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1 Public Disclosure Authorized Document of The World Bank FOR OFFICIAL USE ONLY Report No GT Public Disclosure Authorized Public Disclosure Authorized PROJECT PAPER ON A PROPOSED ADDITIONAL FINANCING LOAN IN THE AMOUNT OF US%20.0 MILLION TO THE REPUBLIC OF GUATEMALA FOR THE THIRD INTEGRATED FINANCIAL MANAGEMENT TECHNICAL ASSISTANCE PROJECT March 4,2008 Public Disclosure Authorized Poverty Reduction and Economic Sector Management Central America Country Managemeut Unit Latin America and the Caribbean Region This document has a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization.

2 CURRENCY EQUIVALENTS (Exchange Rate Effective November 9,2007) Currency Unit = Quetzal Q$l = US$0.13 US$1 = Q$7.65 FISCAL YEAR January I -- December 3 1 ABBREVIATIONS AND ACRONYMS AF ARF CAS CASE CFAA CGC CONCYT CPAR FARAH FTAA GLIN GUATECOMPRAS ICT IDB IFML I1 IMF INFOM INTECAP LAC1 MOF MTEF NFPS OM ONSEC PAD PCU PER PIU SAT SAG SEGEPLAN SIAD SIAF SIAFMUNI SICOIN SME SNIP SOE UNDP UNCTAD Additional Financing Automatic Rate Fixing Country Assistance Strategy Computer-Aided Software Engineering Country Financial Accountability Assessment Comptroller General s Office National Commission of Science and Technology Country Procurement Assessment Report Financial Accounting Reporting and Auditing Handbook Free Trade Area of the Americas Global Legal Information Network Guatemalan E-procurement System Information and Communications Technology Inter-American Development Bank Integrated Financial Management I1 Project International Monitory Fund National Institute of Municipal Development Technical Institute for Training and Productivity Loan Administration Change Initiative Ministry of Finance (MINFIN) Medium-Term Expenditure Framework Non-Financial Public Sector Operational Manual National Civil Service Office Project Appraisal Document Project Coordinating Unit Public Expenditure Review Project Implementing Unit Superintendence of Tax Administration Government Audit System Secretariat of Planning and Programming Integrated Administrative System Integrated Financial Management System, Integrated Financial Management System for Municipalities Integrated Accounting System Small and Medium Enterprises National Public Investment System Statement of Expenses United Nations Development Program United Nations Trade and Development Commission

3 FOR OFFICIAL USE ONLY Vice President: Pamela Cox Country Director: Laura Frigenti Sector Manager: Nicholas Manning Project Team Leader: Alberto Leyton PP Team Leader: Alberto Leyton This document has a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not be otherwise disclosed without World Bank authorization.

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5 REPUBLIC OF GUATEMALA THIRD INTEGRATED FINANCIAL MANAGEMENT TECHNICAL ASSISTANCE PROJECT ADDITIONAL FINANCING TABLE OF CONTENTS A. Introduction B. Background and Rationale for Additional Financing C. Proposed Changes D. Consistency with CAS or CPS E. Appraisal of Scaled-up Project Activities F. Expected Outcomes G. Institutional Arrangements for Project Implementation H. Benefits and Risks I. Financial Terms and Conditions for the Additional Financing J. Allocation of Proceeds of Additional Financing by Category

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7 Project Paper Data Sheet Date: Jan 18,2008 Country: Guatemala Project Name: Third Integrated Financial Management Technical Assistance Project Project ID: P Team Leader: Albert0 Leyton Sector Directorhlanager: Nicholas Manning Country Director: Laura Frigenti Environmental Category: C Responsible agency: The Ministry of Finance Revised estimated disbursements (Bank FY/US$m) FY I2008 I2009 I2010 I2011 Annual O Cumulative 3.O Does the restructured or scaled-up project require any exceptions from Bank policies? Have these been approved by Bank management? Is approval for any policy exception sought from the Board? No NA No Source Local Foreign IBRD/IDA Others Total Total

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9 A. Introduction 1. This Project Paper seeks the approval of the Executive Directors to provide an additional loan in the amount of US$20 million to The Republic of Guatemala to expand activities under the Third Integrated Financial Management Technical Assistance Project (PO66 175), Loan GU (the Project). 2. The proposed additional loan would help finance the cost of activities geared to deepen the Government of Guatemala s public sector modernization process, by amplifying the impact and development effectiveness of this well-performing project, and addressing pending challenges to the overall sustainability of the reform process. Specifically, the proposed additional financing will facilitate the provision of technical assistance necessary to: i) further strengthen the budget, accounting and treasury management functions; ii) institutionalize the respective integrated financial management (SIAF) and the e-procurement (GUATECOMPRAS) systems within the Ministry of Finance; iii) support the municipalities capacity to adopt and consolidate new procedures and systems to carry out efficient and transparent financial management; iv) strengthen the Comptroller General s Office (CGC); v) build-up and integrate public planning and public investment procedures and systems with the budget;. and, vi) design and institutionalize a permanent knowledge management system in the area of public expenditure management. 3. Partnership Arrangements. The proposed Additional Financing does not envisage formal partnership arrangements with other international financing agencies. However, the Government of The Netherlands wauld provide grant funds to complement activities to support the CGC component. B. Background and Rationale for Additional Financing (AF) 4. Original Project Design. The Project was approved on February 7,2002 for an amount of USD million, and became effective on April 18,2003. Thereafter, in June, 2006 the original project s closing date, September, 2006 was extended until June The project s development objective is to extend and deepen the reforms pursued under the Integrated Financial Management I1 Project (IFML II), which aimed at increasing the effectiveness, efficiency, and transparency of public sector financial management and control. 5. According to the original Project Document, the Project focused on: i) deepening reforms in the areas of budget formulation and execution, multi-annual budgeting, accounting, cash management, debt management, public investment, public procurement, and increased relevance of monitoring performance and results; ii) extending the (SIAF) to the remaining agencies and social funds within the central government, and reaching executing units levels in central government agencies; iii) supporting Guatemala s decentralization effort, by underpinning the design and implementation of new financial management procedures and systems in the 33 1 municipal governments; iv) developing and integrating a human resource management information sub-system into the Government s overall FM system; v) strengthening of the main audit institution (CGC); and, vi) promoting several e-government initiatives. 6. In pursuing these objectives, the Project currently supports the implementation of the following components: i) consolidating the SIAF via the implementation of inter alia a Medium-Term Expenditure Framework (MTEF) and more effective procedures, and the system s expansion to decentralized agencies including social funds and all budget executing units; ii) strengthening the municipalities through the development and implementation of new procedures and systems underlying a more efficient, transparent and accountable financial management within the framework of the Organic Budget Law and the annual budget laws ; iii) modernization of human resource 5

10 management, via the strengthening of the Civil Service Office (ONSEC) and line units s capacity to efficiently manage human resources, the design and implementation of a decentralized payroll system and a single database of public employees; iv) strengthening of the CGC by supporting the modernization of its organization, internal processes, and internal audit units (UDAI) throughout all government agencies, increased transparency and access to information, and the expansion of the audit training program; and, v) design of a national e-government framework primarily focused public finance and procurement functions. 7. Project Performance to Date. From the project s approval and as observed in the 12 Implementation Status Reports (ISR) that have been submitted to date, the overall project implementation has consistently been rated satisfactory in each of the six components that are expected to meet their original objectives. A mid-term review conducted in November 2005, also rated progress towards achieving the Project Development Objective (PDO) satisfactory and found no major issues requiring attention, thereby obviating the need for project restructuring. In June, 2006 the project team sought and received approval of a 21 month closing date extension to June 2008 on the basis of progress achieved and to accommodate the lag in effectiveness by a lengthy process of loan approval in Congress. It is expected that the project will commit and disburse the around 90 percent of the loan amount before the current closing date. No outstanding issues with audits, financial management (FM) or procurement performance, or compliance with legal covenants are currently observed. 8. rn 8 rn rn The key project outcomes already accomplished towards achieving the PDO include: Increased effectiveness, efficiency and transparency of public sector financial management and control, as evidenced by progress towards meeting the main outcome indicators identified at Appraisal: (i) the national budget now includes improved performance indicators consistent with the medium-term expenditure framework; (ii) the SIAF has been extended to all central government budget executing agencies; (iii) the budget, accounting and treasury functions are more efficient; and (iv) budget execution, debt service, transfers and procurement information is accessible to the public through the internet. The SIAF system is now considered one of the best regional practices in automated public financial management. The system was upgraded to operate under web-based technology and is now fully operational in all central government agencies and most of the decentralized entities, and furthermore covers approximately 300 executing-level units. It includes most of the public financial management functions New financial management procedures and systems were successfully implemented in all municipalities. The new framework for municipal financial management SIAFMUNI has allowed for a more efficient and transparent model. New municipal financial management procedures and systems are gradually being implemented in all municipal governments in Guatemala. The e-procurement application GUATECOMPRAS is now operating and registering all central government agencies transactions and is gradually being expanded to decentralized entities and municipalities. Although the application has yet to support online transactions (such as electronic bidding or electronic purchasing), this system has successfully promoted higher degrees of transparency in the public procurement practices evidenced by improvements in users perceptions and a recent award granted by the private sector association in Guatemala. An automatic and fully integrated payroll system is being implemented throughout all central government agencies, including the health and education sectors. Nearly all central government employees are now paid through the banking system and an updated database of public sector employees has been developed and integrated with the SIAF system. However Human Resource Management applications still need to be developed. 6

11 . An automated workflow system to support the Comptroller General s Office s audit processes has been developed and is under implementation. Although not completely operational and subject to further evaluations, the government audit system (SAG) is supporting the core business processes of the CGC. An e-government strategy to support key public sector services and processes has been developed. In addition to successful experiences in automating financial management and public procurement applications, the government is now pursuing the expansion of these practices to other government services. 9. Actual impact and economic gains yielded from these project outputs are not easy to quantify but are evident as the project is having a direct impact on the quality of the State s macro and fiscal management. Moreover, enhanced budget management capacity has increased the efficiency of public resource allocation thereby contributing to better use of public funds as discussed in the recent Public Expenditure Review (PER); transparency and competition in public procurement processes have already generated important fiscal savings from lower costs and better quality of goods and services acquired by public entities as discussed in the recent Country Procurement Assessment Report (CPAR); and enhanced control of public finances and automation of processes in municipalities have improved the overall quality of expenditures; increased tax collection and better public services quality and delivery at the local and community levels as discussed in the recent Country Financial Accountability Assessment (CFAA). Overall, it is reasonable to expect that increased transparency of public sector management has a very significant impact on improving the country s economic and investment climate. 10. Despite the notable progress achieved to date, the public sector modernization agenda in these areas has yet to be completed. Additional efforts are required in the above cited areas to both complete and consolidate the reform process and to ensure its sustainability. To this end, the CFANCPAR of June, 2005 (updated in 2007) identified a number of opportunities for improvement following recognized international good practices. According to these reports, important issues that remain to be addressed include: i) Further development and integration of budget management with planning processes in order to fully develop a medium term expenditure framework (MTEF) integrated with meaningful and consistent performance and results-based indicators; ii) Review and update the budget and accounting codifications to aligned them with international standards and guidelines developed by the IMF for government finance statistics; iii) Expansion of e-procurement practices to reach online transactional applications including e- bidding and e-purchasing, to support a fully automated and transparent system; iv) Institutionalization and development of the Ministry of Finance s own capacities to completely absorb the SIAF systems operation and maintenance including further and permanent conceptual and technological upgrading; v) Further development of appropriate and specific applications to support the entire municipal management cycle while maintaining integration capabilities with central systems; vi) Institutionalization of permanent and continuous capacity-building and knowledge management systems for central and municipal governments in areas related to public sector management; and vii) Continue the strengthening and reform processes of the CGC to consolidate its capacity to perform high quality independent evaluations at the central and municipal levels. 7

12 11. Rationale Underlying Request for Additional Financing. The proposed AF would support the implementation of complementary activities necessary to complete, consolidate and expand ongoing government public sector reform efforts. The proposed additional loan would address pending issues in the areas of public expenditure planning and monitoring, fiscal and financial management, public procurement, and strengthening of internal and external control functions. It would furthermore take advantage of new windows of opportunity to advance and consolidate the already successful state reform process. The project development objective (PDO) will remain valid given that the new activities, proposed within the context of this AF, will continue to support the same reform agenda. 12. The Additional Financing is the most suitable financial instrument to support these complementary activities because: i) the outcomes made by this operation offer a window of opportunity to consolidate and expand achievements made via an incremental approach --the AF seems to provide the most effective mechanism to respond to the Government s request for additional support in a timely manner, ii) the PDO remains the same and implementation arrangements will not suffer major changes,; iii) the Government of Guatemala has expressed its agreement to process this new project on the basis of additional financing to the ongoing loan in order to consolidate reforms obtained under the original project; iv) the new activities can easily be accommodated within the context of the government s existing implementation capacity and therefore full implementation of proposed activities is expected to be completed within a three-year period; v) no environmental or other safeguard related issues are expected to arise as a result of this proposal.as it will continue with the implementation of technical assistance activities in the same areas as the original project; and, finally vi) all proposed activities are fully aligned with the original PDO and therefore consistent with the priorities set out in the current Country Assistance Strategy (CAS). C. Proposed Changes. 13. Proposed Additional Financing Project. The objective of the Project is to extend and deepen the Borrower s financial sector reforms being pursued under the Original Project with the aim of increasing the effectiveness, efficiency, and transparency of public financial management. Although the original PDO will remain valid, project components as well as the outcomes and results framework will be restructured to accommodate the scaling up of existing components as well as the addition of new components, geared to ensure that the remaining challenges will be addressed both effectively and efficiently within the 36-month duration of the proposed AF. 14. The proposed AF is expected to deepen and consolidate reforms initiated under the SIAF project geared to increase public sector efficiency and transparency at the central and municipal levels in the areas of public finance planning, management, and control by strengthening the processes and systems and supporting the institutionalization of these processes and systems through the transfer of ownership to the relevant institutions. To this end, it will support the provision of technical assistance to: i) consolidate and institutionalize the SIAF within the Ministry of Finance; ii) implement and consolidate efficient and transparent public financial management at the municipal level; iii) strengthen the public financial control framework; iv) strengthen an integrate public planning and investment procedures and systems to improve the design, evaluation and monitoring of public investment; v) design and institutionalize a permanent knowledge management system in the area of public expenditure management 15. Project Components. Four of the ongoing project components will be scaled-up/expanded and continue to be supported by the additional loan: a) Consolidating and institutionalizing SIAF within the Ministry of Finance; b) Strengthening Municipal Governments Financial Management; c) Strengthening of the CGC; and d) Project coordination. Expanded activities for components on Human Resource management modernization and e-government will be included as part of Component 1. Finally, two new components will be incorporated under the new AF: a) Strengthening and integrating 8

13 planning and public investment procedures and systems; and b) Designing and institutionalizing a permanent knowledge management system in the area of public expenditure management. A detailed description of activities to be supported under all projects components is provided below. Tables 2 and 3 show the proposed allocation of resources among scaled-up/expanded and new components. Onpoing scaled-upmxpanded components: Project Component 1: Consolidating and institutionalizing SIAF within the Ministry of Finance New or expanded activities under this component aim at consolidating and institutionalizing the SIAF project within the Ministry of Finance. Provision of technical assistance, training and equipment as necessary to: (i) continue expanding SIAF coverage throughout the Borrower s central government to include all decentralized entities, social hds and Congress of the Republic; (ii) expand the reach of SIAF down to the Borrower s budget execution units within ministries and entities; (iii) consolidate the medium-term expenditure framework implemented under the Original Project; (iv) deepen the Borrower s budget reform (as designed and being implemented under the Original Project) through the strengthening of macro-budget controls; (v) review and update of SIAF modules in order to make them consistent with international accounting, debt and budget standards; (vi) enhance the coverage of e- procurement procedures and consolidate and deepen GUATECOMPRAS; and (vii) provide support to MOF for the development of a strategic plan for the institutionalization of SIAF. 17. Support a gradual transference to the MOF of the administration, operation, maintenance, and the development and upgrade of SIAF operational modules. 18. Sub-component l.a: Consolidation of the achievements in the area of multi-annual and results-oriented budget. This sub-component will support i) the strengthening of the Budget Technical Office through the provision of necessary technical resources, training in the evaluation and budget performance, and the implementation of effective norms and procedures, ii) building-up of the sector planning system in the areas of multi-annual and results-oriented budget formulation, execution and monitoring and performance; iii) assistance to central government entities in the design and implementation of performance indicators through technical support and training. 19. Subcomponent 1.6: Gradual incorporation of international standards to public financial management in the areas of accounting, budget andpublic debt. This sub-component will prepare an international standards adoption plan that will include the IMF s Government Finance Statistics Standards Manual and International Public Accounting Standards. This will ensure the implementation of a first set of international standards, including modifications in several accounting and budget codes, the required changes in the IT systems and the necessary training for its effective execution. In addition, international standards and new procedures to expand the local debt capital markets and the use of debt instruments will be implemented. 20. Sub-component 1.c: Consolidation of the budget, treasury and accounting s capabilities within the Ministry of Finance to take over the management and operation of the SIAF system and the development of specific tools to support SIAF management. This subcomponent aims at strengthening the capacity of all relevant departments to manage their respective SIAF subsystem. It will also include the preparation of a diagnostic to identify financial management needs not covered by the SIAF, the definition of an action plan to meet them, and the development of new procedures and IT tools to complement the SIAF as identified by the relevant departments Sub-component l.d: Expansion of GUATECOMPRAS s scope and functionality and consolidation of the system as the country s public procurement framework. This subcomponent will develop and implement new procurement planning and policies to increase cost-effectiveness and 9

14 define a strategic framework for the GUATECOMPRAS system. It will also expand the transactional functionality of GUATECOMPRAS and incorporate new products and services to both handle automated purchasing capabilities and facilitate easier access of Small and Medium Enterprises (SMEs) to serve as vendors for the public sector. 22. Sub-component 1.e: Transfer of SIAF IT operation to the Ministry of Finance s Department of Information Systems. This subcomponent will develop a plan led by the functional and IT areas of the Ministry that will define the process by which the SIAF, GUATECOMPRAS and other relevant systems will be transferred to the Ministry with the necessary information security requirements. It will also support the development of a strategic plan that will identify alternatives to ensure the system sustainability, including outsourcing alternatives and other shared best-practices in IT systems support. Finally, it will support the Information Systems Department s ability to incorporate the financial and human resources necessary to adequately manage and sustain all SIAF systems. Project Component 2: Strengthening Municipal Governments Financial Management On the basis of the results already achieved in the implementation of SIAF-MUNI in all 331 municipalities, the proposed additional financing will: (i) design and implementation of simplified financial management systems for all municipalities; (ii) organizational restructuring of municipalities and design and preparation of related procedural manuals to implement the above mentioned systems; (iii) design and implementation of a training program for municipal-level staff; (iv) development and implementation of further specific applications to support financial management related processes in all municipalities; and (v) strengthening of MOF s capacity to provide technical support to municipalities. 23, Sub-component 2.a: Further development and consolidation of the revamped municipal financial management system and procedures. This sub-component will support the preparation of a framework document that defines the key aspects of municipal financial management- procedures, norms and systems functionalities and a sustainability model. The development and implementation of the updated financial information system (SIAFMUNI-WEB), including training of relevant staff at the municipal level and capacity building in the area of municipal public debt management. 24. Sub-component 2.b: Strenghtening of the Ministry of Finance to provide support in the area of financial management. This subcomponent will strengthen the Ministry of Finance s capacity to support and advise the municipalities in the area of financial management by creating a governmental unit for municipal financial management support that will have the necessary financial and human resources; the IT department will take over the IT aspects of the system. Project Component 3: Strengthening of the Comptroller General s Office 25. Continuing with ongoing activities under this component, the AF will include: (i) consolidation of previous achievements under the Original Project in the area of public financial control; (ii) strengthening of specialized non-financial auditing capabilities; and (iii) strengthening of CGC s functions and promotion of public participation in the public financial management oversight. Sub-component 3.a: Consolidation of the previous achievements in the area of public financial control. This subcomponent will support the: i) strengthening of the investment planning and management capacity at the municipal level; and ii) conceptual analysis of SNIP and its integratiodcoordination with SIAF. 10

15 26. Sub-component 3.6: Strengthening of specialized non-financial audit capabilities. This subcomponent will support the establishment of specific methodologies to perform Environmental, Human Resources and Value for Money audits and the development of the CGC s institutional capacity to carry out specialized non-financial audits to complement and enhance external control. 27. Sub-component 3.c: Strengthening of CGC s functions and promotion of public participation in the publicfinancial management oversight. This subcomponent will strengthen the CGC s internal - functions to improve its performance and efficiency and promote public participation in public sector financial management oversight, including the creation of a claims and allegation center concerning public finance mismanagement. Project Component 4: Project coordination 28. Strengthening of the operational capacity of the Ministry of Finance through the provision of training, technical assistance (including audit services) and the acquisition of equipment required therefore in order to ensure that the Ministry of Finance carries out its tasks efficiently. New components to be supported bv the additional loan: Project Component 5: Strengthening and integrating planning and public investment procedures and systems 29. This component will strengthen SEGEPLAN s Public Investment system by supporting the implementation of its operational model, based on two strategic pillars: i) strengthening of the investment planning and management capacity at municipal level and ii) conceptual analysis of SNIP and integratiodcoordination with the SIAF. 30. Sub-component 5.a: Strengthening of investment planning and management capacities at the regional and municipal levels. This subcomponent will support: i) the strengthening of a new regional model for SEGEPLAN and development of the mechanisms for training and certification of public servants, ii) the analysis and update of the Municipal Public Investment System (SMIP) and, iii) the development of a e-learning system in the area of public investment at the regional and local level Sub-component 5.6: Conceptual analysis of the SNIP and integration/coordination with the SIAF. This subcomponent will include the preparation of an analysis and diagnostic of the current investment cycle and its management tools, strengthening of the Public Investment Directorate to manage the SNIP and carry out a strategic plan for the integratiodcoordination between SNIP and S IAF. Project Component 6: Designing and institutionalizing a permanent knowledge management system in the area of public expenditure management 32. The project will provide support to develop and implement a knowledge management system, with the participation of public and private institutions geared to disseminate and train public officials at all government levels, on topics related to planning, monitoring and evaluation, financial management, public procurement, human resource management and auditing. 33. This component will furthermore support the preparation of a comprehensive training plan for public servants involved in the above-mentioned areas, taking into consideration the current needs and requirements under the SIAF model and according to international best-practices in these areas. It would also make extensive use of e-learning. 11

16 D. Consistency with CAS or CPS 34. The proposed AF is consistent with the CAS and the Government s reform agenda. Both the CAS and its 2007 Progress Report have emphasized the results achieved in building a strong, efficient and transparent public financial management and the critical importance of carrying on with reforms in other areas. Accordingly, this AF aims at deepening and consolidating the progress achieved under the previous public financial management operations, both at national and sub-national levels and focuses on key areas that are identified as critical to ensure the sustainability of these achievements. E. Appraisal of Scaled-up Project Activities 35. Economic and financial analyses. As in the case of the original project, the expanded activities under the proposed AF will focus on technical assistance and capacity building activities. It is therefore difficult to quantify outputs and benefits, and to precisely calculate rates of return. Nevertheless, and as mentioned earlier, since positive fiscal impacts are expected, project. implementation is projected to generate economic gains. The most noteworthy economic and fiscal savings are expected to result from: (i) the strengthening and integration of planning, public investment and budget systems which are estimated to increase the economic returns of overall public expenditure and particularly public investments; (ii) the consolidation and expansion of the SIAF would render the budget preparation process as well as treasury and accounting operations more transparent and effective, thereby permitting better budget allocation decisions and generating substantial fiscal savings and enhanced returns in terms of more effective and extended public services; (iii) more transparent and automated procurement processes will discourage inefficiencies and corruption in public procurement and will immediately generate fiscal savings; (iv) strengthened financial management at the municipal level would generate incentives for further accountability and effectiveness of fiscal transfers as well as local taxes to produce more effective and beneficial investments and other services; and (v) strengthening the institutional capacity of the CGC would ensure greater accountability and therefore more effective monitoring and control of financial flows. 36. Moreover, better qualification and training of the government s human resources, promoted through a comprehensive knowledge management program, should lead to improved performance and efficiency gains by expediting processes, minimizing risks of errors or deficient operations and making reform achievements sustainable over time. 37. Technical Analysis. Recent analytical work carried out by the Bank, including the CFANCPAR and the PER, have both identified the remarkable strides made in public financial management as well as the need to consolidate reforms and to focus on planning activities. 38. While the PER identified a number of significant achievements in public financial management, it also highlighted several areas where more profound reform is needed in order to achieve a higher degree of transparency and accountability. In particular, this report underscored the need to strengthen the audit process carried out by the CGC, and to increase information on budget execution - both of which will constitute key challenges to be addressed within the context of the proposed Additional Financing Loan. 39. As suggested in the CFANCPAR, this additional financing project will support the process by which the government and the Ministry of Finance in particular, take full ownership of the public financial management processes and systems; and, deepen the public procurement system by expanding the public procurement strategy and improving its regulatory framework. 40. Besides recommendations from such recent analytical work, participatory workshops with relevant stakeholders in all participating agencies were conducted to further refine the set of actions and activities to be supported by the extended project. It was determined that the continuation and 12

17 consolidation of activities supported under the three first components of the original project were necessary to complete and institutionalize the financial management reform in the country. Additional efforts to further update existing systems and applications in both central and local FM systems will be also undertaken on the basis of the same technical analysis. Plus, as the FM reform advances to its institutionalization at the Ministry of Finance, expansion to the planning systems appears as an unavoidable step to fulfill the main objective of creating and effective Medium Term Expenditure and Financial framework (MTEF). 41. All new activities under both ongoing and new components will continue to be implemented using the original technical approach, which consists of the use of a set of technical assistance activities provided by external experts and consultants for the design, development and implementation of tailored applications and extensive training of relevant users at all levels. In this case, such set of actions will be expanded to further transfer capacities, expertise and operational responsibilities to line employees in all participating agencies, complemented with a selective absorption of key experts and consultants into government permanent structure to ensure project sustainability. 42. Institutional Analysis. The Ministry of Finance has led the implementation of important changes in public financial management. The results achieved so far make further reform easier, reducing barriers to change. The institutionalization of the reforms at the ministry s level is the natural end to the reform process that was initiated a decade ago. The Borrower has confirmed its commitment to consolidate and expand proposed activities by actively involving top level authorities of concerned agencies as well as technical personnel needed to take over responsibilities for operating and maintaining and expanding system applications developed under the project. They have also confirmed the decision to increase budget allocations to absorb a number of specialized consultants to enhance their own capacities to facilitate project sustainability. The new activities can be accommodated relatively easily within the government s existing implementation capacity for the project. 43. Although the technical capacity of most agencies responsible for the execution of project activities is still limited, the Project Implementation Unit (PIU) has been successful in establishing a strong team of consultants who are called by the project design to be further assimilated into Ministry s line units as well as to transfer and share their knowledge and experience to facilitate project institutionalization. This means that some selected technical positions will be created in the Ministry of Finance as well as in other concerned agencies to incorporate specialized consultants and convert them into permanent civil servants. In addition, external consultants will be hired to carry out specialized tasks when deemed necessary. Therefore, core necessary capacities are considered to be sufficient given the long country experience in this field. 44. Fiduciary Analysis. Fiduciary and capacity assessments of the PIU in the Ministry of Finance as well as on other participating entities have been undertaken as part of ongoing project supervision activities. Also an update of the FMA recent supervision report was prepared to provide the information necessary under the new legal format for AF. In light of the Ministry of Finance s decision to take on management of project fiduciary functions, a capacity assessment update of the PCU-MF to implement procurement tasks was conducted on November 12,2007, the findings of which confirm the Average risk rating assigned during the preparation stage of the Third Integrated Financial Management Project. No major changes to existing institutional arrangements are expected and fiduciary aspects related to the implementation of new activities under the AF are deemed adequate. Further assessments will be undertaken as necessary as the government advances the absorption of implementation responsibilities within line ministries and units. 45. At the time this project paper is being prepared, country systems are being evaluated to agree on the establishment of a Single Treasury Account system for External Aid. In this case the Designated Account would be held by the National Treasury and would be used by the project through the PFM system SICOIN. However, the adoption of a Single Treasury system for designated accounts still needs 13

18 a specific assessment by FM and clearance by the Bank via LOA. Therefore until the Single Treasury system is adopted, the project will simply open an additional designated account in the Central Bank in order to maintain a separate record of disbursements under the AF and ensure a proper closure of the previous project in June. 46. Social and Environment. This project currently triggers none of the Bank s environmental or social safeguard policies. F. Expected Outcomes 47. Proposed new activities will allow for additional outputs and outcomes as presented in Table 2 below. More detailed description of expected outcomes and results indicators are discussed in the outcomes and results framework for project components in Annex 1. Table 1: Expected Outcomes and Indicators Expected Outcome Original Outcome Indicators Additional Outcome Indicators Development objective Deepen and consolidate the reforms initiated with the SIAF project aim at increasing the efficiency and transparency of the public sector at the central and municipal levels in the areas of public finance planning, management and control by strengthening the processes and systems and supporting the institutionalization of these processes and systems through the transfer of ownership to the relevant institutions Ongoing scaled-udexpanded compc Component 1. Consolidating and in All SIAF developments and updates have been completed and transferred to the Ministry of Finance, assuming its functional and technological management and maintenance Expected outcomes and indicators by component ents tutionalizing SIAF within the Ministry of Finance Implementation of adjustments made in FY2005 budget proposals based on efficiency and effectiveness studies in SIAF systems Progress in making real time reporting of disaggregated budget execution accessible to public on internet Performance-based budgeting and single treasury account management applications are fully operational and under implementation. SIAF systems have been transferred and are operated by line units in at the Ministry of Finance. Component 2. Strengthening Munic The municipalities have implemented procedures and systems to make financial management more efficient, transparent and accountable al Governments Financial Management Number of municipalities operating financial management systems (1 00 municipalities by 2003,200 by 2004, and 300 by 2005) 14 A framework document that defines the key aspects of municipal financial management: procedures, norms and systems functionality and sustainability model has been prepared and disseminated among municipalities. New budget practices at the municipal level linking planning and medium-term budgeting processes have been development and are under implementation. An updated financial information system (SIAFMUNI-WEB) has been

19 ~~ Expected Outcome Original Outcome Indicators Additional Outcome Indicators developed. Number of municipalities (or % of total municipal budget) covered with the new procedures and systems with SIAFMUNI-WEB in place, including a support and maintenance plan (June 2011) Component 3. Strengthening of the Comptroller General s Office Enhance the efficiency level of I Progress in restructuring the CGC Public Control System -through the increased capacity and efficiency of Public control institutions. SAG has been implemented and used in CGC, UDAIs and a significant number of UDAIMs A significant number of specialized non-financial audits are included in CGC Annual Audit Plan performed by CGC staff. Claims and Allegation Center is in place and responding efficiently to I citizens Component 4. Project Coordination New comdonents Component 5. Strengthening and integrating public planning and public investment procedures and systems The capacity for planning, I I The municipal public investment management and evaluation of public investment and development policies has been improved at national and municipal level I tools have been improved and a permanent system for training in the areas of public investment at regional and local level is in place. A strategy to ensure consistency and integration between the SNIP and I the SIAF has been implemented Component 6. Designing and institutionalizing a permanent knowledge management system in the area of public expenditure management I A comprehensive set of training has been designed and piloted Designing and institutionalizing a throughout the central and municipal permanent knowledge management administration with the participation system in the area of pubic of ministries experts, universities, expenditure management private sector, and leveraging e- learning G. Institutional Arrangements for Project Implementation 48. The proposed AF will not introduce any major change to existing administrative and supervision procedures, except for management of procurement and financial management functions in view of the Government s decision to take direct responsibility for performance of such fiduciary functions and discontinue the use of the UNDP as an external procurement and financial management agent. Based 15

20 on the above, the Ministry of Finance will now directly perform overall project management coordination and administrative functions. 49. The Government has also requested that administrative functions to implement components under the supervision of other entities as the CGC and SEGEPLAN, be gradually transferred to those institutions. The PCU will coordinate with CGR and SEGEPLAN to agree on a gradual plan to transfer administrative functions including project procurement and financial management. The PCU in the Ministry of Finance will perform overall project coordination fimctions and will continue consolidatihg and preparing project implementation records and reports. Steps to transfer these functions to other entities will be authorized by the Bank at the Government s request after assessing institutional capacities and agreeing on specific actions plans to ensure that new implementing units are capable and trained to follow Bank procedures. 50. The project would abandon the use of UNDP as administrative agency in use for the ongoing operation and instead the PCU would assume the responsibilities of reporting on the use of funds and preparing and submitting disbursement applications. The following methods of disbursement would be used by the PCU: 0 Advances to a Designated 0 Reimbursement 0 Direct Payments 5 1. MoF would open a Designated The flow of funds will be channeled through the DA, as expenditures arise. In this way funds will only be withdrawn from the DA for specific amounts related to expenses incurred. The designated account would be held in dollars in Guatemala s Central Bank (BANGUAT), and as the local legal framework only allows public bank accounts held in other currency than quetzals if specifically agreed with International institutions, it s recommended to include the requirement in the minutes of negotiations. 52. The PCU will use Statements of Expenditures (SOEs) to report on the use of funds and will report on the payments made from the DA on a quarterly basis. The specific documentation requirements will be detailed in the Disbursement Letter. All supporting documentation will be maintained by MoF for post-review and audit purposes for up to one year after the final withdrawal from the loan. 53. References to Bank procurement and sanctions guidelines have been updated in the legal document in order to reflect the applicability of the 2004 Procurement and Consultants Guidelines as revised in October, Such adjustments have been also incorporated into the Operational Manual approved by the Bank. An updated Procurement Plan has been prepared to include new activities to be supported by the project. Both the Procurement Plan and updated Operational Manual have been approved prior to negotiations. 54. Project closing date will be extended for three years until June 30,

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