procurements which
do not require the full tendering procedure, on the PPA website. Subsequent contract awards
are published in the same way. Municipalities are further required to submit a report on the
p e ious ea s p o u e e ts to PPA
Ja ua ea h ea . The s o e fo this di e sio is
A.
PI-24.2 Procurement methods
Because of the shortage of funds for investment, relatively little procurement was undertaken
by Fier in 2015. Nine contracts were let above the threshold requiring some degree of
competition with a total value of 25.3 million ALL. A further 3.5 million ALL was spent on small
purchases below the threshold. Since nearly 87.8 per cent of contracts by value in 2015 were
placed in accordance with competitive procedures (requests for proposals, with a minimum
of three bidders), the score for this dimension is A.
PI-24.3 Public access to procurement information
This dimension reviews the level of public access to complete, reliable, and timely
procurement information at municipal level. It covers only procurement managed by the city.
The score for this dimension depends on how many of the following elements are made
available to the public:
1. Legal and regulatory framework for procurement - this is readily available from PPA
website www.app.gov.al;
2. Municipality procurement plans - in principle available on PPA website (but this lacks any
user-friendly search engine);
3. Bidding opportunities - available on PPA website (subject to the same qualification as (2);
4. Contract awards - available on PPA website, as for bidding opportunities;
5. Data on resolution of procurement complaints - published on the Public Procurement
Commission (PPC) website, but again this lacks a user-friendly search engine;
6. Annual procurement statistics - not published.
Since five of the six elements are published, score for this dimension is B.
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PI-24.4 Procurement complaints management
In this dimension the aim is to assess the existence and effectiveness of an independent
administrative complaint–resolution mechanism for municipal procurements. According to
the Albanian law, complaints must be registered with the Contracting Authority within seven
days of the complainant becoming aware of the circumstances, and if there is no response
within ten days may be submitted to the Public Procurement Commission (PPC). This
suspends the procurement process unless the PPC rules otherwise. PPC should give a decision
within 40 days, although it appears that this limit is exceeded in some 40 per cent of cases. A
considerable number of cases are referred to the PPC; Fier alone has had four cases in 2016,
one of which was determined in favour of the complainant who thereby secured a contract
for which his bid had initially been rejected. Complainants must pay a fee of 0.5 per cent of
the procurement amount, and possibly also other fees if the intervention is at an earlier stage
in the procedure.
The score for this dimension depends on how many of the following criteria for the operation
of the PPC are satisfied:
1. The procurement complaints are reviewed by a body which is not involved in procurement
transactions or in the process leading to contract awards decisions – satisfied;
2. The procurement complaints are reviewed by a body does not charge fees which prohibit
access by concerned parties - not satisfied, since significant costs may be incurred by
complainants;
3. The procurement complaints are reviewed by a body which follows processes for
submission and resolution of complaints that are clearly defined and publicly available –
satisfied;
4. The procurement complaints are reviewed by a body which exercises the authority to
suspend the procurement process – satisfied;
5. The procurement complaints are reviewed by a body which issues decisions within the
timeframe specified in the rules/regulations - not satisfied;
6. The procurement complaints are reviewed by a body which issues decisions that are
binding on all parties (without precluding subsequent access to an external higher
authority) - satisfied.
7. The procurement complaints are reviewed by a body which issues decisions that are
binding on all parties (without precluding subsequent access to an external higher
authority) - satisfied.
Since the first criterion and three of the others are satisfied, the score for this dimension is B.
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PI
PI-24
Indicator/Dimension
Procurement
Score
B+
PI-24.1
Procurement monitoring
A
PI-24.2
Procurement methods
A
PI-24.3
Public access to
procurement information
B
PI-24.4
Procurement complaints
management
B
Justification for score
Aggregation method (M2)
Full records are kept of all procurement
contracts, including what is procured,
the value, and the name of the
successful contractor.
Nearly 88 per cent by value of 2015
contracts were placed through the use
of competitive procedures.
Five of six elements of information are
published.
PPC satisfies the requirement for
independence and three of the other
five criteria.
PI-25 Internal controls on non-salary expenditure
This indicator measures the effectiveness of general internal controls for non - salary
expenditures. Specific expenditure controls on public service salaries are considered in PI-23.
This indicator contains the following three dimensions, scored at the time of assessment, and
uses the M2 (AV) method for aggregating dimension scores:
Dimension 25.1. Segregation of duties
Dimension 25.2. Effectiveness of expenditure commitment controls
Dimension 25.3. Compliance with payment rules and procedures
PI-25.1 Segregation of duties
The La No.
/
O Fi a ial Ma age e t a d Co t ol distinguishes the
responsibilities of the Authorising Officer and the Executing Officer, and prevents any single
individual from being responsible for proposal, approval, execution, accounting and control
of any commitment or transaction. The Law on the management of the budgetary system and
Instructions of the Ministry of Finance ensure that there is appropriate segregation of duties.
In Fier any proposal for expenditure will be initiated by the operational unit, and will require
the consent of the Finance Director and the Mayor in the capacity of executing and
authorizing officers. The operational unit will prepare plans and tender documents. The
tendering process will be managed by the separate Procurement Directorate. The team
evaluating bids is different from the team preparing the procurement documents. Any
contract will require the approval of the Mayor, who is the chief Authorising Officer. Payment
will be the responsibility of the operational unit, the finance directorate, authorising officer
and treasury district officials. Accounting and reporting is the responsibility of the operational
unit and the finance department. The signatures of both authorising and executing officers
are required for any commitment or payment instruction. Since these arrangements function
satisfactorily in the context of a (relatively small) city administration, although some standing
76
instructions may need updating following the municipal reorganisation, the score for this
dimension is B.
PI-25.2 Effectiveness of expenditure commitment controls
Expenditure commitment controls apply to all expenditure other than on the employment of
staff and the payment of benefits where administration has been delegated to the
municipality. Procurement plans have to be registered with the Treasury system at the
beginning of each year as well as with the PPA. Treasury confirmation of the availability of
funds is required under the Organic Budget Law (OBL) before any tendering process (for a one
year or multiyear contract) is launched. Thereafter contracts have to be registered when
placed, and would be rejected if incompatible with the plan, with the provision on the
relevant line in the approved budget, or with the cash flow projection, all of which are already
in the system. However, as municipalities do not regularly update projected budget and cash
availability (to which commitment limits are linked) following the actual revenue collection
performance, there are risks of incurring expenditure arrears, score for this dimension is C.
PI-25.3 Compliance with payment rules and procedures
All payments are made after checks and procedures from the operational unit, the finance
department, the authorising officer and the Treasury System, ensuring that any errors are
eliminated before payments are made. There was no sign of any payments being made
without complying with regular procedures. Score: A
PI
PI-25
Indicator/Dimension
Internal controls on nonsalary expenditure
Score
B
PI-25.1
Segregation of duties
B
PI-25.2
Effectiveness of expenditure
commitment controls
C
PI-25.3
Compliance with payment
rules and procedures
A
Justification for score
Aggregation Method M2.
Appropriately provided for in
accordance with the law on Financial
Management and Control, although
some local instructions may need review
following the municipal reorganisation.
Controls are in place and limit
commitments to projected cash
availability and approved budget
provision, but the latter are not updated
to reflect actual revenue performance.
The Treasury system ensures that all
payments are in accordance with
established rules and procedures.
77
PI-26 Internal audit
This indicator assesses the standards and procedures applied in internal audit function. It
covers all entities of the Municipality. It contains the following four dimensions and uses the
M1 (WL) method for aggregating dimension scores:
Dimension 26.1. Coverage of internal audit (as at time of assessment);
Dimension 26.2. Nature of audits and standards applied (as at time of assessment);
Dimension 26.3. Implementation of internal audits and reporting (last 12 months
budget cycle);
Dimension 26.4. Response to internal audits (audit reports issued during the last 3
years).
I te al audit IA i Al a ia is ased o the La No.
/
O I te al Auditi g i the
Pu li “e to
hi h i t odu ed some further refinements as compared with the previous
e sio La No.
/
O I te al Audit i the Pu li “e to . The la e ui es that IA
meets international standards in terms of professional independence of the structures,
sufficient access to information and power to report (breadth of mandate), and use of
professional audit methods (including risk assessment techniques). Work should be focused
on systemic issues related to the reliability and integrity of financial and operational
information, the efficiency and effectiveness of operations, the safeguarding of assets, and
compliance with laws, regulations and contracts. The head of the IA unit should report directly
to the Mayor, and (since 2015) work should be overseen by an independent Audit Committee
(this latter requirement introduced with Law No. 114/2015 appears not yet to be
operational). An annual report on IA activities should be made to the Central Harmonisation
Unit7 at the Ministry of Finance.
PI-26.1 Coverage of internal audit
In Fie i te al auditi g has ee ope atio al th oughout the it s u its, i ludi g the fo e
communes newly integrated into the city in 2015. A particular concern has been to ensure
the o e t ess of the fo e o
u es losi g fi a ial state e ts. The municipal
reorganisation and the election of a new Mayor required a revision of the audit plan. Seven
of ten planned audits were carried out, with two of the remainder undertaken by HSC. The
unit has three qualified staff, and considers that two further auditors are needed to achieve
sufficient coverage of the enlarged municipality: the Mayor has agreed to appoint one
additional auditor. The unit considers that it needs new capacity in order to be able to audit
IT-based systems, particularly the operation of e-procurement, in order to achieve internal
audit and management objectives. Because of the change of the audit plan from the territorial
reorganization, in 2015 audits were conducted in entities that covered only 50% of revenues
7
http://www.financa.gov.al/en/the-ministry/departments/general-regulatory-and-controllingdepartment/joint-reports-for-chu-fmc-and-chu-ia
78
and expenditures of the municipality. Given that audit coverage is incomplete, the score for
this dimension is C.
PI-26.2 Nature of audit and standards applied
In Fier work is carried out in accordance with professional standards, with particular attention
given to the operation of internal controls in high risk areas such as the circumstances of the
i teg atio of i e o
u es i to the it s ad i ist atio . It is diffi ult to o ga ise a full
effective quality assurance process in the context of a relatively small municipal operation.
Audit activities focused on financial compliance and effectiveness of internal controls.
Recommendations have been provided to develop and improve the internal regulations of
audited entities. On the four communes it was mostly financial compliance audit with
recommendations to improve accounting and financial reporting. Proposed score for this
dimension is B.
PI-26.3 Implementation of internal audits and reporting
There is an annual audit plan, which may be amended when there is a change of Mayor. Most
planned audits were completed in 2015 (with two taken over by HSC). Reports are sent to the
audited entity before submission to the Mayor, and also submitted to the Central
Harmonisation Unit at MoF. There appears to be good cooperation with HSC, although that
body does not automatically receive copies of reports. Score: B
PI-26.4 Response to internal audit
IA units are responsible also for monitoring the implementation of their recommendations.
According to the head of the IA unit, they have provided about 31 recommendations and
appropriate responses have been made to 20 of them within six months of the report being
produced whereas the other 11 are under implementation. However, some identified
deficiencies (absence of job descriptions, inadequate personnel records in the former
communes) may take time to remedy. The score for this dimension is B.
PI
PI-26
Indicator/Dimension
Internal audit
Score
C+
PI-26.1
Coverage of internal audit
C
PI-26.2
Nature of audits and
standards applied
B
Justification for score
Aggregation Method M1
IA is ope atio al i all the it s
departments, but coverage in 2015 was
limited. Resources need to be increased
to take account of the enlarged field
following the municipal reorganisation.
Audit meets professional standards and is
focused on the operation of systems in
high risk areas.
79
PI-26.3
Implementation of internal
audits and reporting
B
PI-26.4
Response to internal audit
B
Most planned audits are completed, with
reports sent to audited units before
submission to the Mayor.
Most recommendations are appropriately
addressed by responsible managers.
3.7 Pillar 6. Accounting and Reporting
PI-27 Financial data integrity
This indicator assesses the extent to which treasury bank accounts, suspense accounts, and
advance accounts are regularly reconciled and how the processes in place support the
integrity of financial data. It contains the following four dimensions and uses the M2 (AV)
method for aggregating dimension scores:
Dimension 27.1. Bank account reconciliation (as at time of assessment and for the
previous 12 months)
Dimension 27.2. Suspense accounts (as at time of assessment and for the previous 12
months)
Dimension 27.3. Advance accounts (as at time of assessment and for the previous 12
months)
Dimension 27.4. Financial data integrity processes (as at time of assessment)
PI-27.1 Bank account reconciliation
This dimension evaluates the timeliness and regularity of the reconciliation of bank accounts
under municipal control (where these are managed by the municipal treasury or its
e ui ale t . Based o the i fo atio p o ided
Fie offi ials, all the it s e e ue a d
expenditure pass through its accounts in the Treasury system, and there are monthly (discrete
and progressive) and annual reconciliations in aggregate and in detail at the 7 digit-level for
revenues and 3 digits for expenditures (following economic, administrative and functional
classification) between city and Treasury records. The score for this indicator is B.
PI-27.2 Suspense accounts
This dimension evaluates the timeliness and regularity of the reconciliation and clearance of
suspense accounts under municipal control. Suspense accounts are used temporarily to
register revenues not yet classified. In the case Fier, revenues received through the banking
system include the identity of the payer, but not always the nature of the payment, which has
to be reconciled manually o a o thl asis ith i fo atio held
the it s e e ue
Directorate. Score: A
PI-27.3 Advance accounts
80
No use is made of advance accounts, thus the score for this dimension is Not Applicable.
PI-27.4 Financial data integrity processes
The execution of all transactions through the Treasury system provides a substantial measure
of security for these operations. But the execution of many operations through stand-alone
IT systems (e.g. revenue and procurement) which are not consistently linked to the Treasury
system and to which access is not fully controlled, represents a significant risk. Action is now
being taken address this, for example by insisting on the retention of hard copies of revenue
receipts to ensure the maintenance of an audit trail for these operations. The score for this
dimension is D.
PI
PI-27
PI-27.1
Indicator/Dimension
Financial data integrity
Bank account
reconciliations
Score
B
B
PI-27.2
Suspense accounts
A
PI-27.3
Advance accounts
NA
PI-27.4
Financial data integrity
processes
D
Justification for score
Aggregation Method M2
There are monthly reconciliations between
city and Treasury records.
There are monthly reconciliations between
Treasury and revenue Directorate records
of individual payments.
No use is made of advance accounts.
Many operations are carried out through
unlinked IT systems to which access is not
restricted, and which do not ensure
adequate audit trails.
PI-28 In-year budget reports
This indicator assesses the comprehensiveness, accuracy and timeliness of information on
budget execution. In-year budget reports must be consistent with budget coverage and
classifications to allow monitoring of budget performance and, if necessary, timely use of
corrective measures. This indicator contains the following three dimensions, assessed on the
basis of the last 12 months budget cycle, and uses the M1 (WL) method for aggregating
dimension scores:
Dimension 28.1 Coverage and comparability of reports
Dimension 28.2 Timing of in-year budget reports
Dimension 28.3 Accuracy of in-year budget reports
PI-28.1 Coverage and comparability of reports
Monthly reports are made of budget execution prepared by the administration and sent for
information to the mayor. These reports are shared also with the Prefect. When asked they
are shared also with the municipal council. The reports are made with the same breakdown
by administrative unit, economic and functional classification as in the revised budget which
follows the same structure as the original budget. Quarterly and half-yearly reports are
81
prepared and shared with the Council. The reports are also shared on a quarterly basis with
the deconcentrated structures of INSTAT. Score: A
PI-28.2 Timing of in-year budget reports
Reports are produced within 5 working days of the end of each month. Score: A
PI-28.3 Accuracy of in-year budget reports
In year budget reports cover only payments and not commitments, and do not include
analysis of changes from the budget originally foreseen but instead from the revised budget.
Information regarding payment stages, revisions and re-allocation among budget programs
are not included in the document. The reliance on unlinked systems (see PI-27.4) undermines
the quality of some of the data. Score: C
PI
PI-28
Indicator/Dimension
In-year budget reports
Score
C+
PI-28.1
Coverage and
comparability of reports
A
PI-28.2
Timing of in-year
reports
A
PI-28.3
Accuracy of in-year
budget reports
C
Justification for score
Aggregation Method M1
Reports are produced with the same
breakdown by administrative unit and
economic nature as the original budget.
Reports are produced within 5 working
days of the end of each month.
Payments only are covered, not
commitments. There are serious concerns
about data accuracy.
PI-29 Annual financial reports
This indicator assesses the extent to which annual financial statements are complete, timely,
and consistent with generally accepted accounting principles and standards. This is crucial for
accountability and transparency in the PFM system. It contains the following three
dimensions and uses the M1 (WL) method for aggregating dimension scores:
Dimension 29.1 Completeness of annual financial reports (for last completed fiscal year);
Dimension 29.2 Submission of reports for external audit (last annual report submitted for
audit);
Di e sio
. A ou ti g sta da ds last th ee ea s fi a ial epo ts .
PI-29.1 Completeness of annual financial reports (M1)
Law No.
/
O Lo al “elf-Go e
e t , A t.
o the A ual ‘epo t p o ides that:
The head of the lo al self-government unit shall be responsible for submitting to the council
an annual written report about the financial activity and the implementation of the budget in
the local self-government unit and the subordinate institutions thereof. Such report shall be
su itted to the ou il o later tha Mar h 1 of the su eedi g ear. Annual financial
82
reports are made i a o da e ith the MoF s “ta da d I st u tio s o Budget E e utio
(2012), and include information on operating revenue and expenditure, cash balances, debt
and short-term liabilities8. The reports should follow the same format as the original budget,
ut o pa iso s a e o l gi e
ith the p e ious ea s out-turn. They include a cash flow
statement, assets, liabilities, changes in assets, depreciation, revenues and expenses, cash
flow and a table showing the fund utilization that shows funds to be carried over the coming
fiscal year; payment arrears and tax arrears, including a list of all non-compliant taxpayers
and a list of creditors to whom the municipality owes any amount. Because no comparison is
provided between the out-turn and the original budget, the score for this dimension is D.
PI-29.2 Submission of reports for external audit
There is no legal obligation in Albania to have an annual audit of financial statements by an
external auditor. Audits by HSC have generally been undertaken every second year; the 2015
audit covered expenditure in 2013 and 2014 and looked at the functioning of systems as well
as at compliance with applicable laws and regulations. But while it cannot be considered a
formal audit of financial statements, the HSC reviews and comments on them in the course
of its work. The score for this dimension is D.
PI-29.3 Accounting standards
Reports are produced in accordance with national accounting standards9, which are disclosed
and ensure comparability from one year to the next. But the standards are not in conformity
with International Public Sector Accounting Standards (IPSAS), and differences are not
explained. The score for this dimension is C.
PI
PI29
Indicator/Dimension
Annual financial
reports
Score
Justification for score
D+
Aggregation Method M1
Completeness of
PIannual financial
29.1
reports
D
Financial reports are prepared annually, and
include a cash flow statement. But they do not
provide for a comparison between the actual outturn and the originally approved budget.
Information about financial assets and liabilities is
incomplete.
PISubmission of reports
29.2 for external audit
D
Reports are not submitted for external audit.
PIAccounting standards
29.3
C
Standards are disclosed, and applied consistently
from year to year. But they are not consistent
with IPSAS, and differences are not explained.
Law No. 9928/2004, Art. 12 (Components of Financial statements) require that, “u je t to a e eptio s or
exemptions specified in national accounting standards, the financial statements of an entity shall include the
following documents: (i) balance sheet, (ii) income statement, (iii) statement of changes in equity, (iv) cash flow
statement, and (v) Notes to financial statements, containing disclosure of accounting policies, as well as other
explanatory material.
9
La No.
/
O A ou ti g a d Fi a ial “tate e ts .
8
83
3.8 Pillar 7. External Scrutiny and Audit
PI-30 External audit
This indicator examines the characteristics of external audit. It contains four dimensions,
covers all municipal government operations, and uses the M1 (WL) method for aggregating
dimension scores:
Dimension 30.1 Audit coverage and standards (last three completed fiscal years);
Dimension 30.2 Submission of audit reports to the legislature (last three completed
fiscal years);
Dimension 30.3 External audit follow-up (last three completed fiscal years);
Dimension 30.4 Supreme Audit Institution independence (as at time of assessment).
PI-30.1 Audit coverage and standards
The audit coverage and standards dimension refers to financial reports of the subnational
budgetary and extra budgetary institutions. The High State Control (HSC, the Supreme Audit
Institution) has a section of 25 auditors devoted to the audit of local governments. The
Municipality of Fier has been audited every two years, with the most recent audit in 2015
reviewing revenue and expenditure in 2013 and 2014. The work included both compliance
audit (testing transactions for compliance with applicable laws and regulations) and aspects
of the performance of systems (notably the poor performance of the revenue department in
collecting outstanding amounts of property taxes and fees). But it has not hitherto included
the provision of an Opinion on the annual financial statements, although reports make
comments on these. HSC makes recommendations for improving the way in which the legal
framework is applied, for making the administration more efficient, and for recovering the
economic damage resulting from administrative and other errors. It follows up the extent to
which its recommendations have been implemented as the first stage of its next audit. Since
the audit covered both 2013 and 2014, it can be considered that audit coverage exceeded 50
per cent for the period 2013-15, resulting in the score C.
PI-30.2 Submission of reports to the Municipal Council
Audit Reports for the Municipality of Fier have not been submitted to the Municipal Council,
so the score for this dimension is D.
PI-30.3 External audit follow-up
It is up to the Mayor and the city administration to follow up the HSC recommendations,
although they are published on the HSC website. In the course of its 2015 audit, HSC found
84
cases where the recommendations of its previous audit had not been implemented; the
necessary action should have been taken by June 2016. (The city administration noted that
the H“C s e o
e datio s did ot take i to a ou t the it s li ited esou es fo thei
i ple e tatio ; fo e a ple, the e o
e datio to egiste all the it s p ope t in the
national register, in order to facilitate their exploitation, could only be achieved over a
number of years, given the costs and administrative procedures required.) Since it appears
that the municipality makes some response to the audit recommendations, and implements
some of them, the score for this dimension is C.
PI-30.4 HSC independence
HSC operates independently from the central government in the conduct of its work and the
execution of its budget (mandate and organization are established and protected by the
Constitution of the Republic of Albania). The head of HSC is appointed by the National
Assembly on the proposal by the President of the Republic for a 7-year term. Although the
audit la p o ides fo H“C s udget to e set
the Natio al Assembly, in practice HSC is
constrained within expenditure ceilings set by the Government. HSC has unrestricted access
to records and information. Score: C
PI
PI-30
PI-30.1
Indicator/Dimension
External audit
Audit coverage and
standards
Score
D+
C
PI-30.2
Submission of audit
reports to the legislature
D
PI-30.3
External audit follow-up
C
PI-30.4
Supreme Audit Institution
independence
C
Justification for score
Aggregation Method M1
Audit coverage exceeds 50%, and
international standards are observed.
H“C s audit epo ts of the
Municipality of Fier are not
submitted to the Municipal Council.
A formal response was made by the
executive or the audited entity on
audits for which follow up was
expected, during the last three
completed fiscal years.
The HSC has its functional and
operational independence, and its
Head is appointed for a 7-year term
by the National Assembly on the
proposal of the President of the
Republic. It has unrestricted and
timely access to records,
documentation and information, but
its budget is constrained within
expenditure ceilings set by the
Government.
85
PI-31 Legislative scrutiny of audit reports
This indicator focuses on local legislative scrutiny of the audited financial reports of the
municipality, including institutional units, to the extent that either (a) they are required by
law to submit audit reports to the Council or (b) their parent or controlling unit must answer
questions and take action on their behalf. It has the following four dimensions, which are
assessed on the last three completed fiscal years, and uses the M2 (AV) method for
aggregating dimension scores:
Dimension 31.1 Timing of audit report scrutiny;
Dimension 31.2 Hearings on audit findings;
Dimension 31.3 Recommendations on audit by legislature;
Dimension 31.4 Transparency of legislative scrutiny of audit reports;
PI-31.1 Timing of audit report scrutiny
Audit reports have not been submitted to the Municipal Council by the Mayor, and the
Municipal Council has taken no initiative to discuss them, although the recommendations are
published on the HSC website. This is a matter of regret for HSC. Score: D
PI-31.2 Hearings on audit findings
Since the reports have not been submitted to or discussed by the Municipal Council, there
has been no question of hearings to consider audit findings. Score: NA
PI-31.3 Recommendations on audit by the legislature
Since the Municipal Council has not considered the reports, the question of recommendations
in the light of them does not arise. Score: NA
PI-31.4 Transparency of legislative scrutiny of audit reports
While the public are admitted to Municipal Council meetings where the budget or the budget
execution report are discussed, there have been no occasions when the Municipal Council
discussed audit reports, so again the dimension is Not Applicable.
PI
PI-31
Indicator/Dimension
Council scrutiny of audit reports
PI-31.1 Timing of audit report scrutiny
PI-31.2 Hearings on audit findings
Recommendations on audit by
PI-31.3
the Council
Transparency of Council scrutiny
PI-31.4
of audit reports
Score Justification for score
D
Aggregation Method M2
The Council has not discussed any
D
audit reports.
NA No hearings have taken place.
The Council has not discussed any
NA
audit reports.
NA
There has been no scrutiny.
86
Chapter 4 Conclusions on the analysis of PFM systems
4.1 Integrated analysis of PFM performance
The findings from the assessments of each Indicator are summarised in terms of each of the
seven pillars of the PFM performance measurement framework.
4.1.1 Reliability of the Budget
Because much of the funding from central government is not notified to the municipality
before the budget for the following year has to be set, original budgets give an incomplete
pi tu e of the u i ipalit s ope atio s (PI-1). Nevertheless broadly consistent figures have
been compiled for original budgets and out-turns linked to them broken down by
administrative, functional and economic classifications, so enabling variance calculations to
be made (PI-2.1 and 2.2). Expenditure net of conditional grants was well below plan each
year, reflecting the fact that own revenues fell substantially short (PIs 1 and 3). There were
substantial variances in revenue collection, mainly reflecting deviations from forecasts of
amounts of infrastructure impact tax, the small business tax, local service fees, and other
revenues. Once determined, amounts of central government grants, conditional and
unconditional, were in the main actually paid according to a predetermined schedule (HLG1). Very little expenditure was charged to contingency and reserve funds, so the functional
allocation of the expenditure out-turn should be reliable.
4.1.2 Transparency of public finances
3. The Treasury system through which all municipal revenue and expenditure pass should
contain enough information about each transaction to make possible consistent comparisons
of budget and out-turn by reference to administrative, economic and functional (the 10 main
COFOG functions) classifications. But neither municipal nor Treasury sources retain the
necessary information in a way which makes such comparisons readily accessible (PI-4). The
budget information presented to the Council is fairly comprehensive (PI-5), but the
information available to the general public (PI-9) is incomplete. Conditional grants excluded
f o the u i ipalit s o igi al udgets a d e pe ditu e fi a ed f o the a e full
reported (PI-6). No standards have been set for the delivery of public services, and there has
been no consistent reporting on actual service delivery; no independent reports have been
made about public service performance (PI-8). Apart from the water utility there are no
ope atio s u de the it s o t ol hi h a e ot epo ted as pa t of the udget PI-6), and
no subordinate government units (PI-7).
87
4.1.3 Management of assets and liabilities
Fie has e ei ed p o pt audit epo ts f o the ate utilit it o s. The it s Fi a e
Director sits on the management board of the utility, whose operations are to be integrated
into the city budget for 2017. The city has no shareholdings in other industrial or commercial
enterprises (PI-10, PI-12). The city has a Strategic Development Plan within which it plans its
infrastructure investment projects, and has appropriate arrangements for the preparation
and execution of projects, but project selection is in practice dependant on the central
government through the Regional Development Fund outside the it s udget p o ess PI11). Fier has a register of the land and buildings it owns, but there is no recent valuation of
the assets, and they are not recorded in the national property register in the way needed for
their most effective exploitation. Asset disposals require the approval of the Council, and are
done by public auction (PI-12). Apart from expenditure arrears, the city currently has no
debts, although the sewage works currently being undertaken by the water utility are
financed by an external loan channelled through the central government; for the time being
the question of debt management does not arise (PI-13).
4.1.4 Policy-based fiscal strategy and budgeting
In Albania municipal budget planning lacks substance because a substantial part of the budget
is determined by central government through the Regional Development Fund, and cannot
be planned locally. That said, aggregate forecasts of those elements of revenue and
expenditure which can be predicted by the city, together with the budget balance, are
produced for the three years ahead (PI-14.2). There are also detailed medium-term
projections of revenue and expenditure allowing for any local initiatives in terms of tax or fee
rates, and any clear decisions about future current expenditure on the services which can be
financed from own revenues and unconditional grants (PI-15.1 and 16.1). The provision of
medium-term projections of balanced budgets represents a sort of fiscal strategy (PI-15.2),
but there has been no analysis of the reasons for changes between one year and the next (PI15.3). The formal processes to produce medium-term revenue and expenditure projections
are undertaken, but because of the impossibility of overall budget planning the results have
little foundation in reality (PI-16). Budget preparation is orderly, so far as it goes, although the
officials concerned may have less than 4 weeks between receipt of the final budget Circular
and the deadline for submissions (PI-17). The Cou il s p o edu es are sufficiently
established, and the budget normally approved before the beginning of the year to which it
relates (PI-18).
4.1.5 Predictability and control in budget execution
Own revenue-raising is seriously deficient. There is inadequate control over amounts owing,
particularly by households, and considerable uncertainty about registries of property and
88
taxpayers (PI-19). The refusal by the national registry of property to exchange information
with municipal revenue departments constitutes an important obstacle to the compilation of
full records of property which should be liable to tax. Aggregate revenues are reported and
reconciled monthly. But there are no automatic reconciliations at the level of the individual
tax- or fee-payer through municipal IT systems and the Treasury System (PI-20). All cash
ala es a e o solidated i the it s a ou t i the T easu s ste , a d a cash flow
forecast is made at the beginning of the year and updated to take account of receipts of
conditional grants (but not reviewed in the light of actual revenue performance). City
departments in principle ha e th ee o ths oti e of ash a aila ility, in line with the
scheduled receipt of central government grants, but revenue shortfalls undermine these
expectations. Budgets are amended to take account of some but not all such grants (PI-21).
There are significant expenditure arrears following the municipal reorganisation; the city has
their amounts and ages, but some are inadequately documented (PI-22).
Payroll controls appear adequate, with changes to the payroll made only when authorised by
the Human Resources Directorate, and monthly updating avoiding any need for retroactive
adjustments. The external auditor (High State Control) considers payroll control systems to
be relatively strong, although audit coverage has been relatively limited (PI-23). The centrally
prescribed aspects of the procurement system appear satisfactory (PI-24) and contracts are
let by competition. The law on Financial Management and Control and the actual division of
responsibilities in the municipal administration should ensure sufficient segregation of duties,
with the signatures of both authorising and executing officers required for all commitments
and payments. As to commitments, the requirement to register procurement plans and
contracts in the Treasury system should prevent the future accumulation of expenditure
arrears, and there are no signs of irregularity in the actual payment process (PI-25). Internal
audit has been functioning effectively, although it needs more resources to respond to the
new situation consequent on the absorption of nine former communes into the city (PI-26).
4.1.6 Accounting and reporting
8. Bank reconciliations are made daily and monthly, and revenue suspense accounts cleared
monthly. But the reliance on unlinked electronic systems without consistent controls over
access to the systems implies a serious risk to the quality of financial data (PI-27). In-year
budget executions reports are made monthly, but the reports cover payments only, and not
commitments (PI-28). Annual financial reports provide only limited information, and do not
include a comparison with the original budget for the year in question. The reports are not
submitted for external audit each year; while accounting standards are consistent from year
to year, divergences from international standards are not explained (PI-29).
89
4.1.7 External scrutiny and audit
. The it s a ual fi a ial epo ts ha e ot ee audited ea h ea
High “tate Co t ol
H“C o a othe e te al audito . The H“C s biennal reports which are published on the HSC
website, have not been submitted to, or reviewed by, the Council, although responses are
made to some of the recommendations by the city administration.
4.2 Effectiveness of the internal control framework
The internal control system should contribute towards four objectives: (i) the execution of
operations in an orderly, ethical, economical, efficient and effective manner; (ii) fulfilment of
accountability obligations; (iii) compliance with applicable laws and regulations; and (iv)
safeguarding of resources against loss, misuse and damage. The analysis of the performance
of the internal control system looks at the five internal control components: (1) the control
environment; (2) risk assessment; (3) control activities; (iv) information and communication;
and (5) monitoring. Annex 2 sets out specific observations relevant to the performance of
internal controls.
The control environment depends on the legal and regulatory framework, and the way it is
applied in practice. The Organic Budget Law (2008 as updated in June 2016), the law on
Financial Management and Control (2010) and the High State Control law (2015) set out the
overall framework for internal control across government. Specific laws on public
procurement (2006) and internal audit (2015) apply across central and local government,
hile u i ipalities a ti ities a e egulated the la o Lo al “elf Go e
e t
, the
law on the System of Local Taxes (2006) and the law on Local Government Borrowing (2008).
In the local government context the performance of the municipality will depend on the
integrity of the management and staff, the management style of the organisation, the
organisational structure (including appropriate segregation of duties and reporting
arrangements), the management of human resources, and the professional skills of the staff.
It is the responsibility of the Mayor to set the tone of the municipal organisation, and to adopt
a strategy to minimise the risks of damage to the provision of good services.
The main risks faced by Fier are that revenue from the Municipality own taxes and fees will
not be collected, that expected revenue-producing developments will not take place, and that
procurements will not secure best value. A continued focus on maximising local revenues will
be important in sustaining the local services which are the responsibility of the municipality.
The internal controls within the municipal administration appear to work reasonably well.
Internal audit functions effectively, although more resources are required to meet the
challenges posed by the integration of nine communes into the city. External audit has
90
provided regular reports on compliance with applicable laws and regulations, although this
has not covered the annual financial statements.
The municipal website contains some information about the municipality s fi a ial
management, although there remain important gaps in what is published. The problems for
medium-te pla i g esulti g f o the e t al go e
e t s failu e to p o ide fu ds o a
predictable basis beyond the current year cannot be resolved by any action by the
municipality. Little attention has so far been paid to monitoring the performance of the
municipal service delivery.
4.3 PFM strengths and weaknesses
4.3.1 Aggregate financial discipline
15. The restraints on borrowing, and the requirement to balance the budget mean that the
risks of uncontrolled overspending are low. Overoptimistic budget forecasts coupled with the
i diffe e t pe fo a e of the it s o
e e ue olle tio esults i possi le eeds to ut
back on normal service delivery in order to avoid expenditure arrears.
4.3.2 Strategic allocation of resources
16. Although the Municipality of Fier has a strategic development plan within which it seeks
to plan the investments necessary for its economic and social development, the absence of
any assured funding for investment from central government largely prevents the
municipality from implementing any medium-term prioritising its allocation of resources. A
more predictable basis for the distribution of central government funds is needed, which
would enable the Fier municipality to manage improvements in its infrastructure more
efficiently. At the same time increased attention would need to be paid to the planning of
investments, so as to ensure that priority was given to projects which yield the greatest
economic and social benefit from available funding. The nationally imposed limit on the
potential revenues from annual property taxes, even if all such revenues could actually be
collected, restricts the range and level of services the municipality can provide.
4.3.3 Efficient use of resources for service delivery
17. The recent municipal reorganisation presents a challenge to all the new municipalities to
adapt their organisations so as to provide services efficiently throughout their enlarged
territories. This is only likely to be achieved over a period of time, and will be constrained by
the availability of staff with the necessary qualifications and experience. Much of the recent
activity of the municipality s i te al audit u it has had to e de oted to e su i g the e is a
sound basis for future financial reporting, taking into account the closure of the books of the
former communes now integrated into the city. Recent changes in the responsibilities
91
allocated to municipalities for the delivery of particular services represent a further challenge
to the municipal organisation. The continuing shortage of resources resulting from the limited
potential of local revenue sources, and limits on unconditional grants, constitute a spur to
making the best of a difficult situation; but living from hand to mouth is not really compatible
with longer term efficient planning. Criticisms by HSC of the fragmentation of contracts and
the inadequacies of technical specifications suggest that best value may not be achieved.
Little attention has so far been paid to establishing and reporting on the standards of services
to be delivered.
92
Chapter 5 Government PFM reform process
5.1 Approach to PFM reform
In Albania, the Ministry of Finance takes the lead in seeking improvements in PFM, notably
through the institution of medium-term fiscal planning throughout central and local
government, and through the development of Public Internal Financial Control (PIFC) to the
sta da ds e ui ed fo e e ship of the Eu opea U io . The Go e
e t s De e e
2014 PFM Strategy looked to achieve a prudent macroeconomic framework in which
expenditure arrears would be paid off and the public debt/GDP on a downward trend;
effective commitment controls as part of an enhanced financial control system which also
includes well-functioning internal audit; effective medium-term fiscal planning;
improvements in revenue collection and public procurement; and increased transparency
combined with better accountability mechanisms. Although these improvements mainly look
to the central government, in principle they apply also at the municipal level.
So far as initiatives at municipal level are concerned, the 2015 territorial reorganisation was
followed by the December 2015 new law on Local Self-Government which specifies the
(enlarged) functions and competences of the reconstituted municipalities. MoF is currently
(December 2016) working on a new law on Local Finances which will (1) strengthen financial
discipline and regularise budget planning and internal control procedures; (2) fix the formula
governing the distribution of unconditional grants, and determine other aspects of relations
between central and municipal governments; (3) establish criteria for the management of
current and capital expenditure, also covering accountability and transparency; and (4)
prescribe the role of MoF. Meanwhile municipalities are required to report annually to the
Central Harmonisation Unit at MoF on their performance in terms of internal financial control
and internal audit.
5.2 Institutional considerations
As is clear from the preceding analysis, improvements in the PFM performance of Albanian
municipalities are crucially dependent on expanding municipal revenue sources and
establishing arrangements for the predictable flow of central government grants (conditional
and unconditional) to municipalities, so that they are enabled to make realistic medium-term
fiscal plans covering their investment as well as their current expenditures.
93
Annex 1. Performance Indicator Summary
PI
HLG-1
Indicator/Dimension
Predictability of transfers
from Higher Level
Government (M1)
Score Justification for score
HLG-1.1
Difference between planned
and actual transfers
B
HLG-1.2
Grant composition variance
C
HLG-1.3
In-year timeliness of transfers
from central government
A
PI-1
Aggregate expenditure outturn (M1)
D
C+
Unconditional transfers were paid in full, but
the full amounts of conditional transfers were
not paid.
Variance in conditional transfers was more
than 5% in two of the three years 2013-15.
A quarterly disbursement plan for
unconditional grants is prepared by MoF, and
implemented as scheduled. Delays in the
payment of shared taxes and conditional
grants were of minor significance.
Actual expenditure fell more than 15% short
of budget In each of the three years 20132015.
PI-3
Expenditure composition
out-turn (M1)
Expenditure composition outturn by function
Expenditure composition by
economic classification
Expenditure from
contingency reserves
Revenue out-turn
PI-3.1
Aggregate revenue out-turn
D
PI-3.2
Revenue composition outturn
D
PI-4
Budget classification (M1)
C
PI-5
Budget documentation (M1)
B
PI-6
Operations outside financial
reports (M2)
A
Scoring Method M2
PI-6.1
Expenditure outside financial
reports
A
All expenditure, including conditional grants
not included in the original budget, is fully
reported.
PI-2
PI-2.1
PI-2.2
PI-2.3
D+
D
D
A
D
The variance was less than 15% in only one of
the three years 2013-15.
The variances were more than 15% in all
three years.
The average amount charged to contingency
was 0.67% of total expenditure in 2013-15
Aggregation Method M2
Own source revenue was less than 92% of
budget in all three years 2013-15. Despite the
facts that data for 2013 - 2014 represent the
pre-TAR municipality and that 2015 data is
not completely comparable due to TAR, the
differences are so significant that a score can
be assigned with confidence.
Variance in revenue composition exceeded
15% in all three years 2013-15.
The 2015 budget classifications and Chart of
Accounts are based on economic and
administrative classification but consistent
comparisons between budget and out-turn
require additional efforts.
Four basic elements, and five others, are
satisfied.
94
All revenue, including amounts of conditional
grants excluded from the original budget, is
fully reported.
PI-6.2
Revenue outside financial
reports
A
PI-6.3
Financial reports of extrabudgetary units
NA
There are no extra-budgetary units
PI-7
Transfers to lower tier
governments (M2)
NA
Since there are no government units
subordinate to the city of Fier, this Indicator
is Not Applicable.
D+
Aggregation Method M2
PI-8
PI-8.1
PI-8.2
PI-8.3
PI-8.4
Performance information for
service delivery
Performance plans for service
delivery
Performance achieved for
service delivery
Resources received by Service
delivery units (SDUs)
Performance evaluation for
service delivery
D
D
B
D
PI-9
Public access to fiscal
information (M1)
D
PI-10
Fiscal risk reporting
A
PI-10.1
Monitoring of public
corporations
A
PI-10.2
Monitoring of subordinate
governments
No plans are published at any frequency
about the levels of service to be provided.
Reporting of service levels achieved against
targets is not yet established.
Reports have been produced about resources
received by individual SDUs.
No reports have been produced about the
resources received by individual SDUs.
Only one out of the five applicable basic
elements are satisfied.
Aggregation Method M2
The water utility has submitted audited
annual financial reports within 6 months of
year-end.
NA
Not applicable at municipal level
PI-10.3
Contingent liabilities and
other fiscal risks
NA
Fier has not guaranteed any borrowing by
subordinate institutions, or participated in
any PPP operations.
PI-11
Public investment
management
D+
Aggregation Method M2
PI-11.2
Economic analysis of
investment proposals
C
PI-11.2
Investment project selection
C
PI-11.3
Investment project costing
D
PI-11.4
Investment project
monitoring
C
PI-12
Public asset management
C
PI-12.1
Financial asset management
D
Projects are put forward to central
government taking into account some
analysis of the costs and the likely
beneficiaries.
Prior to their inclusion in the budget, some of
the major investment projects are prioritized
by a central entity. Most projects are selected
by central government through the RDF.
Decisions on project implementation are
generally taken after municipal budgets have
been set, with no information in budget
documentation about the total capital costs
of projects.
Project implementation is regularly
monitored by the Public Works Directorate,
but the reports are not published.
Aggregation Method M2
Data in the unpublished financial statements
about revenue arrears is very uncertain.
95
PI-12.2
Non-financial asset
management
C
PI-12.3
Transparency of asset
disposal
B
PI-13
PI-13.1
PI-13.2
PI-13.3
PI-14
Debt management
Debt recording and reporting
Approval of debt and
guarantees
Debt management strategy
Macro-economic and fiscal
forecasting
PI-14.1
Macroeconomic forecasts
PI-14.2
Fiscal forecasts
PI-14.3
PI-15
Macro-fiscal sensitivity
analysis
Fiscal strategy
There is a register of fixed assets, but it is not
published.
There are procedures regulating asset
disposals, and reports contain partial
information on disposals.
A
NA
Fier has not contracted any debts
A
All borrowing is controlled by MoF
NU
B
NU
B
Excluded by terms of reference
Aggregation Method M2
Excluded by the terms of reference for the
assessment.
The city administration prepares forecasts of
the main fiscal indicators, including
underlying assumptions, revenues (by type),
aggregate expenditure, and the budget
balance, for the budget year and two
following fiscal years. These projections are
submitted to the Council and published, but
there are no explanations of differences from
previous projections.
NU
As 14.1
B+
Aggregation Method M2
MTBF includes estimates of revenue and
expenditure, taking account of any changes in
policy. But most investment is excluded.
Balanced budgets represent a kind of fiscal
strategy. But there are no qualitative
objectives associated with it.
No explanations have been given for
diffe e es et ee o e ea s MTBF a d
that for the following year.
PI-15.1
Fiscal impact of policy
proposals
A
PI-15.2
Fiscal strategy adoption
B
PI-15.3
Reporting on fiscal outcomes
D
PI-16
Medium-term perspective in
expenditure budgeting
B
PI-16.1
Medium-term expenditure
estimates
B
PI-16.2
Medium-term expenditure
ceilings
A
PI-16.3
Alignment of strategic plans
and medium-term budgets
D
PI-16.4
Consistency of budgets with
p e ious ea s esti ates
NA
Aggregation Method M2
Revenue and expenditure projections for the
following three years based on administrative
and economic classifications are submitted to
the Council.
Ceilings for each of the three next years are
issued to each administrative unit at the start
of the MTBF process.
The unpredictability of investment financing
precludes the preparation of strategic plans
which can be executed over a specified time
period.
There has as yet been no opportunity to
e plai ha ges f o a p e ious ea s MTBF
since the 2015 municipal reorganisation.
96
PI-17
Budget preparation process
C+
PI-17.1
Budget calendar
C
PI-17.2
Guidance on budget
preparation
A
PI-17.3
Budget submission to the
Council
D
PI-18
Legislative scrutiny of
Budgets
C+
PI-18.1
Scope of budget scrutiny
A
PI-18.2
Council procedures for
budget scrutiny
A
PI-18.3
Timing of budget approval
B
PI-18.4
Rules for budget adjustment
by the executive
C
PI-19
Revenue administration
D+
PI-19.1
Rights and obligations for
revenue measures
B
PI-19.2
Revenue risk management
C
PI-19.3
Revenue audit and
investigation
D
PI-19.4
Revenue arrears monitoring
D*
PI-20
Accounting for revenue
D+
PI-20.1
Information on revenue
collections
A
PI-20.2
Transfer of revenue
collections
D
PI-20.3
Revenue accounts
reconciliation
D
PI-21
PI-21.1
Predictability of in-year
resource allocation
Consolidation of cash
balances
Aggregation Method M2
There is a clear budget calendar, but
administrative units have less than four
weeks to prepare their final submissions.
Expenditure ceilings are issued to
administrative units at each stage of the
MTBF and budget preparation process.
For the 2014-16 budgets proposals have been
sent to the Council only one week before the
plenary session which approved them.
Aggregation Method M1
The Council considers the MTBF before the
budget is submitted.
Procedures are well-established, including
public consultation and review by a specialist
committee.
Budget has been approved before the
beginning of the new fiscal year for two of
the three fiscal years considered.
Although budgets have been adjusted in
response to the provision of conditional
grants for investment, RDF grants have not
been included in these arrangements.
Aggregation Method M2
Tax and fee payers have ready access to
information on obligations, and procedures
exist for appeals.
The main focus of collection effort is on
business taxpayers who contribute the
largest share of revenue.
There is no systematic approach to the
investigation of non-payment of households.
No data are available about the nature,
amounts and ages of revenue arrears.
Aggregation Method M1
Information is available daily about the
nature and amounts of receipts, and reports
are made.
All revenue collected by municipal
departments is paid immediately into the
it s a ou ts i the T easu s ste , ut
revenue collected by the water company is
paid into the Treasury accounts monthly.
Reconciliations do not establish total
amounts outstanding or the amounts owed
by individual tax and fee payers.
C+
Aggregation Method M2
A
All ala es a e held i the it s T easu
account.
97
PI-21.2
Cash forecasting and
monitoring
C
PI-21.3
Information on commitment
ceilings
D
A cash flow forecast is prepared at the
beginning of the year, and may be updated to
take account of the prospective availability of
conditional grants but not revenue trends.
Administrative units have little assurance that
funds will be available to meet planned
expenditures.
Budgets are adjusted to take into account the
prospective availability of conditional grants.
Aggregation Method M1
The stock of expenditure arrears was more
than 10% of total expenditure in two of the
three years 2013-15.
Data on the stock, age, and composition of
expenditure arrears is generated quarterly
within four weeks of the end of each quarter.
Aggregation Method M1
Changes in the payroll are initiated by HRD on
the basis of changes in personnel records, but
there are no automatic links between them.
The payroll is updated monthly on
instructions from HRD. There have been no
retroactive adjustments.
Procedures in HRD and the Finance
Directorate provide sufficient assurance of
the integrity of personnel records and payroll
data.
‘e e t audit o k H“C a d the it s
Internal Audit Department constitute partial
payroll audits.
Aggregation Method M2
Full records are kept of all procurement
contracts, including what is procured, the
value, and the name of the successful
contractor.
Nearly 88 per cent by value of 2015 contracts
were placed through the use of competitive
procedures, although the total amount was
small.
Five of six elements of information are
published.
PPC satisfies the requirement for
independence and three of the other five
criteria.
PI-22
Significance of in-year budget
adjustments
Expenditure arrears
D+
PI-22.1
Stock of expenditure arrears
D
PI-22.2
Expenditure arrears
monitoring
A
PI-23
Payroll controls
C+
PI-23.1
Integration of payroll and
personnel records
B
PI-23.2
Management of payroll
changes
A
PI-23.3
Internal control of payroll
B
PI-23.4
Payroll audit
C
PI-24
PI-24 Procurement
B+
PI-24.1
Procurement monitoring
A
PI-24.2
Procurement methods
A
PI-24.3
Public access to procurement
information
B
PI-24.4
Procurement complaints
management
B
PI-25
Internal controls on nonsalary expenditure
B
Aggregation Method M2
B
Appropriately provided for in accordance
with the law on Financial Management and
Control, although some local instructions may
need review following the municipal
reorganisation.
PI-21.4
PI-25.1
Segregation of duties
C
98
PI-25.2
Effectiveness of expenditure
commitment controls
C
PI-25.3
Compliance with payment
rules and procedures
A
PI-26
Internal audit
C+
PI-26.1
Coverage of internal audit (IA)
C
PI-26.2
Nature of audits and
standards applied
B
PI-26.3
Implementation of audits and
reporting
B
PI-26.4
Response to internal audits
B
PI-27
Financial data integrity
B
PI-27.
Bank account reconciliations
B
PI-27.2
Suspense accounts
B
PI-27.3
Advance accounts
NA
PI-27.4
Financial data integrity
processes
D
PI-28
In-year budget reports (M1)
C+
PI-28.1
Coverage and comparability
of reports
A
PI-28.2
Timing of in-year reports
A
PI-28.3
Accuracy of in-year budget
reports
C
PI-29
Annual financial reports
D+
PI-29.1
Completeness of annual
financial reports
D
PI-29.2
Submission of reports for
external audit
D
Controls are in place which should limit
commitments to projected cash availability
and approved budget provision, but these are
not updated to reflect actual revenue
performance.
The Treasury system ensures that all
payments are in accordance with established
rules and procedures.
Aggregation Method M1
IA is ope atio al i all the it s depa t e ts,
but coverage in 2015 was limited. Resources
need to be increased to take account of the
enlarged field following the municipal
reorganisation.
Audit meets professional standards and is
focused on the operation of systems in high
risk areas.
Most planned audits are completed, with
reports sent to audited units before
submission to the Mayor.
Most recommendations are appropriately
addressed by responsible managers.
Aggregation Method M2
There are monthly reconciliations between
city and Treasury records.
There are monthly reconciliations between
Treasury and revenue Directorate records of
individual payments.
No use is made of advance accounts.
Many operations are carried out through
unlinked IT systems to which access is not
restricted, and which do not ensure adequate
audit trails.
Aggregation Method M1
Reports are produced with the same
breakdown by administrative unit and
economic nature as the original budget.
Reports are produced within 5 working days
of the end of each month.
Payments only are covered, not
commitments. There are serious concerns
about data accuracy.
Aggregation Method M1
Financial reports are prepared annually but
no comparison is provided with the originally
approved budget. Information about financial
assets and liabilities is incomplete, and there
is no cash flow statement.
Reports are not submitted for external audit.
99
PI-29.3
Accounting standards
PI-30
External audit
PI-30.1
Audit coverage and standards
C
PI-30.2
Submission of reports to the
to the legislature
D
PI-30.3
External audit follow-up
C
PI-30.4
Supreme Audit Institution
(SAI) independence
C
PI-31
PI-31.1
PI-31.2
PI-31.3
PI-31.4
Legislative scrutiny of audit
reports
Timing of audit report
scrutiny
Hearings on audit findings
Recommendations on audit
by the legislature
Transparency of legislative
scrutiny of audit reports
C
D+
D
D
NA
NA
NA
Standards are disclosed, and applied
consistently from year to year. But they are
not consistent with IPSAS, and differences are
not explained.
Aggregation Method M1
Since the audit covered both 2013 and 2014,
it can be considered that audit coverage
exceeded 50 per cent for the period 2013-15.
H“C s audit epo ts of the Mu i ipalit of Fie
are not submitted to the Municipal Council.
A formal response was made by the executive
or the audited entity on audits for which
follow up was expected, during the last three
completed fiscal years.
The HSC has its functional and operational
independence, and its Head is appointed for
a 7-year term by the National Assembly on
the proposal of the President of the Republic.
It has unrestricted and timely access to
records, documentation and information, but
its budget is constrained within expenditure
ceilings set by the Government.
Aggregation Method M2
The Council has not discussed any audit
reports.
No hearings have taken place.
The Council has not discussed any audit
reports.
There has been no scrutiny.
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Annex 2. Summary of observations on the Internal Control Framework
Internal control components and
elements
1. Control environment
1.1 The personal and professional
integrity and ethical values of
management and staff, including a
supportive attitude towards internal
control constantly throughout the
organisation.
1.2 Commitment to competence
. The to e at the top
1.4 Organisation structure
1.5 Human
practices
resources
policies
2. Risk assessment
2.1 Risk identification
2.2 Risk assessment
2.3 Risk evaluation
2.4 Risk appetite assessment
2.5 Responses to risk
Summary of observations
The attitude of the organisation towards
internal control depends heavily on the
leadership of the Mayor. The fact that internal
audit has been functioning in Fier for 10 years
is an indication that attention has been paid to
internal control.
The city employs staff with appropriate
professional qualifications.
A new Mayor has only recently taken office.
The head of the Internal Audit unit reports
direct to the Mayor. The external auditor has
questioned whether all the current Director
posts are fully justified.
and Posts requiring professional qualifications are
filled by competitive processes and the holders
have the status of civil servants. Other staff are
employed on labour contracts without the
same employment protection rights. However,
the Mayor has a high degree of discretion in
the making of appointments, and there is a
lack of confidence in the judicial system in
assuring the protection of rights.
Risks are recognised of non-collection of
revenues due, and of procurements failing to
secure best value.
Although the Mayor is formally expected to
submit a report of the strategy to minimise
damage to public services from risks to which
they are subject, there is apparently little
awareness of this.
It appears that more attention should be given
to the measures needed to improve the
assessment and collection of the revenues
under the control of the city.
Other problems associated with the municipal
reorganisation seem to have commanded
more attention in recent months than actions
to contain risks.
Action is needed to improve revenue
collection and the specification of projects.
3. Control activities
101
3.1
Authorisation
procedures
and
approval The Finance Directorate ensures that
commitments and payments are consistent
with budgetary provision as registered in the
Treasury system, the procurement plan as
notified to MoF, and available cash having
regard to the cash flow forecast.
3.2 Segregation of duties
Sufficiently provided for in the law on Financial
Management and Control and through the
allocation of responsibilities within the
structure of the municipal administration
3.3 Controls over access to resources and This is a major area of weakness, with
records
operations in many cases dependent on
unlinked IT systems where no systematic
controls are in place to control access to
records and ensure the retention of an audit
trail.
3.4 Verifications
The Treasury system should ensure that
commitments are not entered into, or
payments made, unless all appropriate
procedures have been followed.
3.5 Reconciliations
Municipality and Treasury records are
reconciled daily, and details of individual
revenue amounts are reconciled monthly
between revenue collection and banking
records.
3.6 Reviews of operating performance
Little attention has so far been paid to this.
3.7 Reviews of operations, processes and Some work is done on this by both internal and
activities
external audit.
3.8 Supervision
Appropriately provided for in the municipal
organisation
4. Information and communication
Annual reports on the functioning of internal
control and internal audit should be made to
MoF CHU. Reports are made to the Council
when required, and some budget information
is on the city website.
5. Monitoring
5.1 Ongoing monitoring
Municipal directorates (Finance, Education,
Public Works, etc) monitor different aspects of
budget execution.
5.2 Evaluations
No significant action hitherto
5.3 Management responses
Adequate responses are generally made to
internal and external audit findings.
102
Annex 3A. List of documents consulted
1. Albania Public Finance Management Strategy 2014 – 2020, Government of Albania,
2014;
2. Budget Execution Data 2010 – 2015 on five selected municipalities, PLGP/USAID;
3. National Crosscutting Strategy on Decentralisation and Local Self Governance 2015 –
2020, Government of Albania, 2015;
4. Public Financial Management Strategy 2014-2020 2015 Monitoring Report, Ministry
of Finance, March 2016;
5. PLGP Profile of Municipal Finance System in Albania, 2016;
6. IMF Country Report 16/289;
7. EU Albania Progress Report, September 2016 (SWD (2016) 364 (final));
8. La
/
O the Ad i ist ati e-Territorial Organisation of Local SelfGo e
e t U its i the ‘epu li of Al a ia ,
;
9. La o.
dated . .
, O the Ma age e t of the Budgeta “ ste i
the Repu li of Al a ia as a e ded Jul
;
10. MOF (2012) – Standard Instruction on the Medium Term Budget Preparation; and
Standard Instruction on Budget Execution;
11. MOF Annual budget preparation and execution instruction;
12. Law on Financial Management and Control (2010);
13. Law on State Debt, and State Guarantees in the Republic of Albania (2006);
14. Law on local government borrowing (2008);
15. Law on the System of Local Taxes and Fees (2006);
16. Law on Public Procurement (2006);
17. Law on Internal Auditing in the Public Sector (2015);
18. Law on the Organisation and Functioning of the High State Control (2014);
19. The Constitution (1999);
20. Law on Organisation and Functioning of the Council of Ministers;
21. La
/
O Lo al “elf-Go e
e t , ‘epu li of Al a ia;
22. Draft law on Local Self-Government Finances (November 2016);
23. Law on the right to information (2014);
24. Law on Public Notice and Consultation;
25. Ministry of Finance, March 2016: Public Financial Management Strategy 2014-2020,
2015 Monitoring Report.
103
Annex 3B List of people interviewed
NAME
1 Florian Mucaj
2 Enkelejda Peshkpia
3 Armida Saliaj
4 Aurel Shanka
5 Besmir Dhana
6 Denisa Skenderaj
7 Dorela Dollakaj
8 Evrinomi Zhezhi
9 Enkelejda Ziu
11 Mukades Dano
12 Nevila Cala
13 Renilda Hyseni
14 Albina Behaj
15 Edmond Leka
16 Gazmira Plesati
17 Entela Kola
17 Neritan Bocova
18 Erald Filipi
POSITION
INSTITUTION
Administrator and Deputy Mayor
Municipality of Fier
General Economic Director
Head of Revenue Collection Office
Tax Office Senior Expert
Procurement Specialist
Procurement Specialist
Assistant to Administrator
Budget and Finance Specialist
Inspection Senior Expert
Internal Audit Director
Procurement Director
Urban Planning Director
Human Resources Director
Public Service Directorate
Public Service Directorate
Irrigation Service Directorate
Public Relations Director
Asset management Director
Municipality of Fier
Municipality of Fier
Municipality of Fier
Municipality of Fier
Municipality of Fier
Municipality of Fier
Municipality of Fier
Municipality of Fier
Municipality of Fier
Municipality of Fier
Municipality of Fier
Municipality of Fier
Municipality of Fier
Municipality of Fier
Municipality of Fier
Municipality of Fier
Municipality of Fier
104
Annex 3C Sources of information for each Performance Indicator
HLG-1 and PI-1 to 3: 2013-15 Budget documentation from Fier municipality, and
actual expenditure data from central Treasury system, Ministry of Finance
PI-4: Budget documentation and budget execution statements for 2013-15 from Fier
municipality
PI-5: Documentation provided by Fier municipality, Fier website (insert ref.),
discussion with Fier officials
PI-6: Discussion with Fier officials
PI-7: Not applicable
PI-8: Budget documentation and discussion with Fier and HSC officials
PI-9: Documentation provided by Fier officials, Fier website
PI-10: Discussion with Fier officials
PI-11: Discussion with Fier officials
PI-12: Consolidated Financial Statements of Fier municipality
PI-13: Discussion with Fier officials
PI-14: Documentation provided by Fier officials, Fier MTBF 2015-17
PI-15: Fier MTBF 2015-17
PI-16: Fier MTBF 2015-17, Fier Territorial Development Strategy 2016
PI-17: Discussion with Fier officials, MoF Annual Budget Preparation Instructions
PI-18: Discussion with Fier officials
PI-19: Discussion with Fier officials, Consolidated Financial Statements of Fier
municipality for 2014 and 2015 (Dimension 4)
PI-20: Discussion with Fier officials
PI-21: MoF Treasury system, discussion with Fier officials
PI-22: Documentation provided by Fier municipality
PI-23: Discussion with Fier officials, HSC report on Fier for 2013-14, discussion with
HSC officials
PI-24: Data provided by Fier officials
PI-25: Law on Financial Management and Control, discussion with Fier and HSC
officials
PI-26: Discussion with Fier officials
PI-27: Law on the management of the Budgetary System, MoF Treasury system,
discussion with Fier officials
PI-28: Documentation provided by Fier officials
PI-29: 2015 Budget execution statement, discussion with Fier officials
PI-30: Discussion with HSC and Fier officials, information from HSC website (insert
ref.)
PI-31: Discussion with Fier officials
105
Annex 4. Disclosure of quality assurance arrangements
Ministry of Finance
Ministry of Local Issues
High State Control
FIER Municipality
SECO/Swiss Embassy
USAID/PLGP
World Bank
EU Delegation
UNDP
SDC/DLDP
Composition of the Oversight team
Fran Brahimi
Enea Hoti
Bajram Lamaj
Florian Muçaj
Philipp Keller
Kevin McLaughlin
Hilda Shijaku
Edina Halapi
Vladimir Malkaj
Valbona Karakaçi
Composition of the Assessment Team
PLGP Project Director
Kevin McLaughlin
International PFM Expert – Team Leader John Wiggins
Local PFM Expert
Elton Stafa
Local PFM Expert
Merita Toska
Review of Concept Note
Concept note draft distributed 1st September, 2016
Reviewer
Comments received
Date of SECO/USAID
response
th
th
MOF
13 September, 2016
15 September, 2016
th
HSC
13 September, 2016
15th September, 2016
th
PEFA Secretariat
13 September, 2016
15th September, 2016
SDC
13th September, 2016
15th September, 2016
DLDP
12th September, 2016
15th September, 2016
Concept Note final approved by Oversight Team 20th September, 2016
Review of Draft Report
Draft report distributed December 14th, 2016
Reviewer
Comments received
Date of USAID response
Municipality of Fier
Comments made orally in Amendments to text
February and March
discussed as necessary
2017
SECO/ECORYS
January 16th, 2017
March 30th, 2017, (following
oral discussions)
st
PEFA Secretariat
February 1 , 2017 and
March 16th, 2017 and further
follow-up comments on
response on March 30th.
March 24th
Ministry of Finance
January 25th, 2017
Oral discussions of small
number of comments in
February and March 2017.
106