World Bank Documentdocuments.worldbank.org/curated/en/786861468241478559/pdf/749360... · SILOG...

Document of

The World Bank

FOR OFFICIAL USE ONLY

Report No: 74936-CO

RESTRUCTURING PAPER

ON A

PROPOSED PROJECT RESTRUCTURING

OF

CONSOLIDATION OF NATIONAL PUBLIC MANAGEMENT INFORMATION

SYSTEMS PROJECT

LOAN

NOVEMBER 18, 2009

TO THE

REPUBLIC OF COLOMBIA

January 30, 2013

Public Sector Unit

Poverty Reduction and Economic Management Department

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.

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2

ABBREVIATIONS AND ACRONYMS

(Spanish in italics)

AOP Annual Operational Plan

BPIN Banco de Proyectos de Inversión

Nacional

National Investment Projects Bank

CPS Country Partnership Strategy

COINFO Comisión Intersectorial de Politicas

de Información y Gestión para la

Administración Pública

Inter-Sectoral Committee for

Information Policy and Management

CONPES Consejo Nacional de Politica

Económica y Social

National Council for Economic and

Social Policy

CGR Contraloria General de la República Comptroller General of the Republic

DAF Dirección de Apoyo Fiscal Fiscal Support Directorate

DANE Departamento Administrativo Nacional

de Estadística

National Statistical Institute

DEE Dirección de Estudios Económicos Economic Studies Directorate

DEPP Dirección de Evaluación de Políticas

Públicas

(Directorate for Evaluation of Public

Policy

DGCPTN Dirección General de Crédito

Público y del Tesoro Nacional

Public Debt and Treasury Directorate

DGPM Dirección General de Política

Macroeconómica

General Directorate of Macro

Economic Policy

DGRF Dirección General de Regulación

Financiera

General Directorate of Financial

Regulation

DIAN Dirección Nacional de Impuestos y

Aduanas Nacionales

National Tax and Customs Directorate

DIFP Dirección de Inversiones y Finanzas

Públicas

Directorate for Investment and Public

Finance

DNP Departamento Nacional de Planeación National Planning Department

FIR Financial Interim Reports

GDP Gross Domestic Product

GOC Government of Colombia

IADB Inter-American Development Bank

ICB International Competitive Bidding

ICO Internal Control Office

ICT Information and Communications

Technology

IEC Inter-Sectoral Committee for

Evaluation and Management for

Results

IFR Interim Financial Reports

ICT Information & Communications

Technologies

3

MAFP Modernización de la Administración

Financiera Pública

Public Financial Management

Modernization

M&E Monitoring and Evaluation Monitoring and Evaluation

MHCP Ministerio de Hacienda y Crédito

Público

Ministry of Finance and Public Credit

MTEF Medium-Term Expenditure

Framework

MUISCA Modelo Único de Ingresos, Servicios

y Control Automatizado

Integrated Income, Service, and

Management Model

NDP National Development Plan

NGO Non-Government Organization

OM Operational Manual

PAU Project Administration Unit

PFM Public Financial Management

PM Public Management

PGN Presupuesto General de la Nación National Budget

SBD Standard Bidding Documents

SEPA Sistema de Ejecución de Planes de

Adquisiciones

Procurement Plan Implementation

System

SEIGI Sistema Especializado de Información y

Gestión Integral

Specialized System of Integrated

Information and Management

SGP Sistema General de Participaciones General Transfers System

SIGOB Sistema de Gestión y Seguimiento a las

Metas del Gobierno

Programming and Management by

Objectives and Results System

SIIF Sistema Integrado de Información

Financiera

Integrated Financial Management

Information System

SIIF-Nación Sistema Integrado de Información

Financiera- Nación

Integrated Financial Management

Information System

SILOG Sinergia Logística Logistic Sinergy System

SINERGIA Sistema Nacional de Evaluación de

Resultados de la Gestión Pública

National System for Evaluation of

Public Sector Performance

SOEs Statement of Expenditures

STATCAP Adaptable Lending Program for

Statistical Development

SUG Sistema Único de Gestión Unified Management System

SUIFP Sistema Unificado de Inversiones y

Finanzas Públicas

Unified Public Finances and

Investments System

TAL Technical Assistance Loan

TORS Terms of Reference

UNDP United Nations Development Program United Nations Development Program

Regional Vice President: Hasan A. Tuluy

Country Director: Gloria M. Grandolini

Sector Manager: Arturo Herrera Gutierrez

Task Team Leader: Pedro Arizti

4

COLOMBIA


SYSTEMS

CONTENTS

Page

A. SUMMARY ........................................................................................................................... 5

B. PROJECT STATUS .............................................................................................................. 5

C. PROPOSED CHANGES ...................................................................................................... 5

ANNEX 1: RESULTS FRAMEWORK AND MONITORING ................................................. 7

5

COLOMBIA


SYSTEMS

RESTRUCTING PAPER

A. SUMMARY

1. This Restructuring Paper introduces revised PDO indicators and intermediate

indicators in the Colombia - Consolidation of National Public Management Information

Systems Project, and any accompanying amendments to the Project’s legal documents.

B. PROJECT STATUS

2. The Project has progressed satisfactorily and there has been much progress

towards the achievement of the Project Development Objective (PDO), the project has

already achieved four of its seven PDO level indicators. PDO objectives remain

unchanged and achievable

3. Project components are still expected to be completed before the current closing

date of December 31, 2013. Project was extended on May 9, 2012 for one year mainly to

accommodate the delay in the implementation of Sub-Component 4.2 (Strengthening of

the Public Credit and Treasury Directorate-DGCPTN) which accounts for approximately

18% of project allocation. The US$ 25 million loan has disbursed US$ 19.2 million with

US$ 5.8 million undisbursed as of January 23, 2013.

C. PROPOSED CHANGES

4. Results/indicators. A change in Project progress indicators to both outcome and

output indicators is proposed (as detailed in Annex 1). There is a change to two (2)

outcome indicators. For PDO Level Outcome Indicator 5, it is proposed to change the

baseline and thus yearly targets for measuring tax administration efficiency. The baseline

value was changed from the estimated (September 2009 value) to the real end of year

2009 value, while preserving the target for percentage of increase in efficiency. The

second change is to drop the PDO Level Outcome Indicator 6 proposing the

establishment and staffing of the Center for Fiscal and Financial Studies and replacing it

with a new indicator measuring the number of comprehensive studies in different sectors

while keeping with the objective of increasing the capacity of the responsible unit for

carrying out macroeconomic and fiscal forecasting.

5. The PDO Level Outcome Indicator 6 is also reflected as sub-component in Part

D: 3(e) of the project description of the legal agreement. The current description of the

sub-component is to be changed from “Provision of technical assistance to support

MHCP with the development, establishment and operation of the Center for Fiscal and

6

Financial Studies” to “Provision of technical assistance to strengthen the Technical Vice-

Ministry, especially the General Directorate of Macro Economic Policy, to conduct sound

policy making, through the carrying out of high impact macro-economic and fiscal

technical studies”. This change does not modify implementation arrangements or the

budget allocated to the components of the project.

6. Secondly, there are some intermediate result indicators that are being eliminated or

replaced by others that better capture the results mostly due either to a change of strategy

during implementation or because the activities related to them are no longer financed

under the project. Specifically, changes are proposed for Sub-component 3.2,

Intermediate Results Indicator 5, for Sub-component 4.2, the Intermediate Results

Indicators 5, 6, 7, 8; and for Sub-component 4.5 the Intermediate Results Indicators 12

and 13.

ANNEX 1:

Results Framework and Monitoring

COLOMBIA: CONSOLIDATION OF NATIONAL PUBLIC MANAGEMENT INFORMATION SYSTEMS PROJECT

Project Development Objective (PDO): To improve the transparency, coverage, operation and interoperability of key national financial management information systems that will allow decision

makers to link performance measures with planning, budgeting and other managerial actions

Revised Project Development Objective: Unchanged.

PDO Level Results

Indicators* Co

re

D=Dropped

C=Continue

N= New

R=Revised

Unit of

Measure Baseline

Cumulative Target Values**

Frequency Data Source/

Methodology

Responsibility for

Data Collection YR 1

YR 2

YR 3 YR4

Indicator One: Information

on budget execution - i.e.,

revenues and expenditures –

that is available daily

increases from 85% to 100%

of the total amount of the

National Budget

(Presupuesto General de la

Nación – PGN).

C % Information on

Budget execution

- i.e., revenues

and expenditures-

is available daily

for 85% of the

total amount of

the National

Budget

(Presupuesto

General de la

Nación – PGN)

85%

reconciliation

of

expenditures

and revenues

in real-time

with SIIF-

Nación

100%

reconciliat

ion of

expenditur

es and

revenues

in real-

time with

SIIF-

Nación

100%

reconciliat

ion of

expenditur

es and

revenues

in real-

time with

SIIF -

Nación

Annual Annual reports,

mid-term

review, surveys,

statistical studies,

and

'Transparencia

Financiera'

website

MHCP

Indicator Two: Time lag to

produce aggregate financial

data for the central

government, including

decentralized entities,

reduced from up to 35 days

to 1 day.

C Days 1 day for central

administration,

incl. centralized

entities, and 35

days for

decentralized

entities

1 day for

central

administration

, incl.

centralized

entities, and

35 days for

decentralized

entities

1 day for

both

centralize

d and

decentrali

zed

entities

within the

central

governme

nt

1 day for

both

centralize

d and

decentrali

zed

entities

within the

central

governme

nt


mid-term review,

surveys,


and

'Transparencia

Financiera'

website

MHCP

8

Indicator Three: 100% of

consolidated budget

information (at the level of

individual entities) is

published on-line on a

monthly basis within the first

week of the following

month.

C % Limited

availability of

public financial

administration

-- -- 100% of

Consolida

ted budget

informatio

n (at the

level of

individual

entities) is

published

online on

a monthly

basis

within the

first week

of the

following

month


mid-term review,

surveys,


and

'Transparencia

Financiera'

website

MHCP, DNP,

DIAN

Indicator Four: Average

time to clear customs

decreases from 48 hours to

less than 8 hours.

C Hours Average time

(i.e., hours)

required to obtain

customs

clearance is 48

hours (2009)

24 hours Between 8

and

24 hours

8 hours or

less


mid-term review

DIAN

Indicator Five (revised):

Tax administration efficiency

increases, as reflected by an

increase in the ratio total tax

collection /DIAN’s executed

budget from 103.2 to103. 7

R Ratio

of

total

tax

collect

ion/DI

AN’s

execut

ed

budget

Total tax

collection /

DIAN’s Executed

budget ($103.2 as

of Dec. 2009)

103.3 103.5 103.7 Annual Annual reports,

mid-term review

DIAN

Indicator Six (dropped):

The newly created Center for

Fiscal and Financial Studies

has been staffed and assigned

budgetary resources.

D Text Limited technical

and institutional

capacity for

macro-

programming

-- The

Center for

Fiscal and

Financial

Studies

has been

created

The

Center for

Fiscal and

Financial

Studies

has been

staffed

and

Annual Annual Reports MHCP

9

assigned

budgetary

resources

Indicator Six (new):

Number of studies completed

to strengthen fiscal and

macroeconomic planning.

N Numb

er of

studies

The Technical

viceminister -

(Macroeconomic

policy general

direction - DGPM

has

limited technical

and institutional

capacity

to conduct

macroeconomic

and fiscal studies.

-- 4 4 1 Annual Annual Reports MHCP

Indicator Seven: SIIF and

SUIFP information on the

allocation and execution of

the budget items is fully

consistent

C Text Lack of

consistent

information

between the

investment

information

system (SUIFP)

and the budget

execution system

(SIIF)

Informatio

n from

SUIFP

and SIIF

fully

consistent.

Annual Annual Reports MHCP

INTERMEDIATE RESULTS

Intermediate Result (Component One): Strengthening of Public Management Information Systems within MHCP

Revised Intermediate Result (Component One): Unchanged.

Sub-component 1.1: Integrated Financial Management System - SIIF Nación

Intermediate Result indicator

One: SIIF-Nación implemented

throughout the central

administration (i.e., 63

administrative units [AU]

within the central

C % of

agencies

SIIF I

implemente

d in 63

administrati

ve units

(AU)

SIIF-

Nación

implement

ed in

100%

executing

SIIF-

Nación

implemente

d in 100%

of

executing

SIIF-

Nación

implement

ed in

100% of

executing

Bi-annual Annual reports,

mid-term

review,

surveys,

statistical

studies, and

MHCP

10

administration and 100 AU in

decentralized entities).

within

the central

administrati

on; several

incongruent

systems

used for

financial

administrati

on by

decentraliz

ed entities

agencies

of the

central

governme

nt and

30% of

public

agencies

(estableci

mientos

públicos)

agencies of

the central

government

and 60% of

public

agencies

(establecim

ientos

públicos)

agencies

of the

central

governme

nt and

100% of

public

agencies

(estableci

mientos

públicos)

'Transparencia

Financiera'

website

Sub-component 1.2: MHCP's Integrated Management System (SUG)


Two: Gap between current

competences has been

gradually reduced.

C Text Human

resources

Manageme

nt within

the MHCP

is not

framed

within the

institution's

overall

strategy

Gap

between

current

competen

ces and

new ones

is reduced

progressiv

ely on a

yearly

basis

Gap

between

current

competence

s and new

ones is

reduced

progressive

ly on a year

basis

Gap

between

current

competen

ces and

new ones

is reduced

progressiv

ely on a

year basis


mid-term

review

MHCP


Three: Monitoring and

Evaluation system in place.

C Text No

mechanism

in place to

ensure

quality and

efficiency

of MHCP's

manageme

nt practices

30% 50% 100% Annual Annual reports,

mid-term review

MHCP


Four: Certification of quality

has been obtained for SUG

(Unified Management System).

C Text No

mechanism

in place to

ensure

quality and

efficiency

of MHCP's

30% 50% Certificati

on of

quality

has been

obtained

for SUG


mid-term review

MHCP

11

manageme

nt practices

Intermediate Result (Component Two): Strengthening of Public Management Information Systems within DNP

Revised Intermediate Result (Component Two): Unchanged.

Sub-component 2.1: Further development and consolidation of SUIFP


One: The ratio between

programmed budgetary

resources for investment

projects and requested

budgetary resources for

investment projects has

increased from 81.6% to 92%.

C % 81.60% -- 85% 92% Annual Annual reports,

mid-term

review

DNP


Two: The ratio between the

number of investment projects

programmed and the number of

investment projects registered

has increased from 86.8% to

90%.

C % 86.80% -- 88% 90% Annual Annual reports,

mid-term review

DNP

Intermediate Result (Component Three): Expansion of DIAN’s Integrated Tax and Customs Administration Model

Revised Intermediate Result (Component Three): Unchanged.

Sub-component 3.1: Further development and consolidation of MUISCA


One: The number of high-

impact DIAN procedures that

have been modernized increase

from 20 to 40 (100%).

C Number

of high-

impact

DIAN

procedur

es that

have

been

20 (2009) 26 30 40 Semiannual

Annual reports,

mid-term

review, surveys,

statistical

studies

PIU and DIAN

experts

12

moderniz

ed


Two: Number of pending

obligations (compromisos)

normalized has increased from

0 to 540,000.

C Number

of

pending

obligatio

ns

(compro

misos)

normaliz

ed

0 (2009) 57,542 237, 255 546,227 Semiannual Reports DIAN Experts


Three: The average number of

physical documents required

for customs clearance has been

reduced from 12 to 5.

C Average

number

of

physical

documen

ts

required

for

customs

clearance

12 9 6 5 Semiannual Reports DIAN Experts

Sub-component 3.2: Further Modernization of DIAN’s Processes and Human Resources


Four: The number of

procedures that are subject to

quality audits by DIAN's

internal quality control

procedures has increased from

67 to 199.

C Number

of

procedur

es that

are

subject

to

quality

audits by

DIAN's

internal

quality

control

procedur

es

67 (2009) 100 150 199 Semiannual Reports DIAN Experts


Five (dropped): Staff

Development Plan has been

D % 0% 30% 70% 100%

13

fully implemented.


Five (new): Progress on

development of virtual learning

program for improving

technical capacity of DIAN

staff

N % 21.54%

(December

2010)

-- 70% 100% Semiannual Reports DIAN Experts


Six: Improve DIAN’s National

Transparency Index from 81.25

(2007-2008) to 89.51 by project

closing.

C National

Transpar

ency

Index

rating

81.25

(2007-

2008)

84.0 86.75 89.51 Annual Survey

Transparency

Colombia

Corporation

DIAN


Seven: Number of Systems

Services (Servicios

Informáticos Electrónicos),

transferred to DIAN’s

technology area increases from

12 to 40.

C Number

of

Systems

Services

(Servicio

s

Informáti

cos

Electróni

cos),

transferr

ed to

DIAN’s

technolo

gy area

12 (2009) 20 26 40 Annual Reports DIAN

Intermediate Result (Component Four): Improving the Interoperability of Public Management Information Systems

Revised Intermediate Result (Component Four): Unchanged.

Sub-component 4.1: Inter-operability of Public Management Information Systems


One: Carry out pilots allowing

the disaggregation of

expenditure information.

C Number

of pilots

Limited

interoperab

ility of PM

systems

1 pilot 1 pilot 1 pilot Annual Annual reports,

mid-term

review

MHCP, DNP


Two: Carry out pilots

integrating data generated by

the different government

C Number

of pilots

Limited

interoperab

ility of PM

systems

1 pilot 1 pilot 1 pilot Annual Annual reports,

mid-term

review

MHCP

14

systems.


Three: Full interoperability of

–Nación with SECOP and

Public Debt.

C % Limited

interoperab

ility of PM

systems

100% -- -- Annual Annual reports,

mid-term

review

MHCP


Four: Full interoperability of

SIIF Nación with the following

systems: PAGOS (Banco

República), SILOG (Defensa)

and SOBRETASA (MHCP).

C % Limited

interoperab

ility of PM

systems

-- -- 100% Annual Annual reports,

mid-term

review

MHCP

Sub-component 4.2: Strengthening of the Public Credit and Treasury Directorate


Five (dropped): The

DGCPTN's integrated

management system, SEIGI, is

fully operational. No other

information system is in

operation within the DGCPTN.

D % n/a 0% 0% 100% Annual Annual reports,

mid-term

review

MHCP, DNP


Five (new): The DGCPTN's

integrated management system,

SEIGI, is fully operational. No

other treasury and debt

management system is in

operation within the DGCPTN

(the current debt system is

maintained temporarily to have

a record of historical data).

N % n/a 0% 0% 0% 100% Annual Annual reports,

mid-term review

MHCP, DNP


Six (dropped): The number of

DGCPTN staff that utilizes the

new information system has

increased from 0 to 120.

D The

number

of

DGCPT

N staff

that

utilizes

the new

informati

on

n/a 0 20 120 Annual Annual reports,

mid-term review

MHCP

15

system


Six (new): The percentage of

DGCPTN staff that is required

to use the new information

system, and effectively does so,

has increased from 0% to

100%.

N % n/a 0% 0% 5% 100% Annual Annual reports,

mid-term

review

MHCP


Seven (revised): The number of

methodologies and processes

designed for front, middle and

back office operations has


R Number

of

methodol

ogies

and

processe

s

designed

for front,

middle

and back

office

operation

s

n/a 2 4 6 10 Annual Annual reports,

mid-term review

MHCP


Eight (dropped): The number

of staff persons linked to the

DGCPTN's Trading Room has


D Number

of staff

persons

linked to

the

DGCPT

N's

Trading

Room

n/a 9 12 140 Annual Annual reports,

mid-term review

MHCP


Eight (new): The number of

instruments that the DGCPTN

is able to register in the system

has increased from 15 to 25.

N Number

of

instrume

nts that

the

DGCPT

N is able

to

register

15 15 15 15 25 Annual Annual reports,

mid-term review

MHCP

16

in the

system

Sub-component 4.3: Development of Macro-Programming Tools and Strategic Analysis


Nine: Studies have been

conducted on the economic and

social impact of global

warming.

C Text The DEE

has limited

capacity

to conduct

in-depth

strategic

studies

Studies

completed

Studies

completed

Studies

completed


mid-term review

DNP


Ten: Studies have been

conducted on the economic and

social impact of alternative

social security reform

alternatives.

C Text The DEE

has limited

capacity

to conduct

in-depth

strategic

studies

Studies

completed

Studies

completed

Studies

completed


mid-term review

DNP

Sub-component 4.4: Strengthening of Public Expenditure Oversight at the Sub-national level


Eleven: Plan for the

implementation of Decree 28 is

prepared.

C Text n/a Plan is

prepared.

-- -- Annual Annual reports,

mid-term review

MHCP

Sub-component 4.5: Strengthening Public Expenditure Evaluation Capacity


Twelve (dropped): A

methodology for the

selection of public expenditure

projects for evaluation

purposes is being implemented

D n/a -- Methodolo

gy is

approved.

Methodol

ogy is

applied

for the

selection

of

programs

and

projects to

be

evaluated.


mid-term review

MHCP


Twelve (new): Decrees and

other legal norms to promote

efficiency and effectiveness

have been drafted.

N The legal

framework

requires

inefficient

procedures;

-- -- Document

s with

proposed

adjustmen

ts to the

. Annual Annual reports

MHCP

17

oversight

of budget

execution

is oriented

towards

compliance

rather than

effectivene

ss and

efficiency

legal

norms that

regulate

the budget

process

have been

drafted.


Thirteen (new): Tools for

managerial decision-making,

budget monitoring and

evaluation are available.

N Text Tools and

information

systems

oriented

towards

process

administrati

on and not

for

managerial

decision

making.

Insufficient

information

for

managerial

decision

making

-- -- Digital

Dashboar

d

designed

and

published.

Budget

execution

information

is on-line

and

consolidate

d as a tool

of

information

and

communica

tion, with

digital

dashboards

for decision

making.

Annual Annual reports

MHCP

*Please indicate whether the indicator is a Core Sector Indicator (see further http://coreindicators)

**Target values should be entered for the years data will be available, not necessarily annually

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