2013 05-07 Lessons Learned on the Public Financial Management Front LInes
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Transcript of 2013 05-07 Lessons Learned on the Public Financial Management Front LInes
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Version 7 section
• brief discussion Lesson Learned on the Public
Financial Management Front Lines
African Development Bank Group
May 7, 2013
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Version 7 section
• brief discussion
Agenda
• Story behind “FreeBalance”
• Lessons in: ICT-enabled good governance
• Lessons in: PFM reform sequencing
• Lessons in: FMIS delivery and sustainability
• Conclusion
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Version 7 section
• brief discussion
for public financial management support reform and modernization to improve
governance, transparency and accountability.
FreeBalance solutions
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Version 7 section
• brief discussion
1984
“free balance”
+ Budget
- Commitments
- Obligations
- Actuals
= Free Balance
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Version 7 section
• brief discussion
1984+
Ottawa: Parliament Hill
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Version 7 section
• brief discussion
1994+
Appropriations
Expenditures
Procurement
Treasury
Materials
Civil Service
Receipts
Payroll
Social Programs
Budget Controls
Planning
Analysis
Budget Law
Policy
Forecasting
Budget Books
Government Resource Planning (GRP)
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Version 7 section
• brief discussion
How is GRP Unique?
1994+
Budget Centric
Commitment Accounting
Modernization & Reform
Complex Performance
Not ERP
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Version 7 section
• brief discussion
1994+
different organizational configurations
MULTIPLE
CONTROLS
aggregate
detailed
MULTIPLE
CONTROL
LEVELS
configured
CONTROLS
bu
dg
et
ap
pro
pri
atio
ns
tra
nsfe
rs
co
mm
itm
en
ts
ob
liga
tio
ns
rece
ivin
g
exp
en
ditu
res
COMMITMENT CYCLE
segregation of
duties & workflow
monthly
PERIOD
yearly
TOLERANCE
LEVELS
flexible
strict
Financial Controls
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• brief discussion
1998
Nunavut
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Version 7 section
• brief discussion
1999
Kosovo
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Version 7 section
• brief discussion
quickest implementation 26 days
average first phase 8 months
Rapid Implementation
2000+
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Version 7 section
• brief discussion
2006
FreeBalance Public Financial Management Component Map
FreeBalance Public Financial Management Component Map Comprehensive and Extensible Product Suite for Government
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Version 7 section
• brief discussion
today
Countries Penetrated 21
Time Zones 15
World wide Software Installations Over 200
Users Over 60,000
Civil Servants Almost 1.5 Million
Handling annual budgets of > $¼ Trillion
Global Impact
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Version 7 section
• brief discussion
today
Developed Countries
Developing Countries Post Conflict
National
Uganda, Guyana, Antigua, Suriname, Lao PDR
Mongolia, Kyrgyzstan
Timor-Leste, Iraq
Afghanistan, Kosovo, Sierra Leone, Liberia, South Sudan Departmental
Canada • 28 Financials • 42 Budget USA • 10 Financials • 1 Budget
Panama, Jamaica, Pakistan
Sub-National Nunavut Palestine
Project Namibia
Global Impact
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Version 7 section
• brief discussion
FreeBalance Offices and Regional Support Centres today
Vientiane
• services & support • sales, business development & marketing • product management & development • corporate services
Dili
Ulaanbaatar
Bishkek Ottawa
Guatemala City
Washington
St. Johns
Lisbon
Monrovia
Freetown Kampala
Pristina
Ramallah
Kolkata
Kabul
Bangalore
Paramaribo
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Version 7 section
• brief discussion
Global PFM
Provider
Canadian Company
GRP Leader
100% Government
Focus
ISO-9001/2008
Covers Budget Cycle
Modern Web
Technology
High Success
Rate
Company Summary today
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Version 7 section
• brief discussion
Agenda
• Story behind “FreeBalance”
• Lessons in: ICT-enabled good governance
• Lessons in: PFM reform sequencing
• Lessons in: FMIS delivery and sustainability
• Conclusion
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Version 7 section
• brief discussion
Version 7 section
• Multiple Definitions
• Tinged with Ideology
• Multi-variant and Complex
• Measurement Difficulties
• Yet Governance Measures Critical
Good Governance
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Version 7 section
• brief discussion
Version 7 section
19 19
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• brief discussion
About $37B of foreign aid annually is
phantom aid
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• brief discussion
Tax evasion through untaxed shadow economy
= 17% of world economy, well
over $2.5T
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Version 7 section
• brief discussion Foreign Direct Investment to
Developing Countries at
$684B
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Version 7 section
• brief discussion
Total worldwide
remittances to developing countries
exceed $534B
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• brief discussion
Tax Revenue ranges from 1.4% of GDP
in UAE to almost half in
Belgium, Sweden and
Denmark
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Version 7 section
• brief discussion
What Works in Technology-Enabled Public Financial Management? An On-Going Debate
Technical Reforms Difficult
Technical Reforms Easy
Technical Reforms Effective
Technical Reforms
Ineffective
Use PFM Best Practices
Use Country Context
It’s not about
technology
It’s all about technology
Good Practices
applied technology
applied practice
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Version 7 section
• brief discussion
Good Governance Mind Map v.1.0
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Version 7 section
• brief discussion
Governance Linkages
1. back office GRP software provides
2. a set of Governance tools
3. whose effectiveness in improving governance is determined by institutional maturity
4. and can be seen
5. measured
6. shown to improve country outcomes
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• brief discussion
Consider a Scenario
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• brief discussion
Total Annual Government Procurement is estimated
at $9.5T
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• brief discussion
Developing Countries lose an estimated $20B to
$40B annually because of corruption
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Version 7 section
• brief discussion
ICT Platform
•1. Secure Infrastructure
•2.User Group Controls
Government Performance
•3. Budget Preparation
Core Public Financials
•4. Commitment Accounting
Public Expenditure Management
•5. Procurement
•6. E-Procurement
•7. Payment Management
Government Performance
•8. Audit
Automating the Procurement Cycle
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• brief discussion
Controls
Core Public Financials
Expenditure Management
Receipts Management
Treasury Management
Civil Service Management
Performance Management
Standards IPSAS, GFS CoST, OpenC EITI IATI GFS
Front-Office
financial statements
e-procure revenue aid, debt &
PPP e- recruit & disclosure
gov results
budget transparency
Decision-Making forecasts – programs –– reporting & analytics – dashboards – alerts - output/outcomes – KPIs
economics – historical data - benchmarks – policy – planning – scenarios – programs
Other Controls assets secure payment & secure transactions audit
accruals TSA accruals
Commitment budget – commitment – cash - payment
Process Controls chart of accounts – workflow & procedures – approval cycle - reconciliations
IT Controls data integrity – data encryption – IT security - integration
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Version 7 section
• brief discussion
ICT Platform
•1. Secure Infrastructure
•2.User Group Controls
Government Performance
•3. Budget Preparation
Core Public Financials
•4. Commitment Accounting
Public Expenditure Management
•5. Procurement
•6. E-Procurement
•7. Payment Management
Government Performance
•8. Audit
Chart of Accounts
Dashboards
Alerts
Procedure Workflow
Integration
Segregation of Duties
ICT Platform
•1. Secure Infrastructure
•2.User Group Controls
Government Performance
•3. Budget Preparation
Core Public Financials
•4. Commitment Accounting
Public Expenditure Management
•5. Procurement
•6. E-Procurement
•7. Payment Management
Government Performance
•8. Audit
•Data integrity •Encryption
•IT security
•User management
•Budget & Commitment Controls
•Planning •Historical data
•E-Procurement front office
•Secure payments
•Audit trail
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Version 7 section
• brief discussion
IT Controls
ICT Vulnerability Technique
Database
Data In
tegrity
Ob
fuscatio
n
Encryp
tion
Bio
metrics
VP
N
Security Po
licy
Security A
ud
it
Au
dit Trail
Transactio
n
Au
dits
DB Abstraction
Network Sniffing
User Identify
Integration Interfaces
Reports External Transparency
Intrusion Intrusion Detection
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Version 7 section
• brief discussion
FreeBalance Public Financial Management Component Map Comprehensive and Extensible Product Suite for Government
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Version 7 section
• brief discussion
GPM BCM PFM GTM GRM PEM CSM
Chart of Accounts
Budgets & Commitments
Segregation of duties
Secure Payment
Integration
Reconciliation
Workflow & Procedures
Approvals
Accrual
Asset Management
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Version 7 section
• brief discussion
Governance Enablers Matrix
Characteristics
Cap
acity
Po
litical Will
Acco
un
ting
Pro
ced
ure
s
Stand
ards
Efficien
cy
Risk
Man
agem
en
t
Co
mp
liance
De
cen
tralization
Ind
ep
en
de
nce
Info
rmal
Me
chan
isms
Acce
ss to
Info
rmatio
n
Transp
aren
cy
Ou
treach
Particip
ation
Legitim
acy
Institutions
Executive
Legislature
Judiciary
Internal & External Audit
Enforcement
Other Gov’t Oversight
Public Service
Civil Society & Citizens
Businesses
Election Commission
Political Parties
Donors
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Version 7 section
• brief discussion
ICT Platform
•1. Secure Infrastructure
•2.User Group Controls
Government Performance
•3. Budget Preparation
Core Public Financials
•4. Commitment Accounting
Public Expenditure Management
•5. Procurement
•6. E-Procurement
•7. Payment Management
Government Performance
•8. Audit
Chart of Accounts
Dashboards
Alerts
Procedure Workflow
Integration
Segregation of Duties
ICT Platform
•1. Secure Infrastructure
•2.User Group Controls
Government Performance
•3. Budget Preparation
Core Public Financials
•4. Commitment Accounting
Public Expenditure Management
•5. Procurement
•6. E-Procurement
•7. Payment Management
Government Performance
•8. Audit
•Data integrity •Encryption
•IT security
•User management
•Budget & Commitment Controls
•Planning •Historical data
•E-Procurement front office
•Secure payments
•Audit trail
Political Will Capacity
Standards Compliance
Accounting Procedures
Transparency
Civil Society
Internal Audit
External Audit
Independence
Enforcement
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Version 7 section
• brief discussion
PEFA to PFM Component Map Core Public Financials
& Budget Controls Expenditure
Management Receipts
Management Treasury
Management Civil Service
Management Performance Management
A. PFM-OUT-TURNS: Credibility of the budget
Budget Controls Expenditure Controls & Forecasting
Revenue Forecasting
Cash and Liquidity Forecasting
Wage Bill Forecasting
Budget Planning Processes
B. KEY CROSS-CUTTING ISSUES: Comprehensiveness and Transparency
Budget Classifications
Budget Transparency E-Procurement Revenue Transparency
E-Recruitment, Wage & Expense Disclosure
Results Portal
C(i) Policy-Based Budgeting
Talent Management
Budget Planning Processes & Performance Management
C(ii) Predictability and Control in Budget Execution
Non-Salary Controls
Expenditure Controls & Forecasting, Procurement Value for Money
Taxpayer Obligations & Tax Collection
Cash and Bank Controls
Payroll Controls Audit trails & Computer Aided Audit Tools
C(iii) Accounting, Recording and Reporting
Timeliness and Completeness of Statements and Reports, Support for International Public Sector Standards Quality of Reports
C(iv) External Scrutiny and Audit
Audit trails & Computer Aided Audit Tools
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• brief discussion
Governance Rating
Gov Effective
PFM Transparency
improves
enables
results
perception
behaviour
Impact of Public Financial Management
Improvements on International Governance
Ratings
Openness, Effectiveness, Service Delivery, Growth,
Anti-Corruption
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Version 7 section
• brief discussion
GRP Anti-Corruption Hospital Procurement Scenario
Government Resource Planning Software Governance Toolset Governance
Enablers Governance Signs
Governance Indicators
Governance Outcomes
chart of accounts | segregation of duties |integration | workflow & procedures | alerts & dashboards
ICT Platform
1. Secure Infrastructure
Data Integrity
Improved Health Outcomes Child Health
CIESIN/YCELP
Reduce Child Mortality MDG
Immunization Rates WHO/UNICEF
Reduce Maternal Mortality MDG
Universal Access to Reproductive Health MDG
Encryption
IT Security
2.User Group Controls
User management
Government Performance Mgmt
3. Budget Planning
Planning PEFA C3: Accounting, Recording, Reporting
Historical data
Core Public Financials
4.Commitment Accounting Budget &
Commitment Controls
Accounting Procedures
PEFA C2: Predictability & Control in Budget Execution
Public Expenditure Mgmt
5. Procurement
6. E-Procurement E-Procurement front office
Transparency PEFA B: Transparency
WGI Control of Corruption
World Bank Doing Business Index TI Corruption
Perception Civil Society
Procurement Graft incidents 7. Payment Secure payments
Increase in Foreign Direct Investment
Government Performance Mgmt
8. Audit Audit trail
Internal & External Audit
PEFA C4: External Scrutiny & Audit Independence
Enforcement
standards | capacity | political will | compliance
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Version 7 section
+ Public Finances
- Transparency
- Accountability
= Corruption
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• brief discussion
Version 7 section
Lessons Learned
• GRP Technology improves governance
• Hard to see success with good PFM processes without a GRP
• Significant improvements in governance requires institutional changes
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Version 7 section
• brief discussion
Agenda
• Story behind “FreeBalance”
• Lessons in: ICT-enabled good governance
• Lessons in: PFM reform sequencing
• Lessons in: FMIS delivery and sustainability
• Conclusion
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Version 7 section
• brief discussion
What Works in Technology-Enabled Public Financial Management? An On-Going Debate
Technical Reforms Difficult
Technical Reforms Easy
Technical Reforms Effective
Technical Reforms
Ineffective
Use PFM Best Practices
Use Country Context
It’s not about
technology
It’s all about technology
Good Practices
applied technology
applied practice
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Version 7 section
• brief discussion
Governance Formula?
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Not “prescriptive”
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Evaluation Methods Evaluation Method Scope Back-Office Technology Front-Office Technology
Public Expenditure and Financial Accountability (PEFA)
Comprehensive PFM assessment
No technology guidance although PEFA assessments attribute some achievements to the use of technology
Commonwealth Public Financial Management Self-Assessment Toolkit (CPFM-SAT)
Comprehensive PFM assessment
A3: Use of IFMIS B2: Use of Debt Management
software No technology guidance for publishing
information The Chartered Institute of Public Finance & Accountancy (CIPFA) Whole Systems Approach
Comprehensive PFM assessment
O7: Financial management information systems
Revenue Watch Institute Index Extractive Industries
transparency
Paris Declaration and Accra Agenda for Action Aid effectiveness Use of country systems for PFM and procurement does not specify use of
technology
International Budget Partnership Open Budget Index (OBI)
Budget preparation and reporting transparency
Internet publishing of budget documents gains higher rating for many categories
Gartner Group Open Government Maturity Model
Open government Provides open government technology
insight
Institute for Electronic Government e-Democracy Model
E-Democracy Use of e-mail systems
Use of web technology Andersen & Henriksen E-Government Maturity E-Government
Layne and Lee Framework of E-Government E-Government Horizontal and vertical integration
within government
World Bank World Governance Indicators Meta collection of 3rd party
indicators No technology guidance
Global Integrity Report Governance and anti-
corruption
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What’s changed?
101011001110010101001010101
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Version 7 section
• brief discussion
Country PFM Context
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Government Performance Management
Data from Government Operations
Expenditures Revenue
Budget
formulation
Budget
execution Human
Treasury Resources
Data from Government Operations
Government Performance Management
PFM Domain
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Version 7 section
• brief discussion Country Research
Governance Valuation
Solution Blueprint
Implementation
Project Governance
Product Development
Government Research & Engagement
Customer Sustainability
FreeBalance i3+qM Methodology Aligning Customer Needs with Product, Service and Sustainability Offering
Steering Committees
SWAT Teams
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Calculates?
Technology Priorities
PFM Priorities
Country Conditions
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Anchor
Technology Priorities
PFM Priorities
Country Conditions
Benchmark Priority
Gaps Sequencing
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Sequenced
Technology Priorities
PFM Priorities
Country Conditions
Benchmark Priority
Gaps Sequencing
capacity
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Version 7 section Lessons Learned
• PFM reform sequencing as much a science as an art
• Holistic approaches that consider technology, capacity, lessons in peer countries and methodology increases success
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Agenda
• Story behind “FreeBalance”
• Lessons in: ICT-enabled good governance
• Lessons in: PFM reform sequencing
• Lessons in: FMIS delivery and sustainability
• Conclusion
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58
Risk of Project Failure Higher in Government
Includes ICT Project Risks + most ERP risks
Complex legal reform
Need for continuous reform
Covers more “lines of business” than private sector enterprises
Need to rationalize needs of politicians, public servants and civil society
Government Resource Planning
Includes all ICT Project Risks
High customization required to achieve benefits
Often requires business process re-engineering
Highly complex project covers multiple organizational silos
Projects often delivered late
High maintenance costs, especially upgrades leads to high Total Cost of Ownership (TCO)
Enterprise Resource Planning
Many ICT projects fail to deliver on expectations
High maintenance costs to keep “lights on”
Complex ICT projects have higher failure rates than modest projects
Move to Cloud computing a reaction by customers against high ICT costs
ICT Projects
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COTS dilemma
MIDDLEWARE
DEVELOPMENT ENVIRONMENT
REUSABLE CODE
CONFIGURATION
APPLICATION
NEEDS
governance
customization
‘enterprise’
costs
proprietary
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0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Failure Unsuccessful Success
Reported Enterprise Resource Planning Success Rates Multiple Studies, Multiple Methods, All Industries
42%
34%
24%
Successful
Unsuccessful but notfailureFailure
Low, Average and High ratings from ERP studies indicating Failure, unsuccessful (including Failure) and Success
Calculated Average ERP Success, Unsuccessful but not Failure and Failure
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11
7 6
1
1
4 7
3
0 2
2
0
0
2
4
6
8
10
12
14
16
FreeBalance Oracle SAP Epicor
Failure
Problems
Successful
Failure = Abandoned or > 10 Years to Implement Problems = Reported issues, incomplete implementations, late Success = No exceptionally reported problems
Government Resource Planning Success in Developing Countries National Government Level Implementations
Tier1 ERP Tier1 ERP Tier2 ERP
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0.00%
50.00%
100.00%
150.00%
200.00%
250.00%
300.00%
350.00%
400.00%
450.00%
500.00%
ERP Price
FreeBalance
ERP 5 Year TCO compared to FreeBalance Government Quotations from 2006-2012
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0%
10%
20%
30%
40%
50%
60%1. Upgrade & Optimize
2. Adapt Processes
3. New Apps
4. Process Automate5. Process Decisions
6. Decisions in Apps
7. Other Barriers to Success
Time Consuming
Enterprise Software Barriers to Success & Time Consuming Tasks Information Week 2012 Enterprise Applications Survey
1. Changing, upgrading or optimizing existing applications
2. Changing or adapting processes as business requirements change
3. Implementing new applications
4. Automating or integrating business processes
5. Developing or improving decision-support capabilities for processes
6. Developing or improving decision-support capabilities within apps
7. Other
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‘featuritis’
64 64
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Version 7 section • Conflict between customized vs. generic
solutions
• More vertical capabilities creates larger footprint
• Government focus reduces:
– Customization
– Technical footprint
– Time to implementation
Product Design and Sustainability
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Version 7 section Human Capacity
• Adaptable help
• Single file translation
• Methodology
• CIPFA partnerships
• Evans partnership
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Version 7 section • Configuration options
– Parameters
– Business Rules
– Workflow
• Progressive Activation
• New “Custom Domain” capabilities
FreeBalance Model
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Version 7 section
• brief discussion FreeBalance Accountability Suite
Country Specific Functionality
(CFG) Configuration
(CFCB) Chart of Accounts Builder
(CFCD) Custom Domains
(CFPR) Parameters
(CFWF) Workflow
FreeBalance Accountability Suite
Configuration and Metadata Management
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Progressive Activation
69 69
Modules Modernization Decentralization
Financials
Treasury
Revenue
Debt
Budgeting
Purchasing
Payroll
Assets
Inventory
HR
MoF
Line Ministries
Regions & States
Treasuries
Devolution
Commissions
Gov’t Businesses
Municipalities
Cash-based
Cash Management
Modified Cash
Budgetary Controls
MTEF
Aggregate Controls
Modified Accrual
Civil Service Reform
Performance Mgmt
Accrual
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Government
Functions
Hibernate Spring Trinidad Eclipse
Government
Applications
Government
Entities
Framework Java EE
Infrastructure
FreeBalance Web Architecture
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First Generation “ERP Era” to
2007
Strategic Inflection
Point 2007-2010
Second Generation “GRP Era”
2010+
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broken software model?
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73
Product Management
Sales & Marketing
User
Trainer
Consultant
Customer Support
Product Development
Product often designed with different customers in mind
Product developers have no expertise in government financials
Salespeople want to sell to every possible market.
Consultants help customers to customize code.
Government needs may not go into upgrades
Consulting firms generate revenue from customization.
Government is one of many “verticals”
Typical Approach by Enterprise Software Vendors to the Government Market
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Product Management
Customer Support
Product Development
Consultant
User All problems & feature requests are tracked – management dashboard
Vendor consultants bring experience to write specifications.
Developers visit customers and are part of “SWAT” teams.
Steering Committee sets product direction.
Customers interact with Vendor staff and other customers on collaborative web application
Customers visited at least once every year.
Local in-country support pass on needs.
Government Resource Planning and the Customer Centric Approach
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Version 7 section Lessons Learned
• Software design matters: risk of failure & cost is proportional to distance
• Separate product development and implementation firms increases risks of failure
• African governments require vendor commitment and better project governance structures
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Version 7 section
• brief discussion
Agenda
• Story behind “FreeBalance”
• Lessons in: ICT-enabled good governance
• Lessons in: PFM reform sequencing
• Lessons in: FMIS delivery and sustainability
• Conclusion
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.943
.286
low medium high very high
Canada .908
Antigua .764
Mongolia .653
Liberia .329
Timor-Leste .495
| | |
Selection of FreeBalance Customers, National Level GRP Implementations from low to very high Human Development Index
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Version 7 section
• brief discussion Customer
Experience
Market Research &
Events Participation
Customer-Centric Product
Governance
FreeBalance Governance Framework
FreeBalance Governance
Valuation
1. Engage the PFM Community
• Similarity in similar circumstances
• Enhancement requests from governments
• Deep research in public financial management
• Engagement with larger PFM community at events
• Customers drive the FreeBalance product roadmap at the FreeBalance International Steering Committee
• Framework links Government Resource Planning (GRP) to positive governance outcomes
• Methodology provides PFM reform and GRP sequencing blueprints
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Government Functions
Hibernate Spring Trinidad Eclipse
Government Applications
Government Entities
Framework Java EE Infrastructure
FreeBalance Accountability Suite 100% Web Technology
open system runs on open source and commercial
middleware
reusable “business objects” leveraged as part of the Service-Oriented Architecture
no client/server or legacy code used
multitier design separates presentation, business logic and data layers
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80 80
Economy Approximate starting point of current state and peace building
Relative progress by 2010
Afghanistan 2001-02 Substantial
Cambodia 1991-93 Intermediate
Congo, Dem. Rep. 2001 Limited
Kosovo 1999 Substantial
Liberia 2003 Intermediate
Sierra Leone 2002 Substantial
Tajikistan 1997 Limited
West Bank & Gaza 1993-2002 Intermediate
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Government Performance
Budget Planning
Budget Books Advanced Salary Management
Treasury Management
Transparency Portal
Performance Management
Modern-ization
Accrual Accounting
Advanced Chart of Accounts
De-centralization
Fixed Assets Human Resources
Procurement
2. Possible to Leapfrog Example FreeBalance Accountability Suite Implementations
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A. PFM-OUT-TURNS: Credibility of the budget
B. KEY CROSS-CUTTING ISSUES: Comprehensiveness andTransparency
C(i) Policy-Based Budgeting
C(ii) Predictability and Control in Budget Execution
C(iii) Accounting, Recording and Reporting
C(iv) External Scrutiny and Audit
FB Public
Public PEFA
Public PEFA PEFA Avg
HDI Avg
HDI Category
FreeBalance Customers
2.47 0.482 Low
*Countries do not use FreeBalance
2.35 0.569 Medium
3. GRP Can Improve Assessments Only the Most Recent Public PEFA Assessment
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4. Implementation Commitment
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Product Management
Customer Support
Product Development
Consultant
User
5. Success Requires Vendor Implementation & Long-Term Support Commitment
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Global PFM
Provider
Canadian Company
GRP Leader
100% Government
Focus
ISO-9001/2008
Covers Budget Cycle
Modern Web
Technology
High Success
Rate
More: www.freebalance.com/blog