GOVERNMENT OF GHANA MINISTRY OF FINANCE COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/ DISTRICT ASSEMBLIES November 2012 COMPOSITE BUDGET MANUAL FOR MTROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES PREFACE Comprehensive and credible local government is essential for the smooth implementation of programmes and projects at the local level to improve the living conditions of the people of Ghana. It is in the light of this that Ministry of Finance and Economic Planning (MOFEP), Local Government Service Secretariat (LGSS), Ministry of Local Government and Rural Development (MLGRD) and other stakeholders are pooling together all efforts to improve the budgeting process of Metropolitan, Municipal and District Assemblies (MMDAs). In 2011, Ministry of Finance and Economic Planning set up National and Regional Technical Working groups to coordinate, monitor and provide backstopping support to the District Composite Budget Committees to formulate and implement for the first time their District Composite Budgets. This Composite Budget Manual has been developed to facilitate and guide preparation, approval, execution, monitoring and evaluation of composite budget at the local level. The composite budget seeks to harmonize the budget of all decentralized departments and bring them under the ambit of the Assemblies’ budgeting process. This manual serves as the main source document for Budget Committees of MMDAs and stakeholders in the local government budgeting process. It should guide MMDAs and other stakeholders in the formulation and implementation of the District Composite Budget. I urge all the relevant stakeholders involved in the preparation and implementation of the MMDAs composite budget to be guided by the principles and steps outlined in this manual. HON. SETH TERKPER MINISTER COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 1 ACKNOWLEDGEMENT We wish to acknowledge the immense efforts of the National and Regional Composite Budget Technical Working Groups and all stakeholders for their time, inputs and tireless efforts in the preparation of this Manual. The preparation of this manual was also made possible with the support, contribution and useful comments from all stakeholders including Ministry of Local Government and Rural Development (MLGRD), Controller and Accountant General’s Department (CAGD), Auditor General’s Department (AGD), National Development Planning Commission (NDPC), Local Government Service (LGS) and Institute of Local Government Studies (ILGS). Special appreciation also goes to the Regional Budget Officers for their immense technical support. Finally, MoFEP wishes to express its profound gratitude to its Development Partners, especially, GIZ and EU, for their support to the development of this Manual. SIMEON PATRICK KYEI DIRECTOR OF BUDGET COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 2 LIST OF ACRONYMS Acronyms Meaning AAP AGD CAGD DACF DBA DBC DBO DFO DPCU DPO GoG GPRS GSGDA IAA ILGS LGSS MDA MLGRD MMDAs MMDCEs MOFEP MTDP MTEF NDPC NGO PM POCC RBC RCC RPCU SMART Annual Action Plan Auditor Generals Department Controller and Accountant Generals Department District Assemblies Common Fund District Budget Analyst District Budget Committee District Budget Officer District Finance Officer District Planning and Coordinating Unit District Planning Officer Government of Ghana Ghana Poverty Reduction Strategy Ghana Shared Growth Development Agenda Internal Audit Agency Institute of Local Government Studies Local Government Service Secretariat Ministries, Departments and Agencies Ministry of Local Government and Rural Development Metropolitan Municipal and District Assemblies Metropolitan, Municipal District Chief Executives Ministry of Finance and Economic Planning Medium Term Development Plan Medium Term Expenditure Framework National Development Planning Commission Non-Governmental Organizations Presiding Member Potentials, Opportunity Constraints & Challenges Regional Budget Committee Regional Coordinating Councils Regional Planning and Coordinating Unit Specific, Measurable, Achievable, Realistic & Time Bound Urban Development Grant UDG COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 3 TABLE OF CONTENT LIST OF ACCRONYMS .................................................................................................... 3 DEFINITIONS ..................................................................................................................... 5 CHAPTER 1 INTRODUCTION ............................................................................................................... 9 OBJECTIVES OF THE MANUAL………………………………………………………….10 CHAPTER 2 DEVELOPING A DISTRICT MTEF BUDGETING PROCESS .............................. 11 The District MTEF Budget………………………………………………………................13 CHAPTER 3 OVERVIEW OF COMPOSITE BUDGETING .............................................................. 18 Coordination of budget process …………………………………………………………… .23 Budget Calendar…………………………………………………………………..………….24 CHAPTER 4 COMPOSITE BUDGET PLANNING AND PREPARATION ....................................... 25 Planning Stage………………………………………………………………………………. 25 Preparation Stage…………………………………………………………………………… 28 Costing of activities………………………………………………………………….……… 29 CHAPTER 5 APPROVAL PROCESS ................................................................................................... 33 Review by Sub Committee………………………………………………………………….. 33 CHAPTER 6 BUDGET IMPLEMENTATION...................................................................................... 35 Procurement Plan………………………………………………………………………….. 35 Cash /Wok Plan……………………………………………………………………………. 35 Cash Ceiling……………………………………………………………………………… 35 Release of funds…………………………………………………………………………… 37 Accounting recording and reporting………………………… ……………………….. 40 CHAPTER 7 MONITORING AND EVALUATION ............................................................................. 44 Legal Framework…………………………………………………………………………….44 Annexe1 Financial Reporting Formats…………………………………………………………..39 COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 4 DEFINITIONS Below are some of the definitions, terminologies and concepts applied in the budget process; Budget The term budget is derived from the French word "Budgette" which means a "leather bag" or a "wallet". In simple terms, budget shows the income and expenditure of government or an organization for a specified period. Budgeting on the other hand is the process of preparing a budget. Approaches to budgeting include; Line-item budget Line Item Budgeting is arguably the simplest form of budgeting. The approach links the inputs of the budget to the system. It appears in the form of accounting documents that express minimal information regarding purpose or an explicit object within the organization. Strategic Budgeting This involves identifying new, emerging opportunities, and then building plans to take full advantage of them. This is closely related to zero based budgeting and helps organisations to concentrate on gaining competitive advantage Zero-base budgeting With zero-base budgeting, you begin with no preconceptions. In principle, zerobased budgeting begins with the assumption that the function for which the budget is being prepared does not exist. In practice, however, it is generally based on the ‘survival’ level of expenditure as identified by (say) the department manager. COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 5 Incremental budgeting Incremental budgeting involves taking last year’s figure and adding a percentage on for inflation or whatever, or even taking a percentage off, due to perhaps, downsizing. Activity based budgeting This examines individual activities and assesses the strength of their contribution to organisations success. They can then be ranked and prioritised, and be assigned appropriate budgets. Activities are tied to strategic goals, objectives and outputs after which the costs of the activities needed are used to create the budget. Programme Based Budgeting Unlike the line-item budget, which lists total departmental appropriations by items for which the organisation will spend funds, a program budget displays a series of programme which delineates all the costs associated with the programme Performance Budgeting Performance budgeting is the same as program budgeting, except that one additional component—performance—is included to tie expenditures for each program to specific goals established for that program. Multi-year year budgeting It is just what it sounds like. Organizations and its departments develop two-or more year budget projections of revenues and expenses. Budget classification Budgets can be classified into two types .They are: a. Functional Classification – expenditures are classified according to the main purposes or functions. Examples, Economic, Infrastructure, Social, Public Safety etc COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 6 b. Economic Classification – expenditures are classified according to the kinds of transactions (for goods and services and financial markets) and income distribution, e.g. compensation of employees, goods and services and Assets etc. For the composite budgeting process, the above classifications would be used which is in line with the Government Financial Statistics adopted by Ghana Balanced Budget A Budget is said to be balance when total expenditures are equal to the total revenues. Public Accounts The public accounts are the government's financial statements. They are records of a state's revenues and its outgoings. These accounts are where one would look to analyze a state's fiscal position. The subnational, central and the quasi-government enterprises together constitute the general government public accounts reporting. Budget Deficit/Surplus The term budget deficit is used in a situation when expenditures are planned to exceed revenues, while the term budget surplus is when revenues exceed expenditures. Fiscal Year The Fiscal Year is the Government’s accounting period, and runs from 1st January up to 31st December each year. The budgets are closed on 31st December. Unutilized/unexpended balances of appropriations at the end of a fiscal year shall automatically lapse. Virement The agreed transfer of money from one budget heading, to which it has been allocated, to another budget heading MTEF Medium Term Expenditure Framework (MTEF) is a transparent planning and budget formulation process that attempts to improve the decision making process so as to COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 7 link Government policies, priorities and requirements within limited resource constraint. The key features of the MTEF approach are A medium term perspective to budget planning usually three years An explicit linkage between policy priorities and resource allocation An emphasis on the efficient use of limited public resources Composite Budget A Composite Budget is an aggregation of projected revenues and expenditures of the Departments and institutions of the MMDAs Public Financial Management Public Finance Management (PFM) basically deals with all aspects of resource mobilization and expenditure management in government. Just as managing finances is a critical function of management in any organization, similarly public finance management is an essential part of the governance process. Public finance management includes resource mobilization, prioritization of programmes, the budgetary process, efficient management of resources and exercising controls. Decentralization Decentralization is the process of dispersing decision-making governance closer to the people and/or citizens. It involves the transfer of power and resources from national governments to subnational governments or to the subnational administrative units of national governments. Fiscal Decentralization Fiscal decentralization generally refers to the transfer of taxing and spending powers from the control of central governments authorities to local government authorities COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 8 CHAPTER 1 INTRODUCTION 1.0 Background The current decentralization system in Ghana started in 1988, with PNDC Law 207 that established the District Assemblies as the highest political and administrative authority in the district. Before then, there had been some political, administrative, planning and fiscal decentralization arrangements which were implemented through various legal frameworks that had been enacted. In 2009 Government decided to deepen the decentralization process by establishing the Departments of the District Assembly (administrative decentralization) and passed the Legislative Instrument (LI) 1961 (2009). To give meaning to the administrative decentralization reforms that took place following the enactment of LI 1961, in 2011, government also decided to accelerate fiscal decentralization reforms, to make funds available for MMDAs to deliver on their mandates. The Composite Budget implementation is a major step in ensuring that a comprehensive picture of the revenue and expenditure requirements of assemblies is obtained, so that they can be adequately funded. It will also help to improve transparency and accountability in the management of public funds at the District level. Ghana’s Public Financial Management (PFM) system is based on appropriate legal and regulatory framework which clearly sets out budget and accountability structures. Chapter 20 of the 1992 Constitution, the Local Government Act 462 and other laws and regulations, mandate the Assemblies to formulate and execute plans, COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 9 programmes and strategies for the overall development of their districts. Section 92 of the Local Government Act requires that MMDAs would prepare and approve their budgets. These laws also give the Assemblies the authority to levy and collect rates, fines and fees. Previously the Assembly’s Central Administration budget conformed to the District’s Annual Action Plan (AAP) which is derived from the District Medium Term Development Plan (MTDP). However the decentralised departments’ budgets were aligned to their parent Ministries’ Sector plans with very weak link to the Assemblies’ MTDPs and AAPs. The effect of this uncoordinated planning and budgeting process at the district level undermined the decentralization policy. The coming into effect of L. I. 1961, 2009 sought to address the inherent difficulty associated with the assignment of functions and responsibilities and the budgeting process at central and local government levels. The composite budget process allows for the integration of the Assemblies’ Central Administration Budgets and the departmental budgets to ensure better coordination, ownership, control and accountability of the budgeting process at the MMDA level. 1.1 Objective of the Manual The main objective of this manual is to serve as a user guide for the preparation of a composite budget. It also serves as a material for training. Specifically, the manual is to assist Regional and District Budget Committees in the systematic analysis of budget data, forecasting, and costing of projects and programmes in the MTDPs and AAPs of the Assemblies. COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 10 CHAPTER 2 DEVELOPING A DISTRICT COMPOSITE BUDGETING (MTEF) PROCESS 2.0 Introduction The District Medium Term Development Planning process and the MTEF Strategic Planning Process which is the basis for formulating the Budgets of central government line Ministries and Department go through similar processes. Medium Term Development Plans of assemblies should therefore be used as a basis for formulating the district composite budgets in line with the MTEF framework. A summary of the Strategic planning process and the DMTDP planning process are presented in Figures 2.1 and 2.2. Figure 2.3 and the section below illustrate the similarities between the two processes, and demonstrate how the DMTDP can be linked to government policy objectives, and the MTEF process in the formulation of the district composite budget. Fig 2.1: Summarized DMTD Planning Process 1. 2. 3. 4. 5. 6. 7. 8. 9. 10. 11. 12. 13. 14. 15. 16. 17. 18. 19. 20. Performance Review Compilation of District Profile (Current situation) Linking Identified Key Development Issues/Problems to the Thematic Areas of the Medium-Term Development Policy Framework (MTDPF) Prioritization of Key Development issues Application of Potentials Opportunities Challenges Constraints (POCC) Development Focus Setting District Development Goal compatible with National Goal of the MTDPF Development Projections (i.e. for 2010-2013) Formulation/Adoption of District Objectives in relation to the MTDPF Formulation/Adoption of Strategies to achieve objectives Formulation of Development Programmes Formulation of Joint Development Programmes Application of Sustainability tools Formulation of Composite Programme of Action Preparation of Indicative Financial Plan Preparation of Composite Annual Action Plans Linking the Plan with Annual Budget Implementation of Annual Action Plans Monitoring and Evaluation Development of District Communication Strategy COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 11 Fig 2.2: MTEF Strategic Planning Process Why we exist, for whom, our core business and values Mission Environmental Scan Stakeholder Analysis 1 4.1 2 4.2 3 4.3 4 4.4 Policy Strategy Review Objectives (What should we achieve to get to our mission? 5 4.5 Where are we now? SWOT-Strengths, Weaknesses, Opportunities and Threats 4.6 SMART OUPTPUTS (What should we produce in order to achieve the objective?) 4.1.1 4.1.2 Activities (What do we have to do to produce?) 4.1.3 4.1.4 4.1.5 4.1.5.1 4.1.5.2 4.1.5.3 INPUTS (resources needed for carrying out activities) good practice use costing forms COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 12 Fig 2.3: Linking DMTD Planning process to the MTEF Process NMTDPF DMTDPs AND AAPs DISTRICT MTEF COMPOSITE BUDGET 2.1 The District MTEF Budget: The District MTEF Budget should be based on the Assembly’s Medium-Term Development Plan and Annual Action Plans. There is a relationship between the medium-term development planning process and the Strategic Planning Process. In principle, both processes draw their inspiration from the existing national development policy framework. The current National Medium Term Development Policy Framework (NMTDPF) is the Ghana Shared Growth and Development Agenda (GSGDA). Planning guidelines are issued for the preparation of the Medium term Development Plans. The Planning Guidelines and the MTEF Strategic Planning Manual (1998) emphasize the need to analyze the national objectives and priorities as defined by the national development policy framework. The National Framework therefore provides the basis for deriving the respective missions and strategic objectives of the Assembly. In both the medium term development planning process and the strategic planning process there are steps to conduct an internal and external environmental scan for the diagnosis and identification of the key issues. In COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 13 the strategic planning process the SWOT (Strengths, Weaknesses, Opportunities and Threats) analysis is applied to unearth the issues facing the ministries. In the medium term development planning process in accordance with the planning guidelines the POCC analysis (Potentials, Opportunities, Constraints and Challenges) is used by the MMDAs. The bottom line is that both approaches help in scanning the environment. Other steps included in both processes which are quite similar are setting the Goals, identifying the required outputs needed to be produced to achieve the objectives, identifying activities to be carried out to produce the outputs and identifying lower priority activities that can be eliminated, scaled down or postponed. It is important to note that Stakeholder analyses, objective setting and review of the programmes should be consistent with national policies in both processes The detailed processes involved in the development of the District MTEF Budget which are covered in the Medium Term Development Planning process are outlined below: 2.2 Mission Statement The starting point of the budgeting and MTEF process is the statement of the Assembly’s Mission. . The Mission Statement may be derived from the Legislative Instrument that established the MMDA. It broadly, spells out why the MMDA exists or its overall mandate, what business it is involved in and who are its stakeholders (customers, target beneficiaries etc.). Sometimes changes in the status of the Assembly may occur. For instance, a District Assembly may be elevated to a Municipal Assembly. If such a change should occur, the Mission Statement of the Assembly must be reviewed and re-defined to reflect the new status and mandates. The Mission statement of the Assembly plays an important role in considering the lead implementing and collaborating agencies for both NMTDPF and DMTDP. 2.3 Goals The next stage in relation to the Mission Statement is the Assembly’s Development Goal. A goal is an anticipated desired state, which reflects a general improvement from a weak or poor state to a better one in the medium to long-term. The DMTDP COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 14 identifies the goal of the Assembly which should be compatible with the National Development goals and this should be adopted for the District MTEF budget. 2.4 Key Focus Areas The NMTDPF identifies Key Focus Areas together with appropriate themes to guide in national development planning. The DMTDP should be aligned with these key focus areas/thematic areas and they should reflect in the District MTEF Budgets. 2.5 Objectives The objectives of the Budget should be driven by the goals of the District. An objective is a specific aim intended to be achieved within a specified time frame. The DMTDPs should have specific, measurable, achievable, realistic, and time-bound (SMART) objectives and they should be aligned with the National Development Policy Objectives. The objectives should be the basis of deriving activities for the District MTEF Budget. Aligning the district level objectives to national level objectives help to facilitate the integration of district budgets with national Budgets using a harmonized revenue and expenditure coding system referred to as the chart of accounts. 2.6 Outcomes The Outcomes relate closely to the objectives of the MTDP. It is the overall results achieved through the combined efforts of the Assembly and its stakeholders. 2.7 Outputs The outputs are the actual goods and services produced by the activities. In developing the District MTEF Budget, outputs should be identified based on the kind of activities that are going to be carried out. 2.8 Activities Activities are the means or steps for the production of goods and services. The activities must deliver outputs. They are undertaken with the inputs to attain the expected outputs. Activities must be SMART. In the Assembly’s DMTDP, activities are identified under the Programme of Action (PoA) for the plan period. The activities should be grouped under Annual Action Plans on a year by year basis. The activities for the current year under consideration and two outer years should be adopted for COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 15 the formulation of the District Budget, covering a three year period, in line with the MTEF Framework. 2.9 Inputs Inputs are the resources required to carry out an activity. They may be the financial, human and technical resource, which is needed to be applied in different combinations and proportions to enable the activities to deliver the expected results. The inputs for the activities over the 3 year period should be costed to derive the District MTEF Budget. 2.10 Costing To cost for an activity, the quantity of the input must be multiplied by the unit cost of that input and the frequency of use of the input. The entire costing process involves the following steps: Step 1 Agree on the expected Outputs that will lead to the achievement of the Objectives Step 2 Identify the Activities that will produce the Outputs Step 3 Identify Inputs for the Costing of the Activities Step 4 Estimate the Cost of the Activities Step 5 Compare total costs of activities to projected available Resources Step 6 Reprioritize and reduce outputs and activities to fit within project available Resources (if the need arises) COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 16 The entire costing process is illustrated as follows: COSTING Process Mission Objectives Step 1 Step 2 Step 3 Year One Outputs Year Two Outputs Year One Activities Year Two Activities Inputs Inputs Step 4 Estimate the cost and prepare budget Step 5 Resources: IGF GOG Donor Resources: IGF, GOG, Donor Reprioritization Reprioritization Step 6 Estimate the cost and prepare budget COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Year Three Outputs Year Three Activities Inputs Estimate the cost and prepare budget Resources: IGF, GOG, Donor Reprioritization Page 17 CHAPTER 3 OVERVIEW OF COMPOSITE BUDGETING 3.1 Context The term budget is derived from the French word "Budgette" which means a "leather bag" or a "wallet". In simple terms, budget shows the income and expenditure of government for a specified period. Budgeting on the other hand is the process of preparing a budget. In summary, the purpose of budgeting is to: Provide a forecast of revenues and expenditures, Enable the actual financial operation of the organisation to be measured against the forecast. Establish the cost constraint for a project, program, or operation. Legal Framework for MMDAs’ Budgeting in Ghana Ghana’s Public Financial Management (PFM) system is based on a good legal and regulatory framework which sets out appropriate budget and accountability structures and is backed by the 1992 Constitution and other Acts of Parliament. The budget cycle in the assemblies is guided by Local Government Act 1993 (Act 462) National Development Planning Systems Act 1994 (Act 455) and DACF Act 1993 (Act 455). Audit Service Act 2000. In addition, the Financial Administration Act (FAA) Act 2003 (Act 654) and Financial Administration Regulations (FAR), 2004, Public Procurement Act, 2003 (Act 663) Local Government Service Act, 2003 (Act 656) Internal Audit Agency Act, 2003 (Act 658), Financial memorandum, 2008, Regulations, 2004 (LI 1802) Decentralization Policy & Framework reviewed in 2010 COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 18 and lastly L.I 1961, 2009. These laws mandate the assemblies as Planning, budgeting and rating authority. Section 92 (3) of the local Government Act (Act 462) envisages the implementation of the composite budget system under which the budgets of the departments of the District Assemblies would be integrated into the budgets of the District Assemblies In Ghana, the term ‘Composite Budget’ means an aggregation of projected revenues and expenditures of the Departments and institutions of the MMDAs. It is defined under Section 92 (3) of the Local Government Act of 1993 as: ‘The budget for a district shall include the aggregate revenue and expenditure of all departments and organisations under the District Assembly and the District Co-ordinating Directorate, including the annual development plans and programmes of the departments and organisations under the Assembly.’ Composite budgeting is a tool to effectively facilitate, the coordination, harmonisation of planning and budgeting at the district level. In 2003, a pilot was implemented in 3 districts namely Dangme West, Dangme East and Akuapim North, and was extended to 25 districts in 2005. In 2006/07 all districts in the country prepared their Composite Budgets but never implemented them. A policy decision was therefore taken in 2011 to enable Composite Budgets to be prepared and implemented by all MMDAs. 3.2 Objectives: The composite budgeting process aims at ensuring: o cost effectiveness in the planning and implementation of district programmes; o holistic development of the MMDAs o transparency in the use of resources; o effective planning and utilization of resources; o a unified approach for district and national budgeting system; o uniform system of monitoring, evaluation and reporting system; and determination of the total inflow and outflow of resources COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 19 3.3 The Composite Budget process The goal of the Composite Budget is to ensure that the policies and programmes of the Assembly are implemented in an integrated manner using the budget as the tool. Each stage therefore in the budget process has a role in helping to develop and implement the policies of the MMDA and integrating local priorities aligned to the national policies. As Figure 3.1 illustrates, Composite Budget moves through five stages in the budget cycle. They are: Planning Preparation Approval Implementation Monitoring and Evaluation. Figure 3.1 Composite Budget Cycle COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 20 The structure of each stage of the composite budget process is summarized in Table 3.1. Table 3.1: Structure of the Annual Composite Budget Cycle Budget Stage Relevance Key Activities Planning Helps to -determine how much money is available to spend, -Review outer year revenue and expenditure projections in the District MTEF Budget (Feb-May, with additional work into September) -establish the priorities for the year -plan ceilings for each department based on the priorities -Review current and past year revenue and expenditure performance Who Leads the Work District Planning Coordinating Unit Development Planning subcommittee and other relevant subcommittees Budget Committee Key Outputs -Revised annual action plans -Fee fixing resolution -Revised Revenue Projections -Ceilings for each MMDA department -Review fees in consultations with ratepayers and secures approval -Estimate IGF revenues to determine how much will be available to be spent Review medium term Plan and revise annual action plans -establish funding gaps -Organize departmental hearings to determine ceilings COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 21 Preparation (June– September Approval Implementation Monitoring and Evaluation (year round) -Develop the budget for achieving the policy objectives of the MMDA, matching resources to results Legislative review, and approval of the annual budget -Prepare departmental budgets -Consolidate the budgets to form the Composite Budget Discuss and approve the estimates at various levels F&A Executive Committee Regional Budget hearings Executive Committee General Assembly Budget Committee Draft Composite Budget F &A Executive Committee RCC General Assembly Execute the work described in the annual budget and achieve the policy objectives Submission & implementation of departmental work plans in accordance with approved budget DCE/DCD/DFO/DB O/DPO/DIA Monitor and confirm that the budget was executed appropriately, evaluating progress towards achieving policy objectives, identifying lessons learned Vouching and verification Internal Auditors Ensure compliance with internal control systems in the Assembly Physical inspection of projects Heads of departments/cost centres External Auditors Preparation and review of financial reports Inspection of books and accounts Draft budget estimates of each department DPCUs F&A subcommittee/Works sub-committee and key relevant subcommittees COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Approved Composite Budget Various documentation approving and recording financial transactions such as payment vouchers, contracts etc. Performance reports, progress reports on projects and programmes, financial and audit reports Page 22 3.5 COORDINATION OF BUDGET PROCESS The entire budget process shall be coordinated by the MMDA Budget Committee. In accordance with the FAR, each assembly shall set up a Budget Committee which shall be made up of (a) The Coordinating Director, as chairperson; and (b) Heads of Budget Management Centres or Cost Centres (A Budget Management Centre is a unit responsible for budget formulation, implementation, monitoring and evaluation). (3) Budget Officer, who shall be the member secretary The Budget Committee shall (a) review and formulate the strategic plans based on the policies of government; (b) review department’s revenue collecting activities; (c) allocate resources based on objectives, outputs and activities; (d) coordinate, and consolidate the budget; (e) monitor and evaluate budget performance; and (f) report in accordance with the Financial Administration Regulations. 3.7 Budget Calendar The Budget and Rating Department which is the technical wing of the Assembly for budget issues, shall issue a calendar at the beginning of each year to guide the budget process. Table 3.2 outlines the budget calendar which should guide each MMDA. COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 23 Table 3.2 Budget Calendar Activity Time Frame Responsible Agency Deliverables /Outputs Review outer year projections in the District MTEF Budget Review of AAP and MTDP Review current and past year revenue and expenditure performance Update database for revenue Feb-April DPCU Revised projections May-June June DPCU Budget unit Revised AAP gaps established Feb-June Budget unit organize ratepayers consultations May-July Budget unit secure approval for revised fees Estimate IGF revenues to determine how much will be available to be spent Issue budget guidelines May June Budget unit Budget unit Nominal Rolls established for all ratepayers Consultations with ratepayers conducted fees revised Revenues Projected July MOFEP Organize departmental hearings to determine ceilings for all departments Budget Committee training Submission of departmental draft budgets F&A meeting to discuss budget July Budget committee FDU/RBC Budget Unit June August August Executive Committee meeting to discuss budget Chairman of F&A September Chairman of Exe C’tt Regional budget hearing September RBC Executive Committee meeting to review RCC inputs General Assembly Approval Preparation of Procurement plans Submission of inputs to MoFEP through LGSS/MLGRD Gazetting of the fee fixing resolution September Chairman of Exe C’tt October PM November November Composite Budget Guidelines issued Ceilings determined Budget committee trained Draft Dept Budgets submitted Comments from F &A received Comments from Executive Committee received recommendations and comments received from RCC comments from Execo MMDA budget approved Approved National Budget Oct- Nov COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 24 CHAPTER 4 COMPOSITE BUDGET PLANNING AND PREPARATION 4.1 Planning Stage The activities include: Formulate/Review Annual Action Plans from the MTDP Formulate 2 outer year annual action plans/Review outer year projections in previous District MTEF Budget Review current and past year revenue performance Review fees charged in consultations with ratepayers Estimate revenues to determine how much will be available to be spent Organize departmental hearings to determine ceilings for all departments 4.1.1 Review of outer year projections in the District Composite Budget The DPCU shall review the two year projected activities and programs, and assess price changes and other possible factors that might affect implementation. The DPCU shall also identify if there is any major policy shift either at the national level or by the MMDA that might affect outer year planned projects and programmes. In the case of new districts the process starts with the formulation of a Medium Term Development Plan and Annual Action Plans 4.1.2 Review of AAP of the MTDP The District Planning and Coordinating Unit (DPCU) shall assess the progress of all on-going projects and programmes being implemented, the status of implementation, challenges and identify projects which cannot be completed at the end of the fiscal year and need to be rolled over COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 25 The DPCU shall submit a report on the findings and recommendations to the budget committee 4.1.3 Review current and past year revenue performance The three main sources of revenue to local governments are: 1. Intergovernmental transfers Intergovernmental transfers constitute the dominant revenue for financing local government budget. In Ghana, the main intergovernmental transfers are; block grants-DACF and categorical grants for sectors such as MOFA, Feeder and Urban roads, Social Welfare/Community Development etc. 2. Internally generated revenue Internally generated revenues constitute funds that are generated from within the jurisdiction of the local government as opposed to funds that generated from outside. As indicated in the Act 462, in Ghana, the main sources are: - Rates, Fees, licenses, Fines and penalties, permits, profits from public sector enterprises, Gifts, etc 3. Borrowing Aside intergovernmental transfers and internally generated funds, borrowing is also another instrument for financing the gap between expenditure responsibilities and revenue assignment. The exception is that borrowing is appropriate for certain types of local spending, such as long-term capital development projects. It is generally not for recurrent spending as has been the practice in certain local governments. One of the main instruments among others, used extensively by local governments is municipal bonds. Municipal bonds are debt obligations issued by states, cities and other governmental entities, which use the money to build schools, highways, hospitals, sewer systems, and many other projects for the public good. In Ghana, the local government Act 1993, Act 462 states “a District Assembly may raise loans or obtain overdrafts within Ghana of such amounts, from such sources, in such manner, for such purposes and upon such conditions as the Minister in consultation with the Minister responsible for Finance, may approve; except that no approval is required where the loan or overdraft to be raised does not exceed COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 26 ¢2,000.00 and the loan or overdraft does not require a guarantee by the Central Government”. The municipal financing bill which was prepared in 2008 is being revised for implementation. Until the revision is done and the provision in the law is repealed or amended, all assemblies are to comply with the provision in the Act. The Budget and Rating Department shall: Analyse the previous year and current half year IGF revenue performance to establish the trend Review and update the database of all revenue sources to ensure the adequacy and reliability of the data Review all other revenue sources including central government transfers such as those from the MDAs, retained IGF, District Assemblies Common Fund (DACF), District Development Facility (DDF) and Urban Development Grant (UDG), NGO transfers and other development partner special transfers. Review the expenditure performance and establish the funding gap if any 4.1.4 Review of fees in consultations with ratepayers The budget and rating department of the assembly shall conduct a desk review of the existing fees. The list of fees charged should also be updated to include new sources of revenue identified. This shall be discussed at the Budget Committee. The Budget Committee, in collaboration with representatives of the F&A subcommittee, shall conduct rate payer’s consultations on the proposed charges to build consensus for easy payment. After the consultations the charges shall be revised to reflect the consensus reached during the consultations and presented to the Finance & Administration Sub-Committee of the Assembly. The Finance and Administration Sub-Committee, after studying and being satisfied, shall present the draft charges to the Executive Committee of the Assembly for further discussions with reports/notes on all the consultations. COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 27 After reviewing the draft, the Executive Committee shall present same to the General Assembly for approval. The General Assembly shall study the document and approve the new charges for the year by resolution which should be gazetted before the end of the year. 4.1.5 Revenue projections Based on the new approved fees, and on available data on all rateable populations and items, the budget unit shall estimate new IGF revenues for inclusion in the budget. The Budget Unit shall estimate for other revenue sources such as transfers from national offices, NGOs, donors etc. based on a trend analysis. 4.2.0 Preparation stage 4.2.1. Budget Guidelines MoFEP shall issue Budget Guidelines, which shall include highlights of financial policies and relevant economic information such as the inflation rate, exchange rate, and budget ceilings, etc. The purpose of the Budget Guidelines is to provide information on: o national Policy Priorities; o indication of revenue the MMDA should expect from national ministries and other GOG transfers o information to be submitted in support of budgetary proposals by MMDAs; o Procedures to be followed by budget committees in preparing, submitting and implementing the budget. Each MMDA may prepare and issue additional guidelines within the framework of the national guidelines for budget preparation to their departments to address specific local issues. 4.2.2 Departmental hearings The Budget Committee shall organise an internal hearing for all the departments. In doing so, the Committee shall discuss and review the departments’ policies and COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 28 programmes to ensure that they are consistent with the overall goal of the Assembly as contained in the MTDP. The Budget Committee shall propose budget ceilings for all departments. The ceilings should be based on the total ceilings communicated through the budget guidelines issued by MOFEP and other revenue sources including the IGF, Retained IGF, DACF, DDF and other development partner funds. 4.2.3 Preparation and Submission of Budget Proposals Heads of departments of MMDAs shall prepare and submit to the Budget Committees their draft budgets based on the ceilings given to them as inputs into the Composite Budget. 4.2.4 Costing of activities Expenditure These are cost of activities which are met from the revenue. They are classified into two types a. Functional Classification – the classification is according to the main purposes or functions. Examples, Economic, Infrastructure, Social, Public Safety etc b. Economic Classification – expenditures are classified according to the kinds of transactions (for goods and services and financial markets) and income distribution, e.g. recurrent (compensation of employees, goods and services) and Capital (Assets or Non-financial ). Any projected expenditure which is incurred for creating asset with a long life is capital expenditure. Recurrent expenditure on the other hand is an expenditure, which does not result in the creation or acquisition of fixed assets. It consists mainly of expenditure on wages, salaries and supplements, purchases of goods and services and consumption of fixed capital. 4.2.4.1: Compensation of Employees Costing of compensation of employees is estimated by grades (covering established and non-established positions). It also includes all allowances which accrue to certain officers by virtue of the positions and job functions. As Table 4.1 illustrates, COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 29 the total compensation for a particular grade is estimated by adding up the total salaries of personnel on that grade. In the case of allowances, it is the number of officers to benefit from the allowances multiplied by the annual allowance. Table 4.1 Costing Compensation of Employees Grade Staff Annual Basic Strength Salary/allowance Salary/Allowance Director 1 24,000.00 24,000.00 GoG Snr Budget Analyst Casual Labourer 2 16,000.00 32,000.00 GoG 10 2,000.00 20,000.00 IGF Bicycle Allowance 5 20.00 100.00 GoG Travel Allowance 50 120.00 6,000.00 GoG Total Total Funding 82,100.00 4.2.4.2. Goods and Services Costing of goods and services involves the costing of inputs needed to undertake the respective activities. Inputs are aligned to the accounts classification of the Chart of Accounts. To arrive at the total cost of the input, multiply the input quantity, input frequency and the unit cost (QTY x FRQ x Unit cost). As illustrated in Table 4.2, to arrive at the total cost of the activity, the total input cost is multiplied by the activity frequency. COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 30 Table 4.2 Costing of Goods and Services Activity : Organise Costing training for the staff of LGS annually Year 1 Activity frequency Year 2 1 Inputs for Year 1 2 QTY Training materials Hire of venue 30 2 1 (no. of people) (no. of rooms) 3 (each wkshop) (no. of days) 3 (no. of days) 1 Year 2 8,700 TOT COST (QTYxFRQ xUNIT COST) UNIT COST FRQ Refreshmen (no. of t 30 people) TOTAL Annual Expenditure on Activity* Year 1 4,350 Year 3 30 500 5 (per material) (per room) (per day) FUNDING 900 GoG 3,000 GoG 450 4,350 GoG Year 3 4,350 Notes: * total activity cost for the year = activity frequency X total actvity cost. These totals will be calculated by the software COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 31 4.2.4.3 Non-Financial Assets Costing non-financial assets follows the pattern illustrated in section 4.2.4.2. Table 4.3 illustrates an example of costing the construction and furnishing of an office building. Table 4.3 Cost of Non-Financial Asset Activity: Construct and furnish 2NO 6-unit Classroom Block in Akyem Tafo by Dec 2012 Activity Frequency Year 1 Year 2 1 Inputs Qty School Building Frq 2 Purchase of Furniture & Fittings Year 3 0 12 0 Unit Cost ToT Cost Funding 1 270,000.00 540,000.00 DACF 1 3,000.00 36,000.00 DACF 576,000.00 Annual Exp on Activity Year 1 Year 2 Year 3 576,000.00 - - 4.2.5 Preparation of Draft Estimates The projected revenue and expenditure estimates of the various departments of the Assembly shall be consolidated by the Budget Unit to prepare the draft Composite Budget of the Assembly. COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 32 CHAPTER 5 APPROVAL PROCESS Figure 5.1 illustrates the stages in the approval process for the Composite Budget of Assemblies. Figure 5.1 Composite Budget Approval Process 5.1Review by Sub-committees 5.1.1 Finance and Administration Sub-Committee Based on Regulation 13a of the Local Government Financial Memorandum (2004), the draft budget prepared by the Budget Committee through the Management shall be submitted to the Finance and Administration Sub-Committee (F&A) for their COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 33 consideration, discussion, review and recommendation. The final report, including the recommendations, shall be forwarded to the Executive Committee 5.1.2 Executive Committee/ Authority The Executive Committee shall discuss and review the draft budget on the basis of inputs from the F&A Sub-Committee. The revised draft document shall be forwarded through the Management of the Assembly to the RCC for their consideration and comments. 5.2 Role of RCCs As prescribed in Section 142 of the Local Government Act, Act 462 (1993), RCCs are to perform monitoring, coordination and harmonisation functions. Within this context, Regional Budget Committees (RBCs) acting on behalf of the RCCs shall consider and comment on the draft budget submitted by the Management through budget hearings or engagement with the District Budget Committees (DBCs). This is to ensure compliance with standards, scope, guidelines, consistency with AAPs, national policies and programmes as well as budget ceilings. The draft budget shall be returned to the Management of the Assembly for onward submission to the Executive Committee. 5.3 Executive Committee The Executive Committee shall discuss the comments from RCC, revise the budget where necessary and submit the final draft to the General Assembly. 5.4 General Assembly The General Assembly, upon receipt of the draft budget from the Executive Committee, shall deliberate, discuss and approve the Composite Budget in line with Regulation 40 of the Local Government Financial Memorandum (2004) by 31st October each year. 5.5 Submission of Budget Copies of the approved Composite Budget of the Assemblies shall be submitted to MoFEP, MLGRD, LGSS, NDPC, Office of the Administrator, DACF and RCCs. COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 34 CHAPTER: 6 BUDGET IMPLEMENTATION 6.1 Procurement Plan Upon approval of the budget the Budget Committee shall prepare a Procurement Plan detailing all new and on-going projects and programmes for all departments. This shall be done in collaboration with the Procurement Officer and the Planning Officer. The Procurement Plan, approved by the Entity Tender Committee, shall be submitted to the Public Procurement Authority. 6.2 Cash Management 6.2.1 Cash /Work Plan All departments shall prepare and submit to the Budget Unit of the Assembly detailed work and cash plans to facilitate the implementation of their budget. It should indicate specific activities to be undertaken in each quarter of the year, with accompanied cash requirements. The consolidated work and cash plans shall be reviewed periodically by the Budget Committee. 6.2.2 Cash Ceiling Based on the projected cash inflows and outflows of the Assembly, the Budget Unit of the Assembly shall determine quarterly cash ceilings for the various departments in line with the consolidated work and cash plans. The quarterly cash ceiling sets the limits to which each department can spend in that particular period. Figure 6.1 shows the process for determining cash ceilings and informing beneficiary departments. COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 35 Figure 6.1 District Assembly Cash Ceiling Flow 6.3 Releases and Utilisation of Funds With respect to sector specific transfers, funds shall be released to the Assemblies for the implementation of their programmes to be recorded under the following accounts classification: Compensation of Employees Goods and services Assets Liabilities Under expenditure, General Warrants shall be issued by MOFEP to CAGD monthly to cover compensation of employees. COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 36 For goods and services and assets, specific warrants shall be issued by MOFEP to CAGD upon request from the MLGRD. These funds will then be transferred to the District Treasuries of the Assemblies by CAGD. With respect to DACF, MoFEP shall authorise CAGD to transfer the quarterly allocation to the Administrator of the Fund for onward disbursement to the Assemblies. In the case of DDF and UDG , the DDF Secretariat shall instruct CAGD to transfer the amount due Assemblies as per the distribution list approved by the DDF Steering Committee after the Assemblies having satisfied the requirements under the FOAT,. In the case of other donor support, releases will be in accordance with the agreed terms of disbursement. 6.4 Request for Release of Funds from MoFEP 6.4.1 Request for Goods and Services On behalf of the MMDAs, the MLGRD shall initiate the process for the release of funds to undertake programmed activities under goods and services from MoFEP on a quarterly basis. 6.4.2 Request for Non-Financial Assets For non-financial assets, Assemblies shall initially request for commencement warrants from MoFEP before going through the public procurement process as required by the Public Procurement Act (Act 663, 2003). The Assemblies shall apply to MOFEP through LGSS and MLGRD for the release of funds upon receipt of invoices, interim payment certificates and other relevant documents. (It should be noted that this process for requesting for funds from MoFEP in respect of GOG funds or sector transfers to departments is currently under review. 6.5 Request for the Release of Funds from the Assembly COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 37 6.5.1 Request for Goods and Services Heads of Departments shall request for funds to undertake their programmed activities as spelt out in the budget estimates. The request shall be sent to the Central Administration for their consideration and further action for the release of funds. The following steps shall be taken to request funds for goods and services: 1. Departments shall initiate the process for request for funds by applying to the DCD. 2. DCE/DCD shall refer the request to the DBO to commence the process. 3. After checking the relevant budget provision, cash ceiling and relevant documentation, the DBO shall prepare a specific warrant and forward it to the DCE/DCD for approval. 4. The approved specific warrant shall be forwarded to the Finance Office for the preparation of payment vouchers and supporting documents. The payment voucher together with the warrant and other supporting documents shall be forwarded to the Internal Auditor. 5. The Internal Auditor shall vet and cross all disbursement documents including the warrant. 6. The vetted documents shall be returned to the Finance Office for final payment to the beneficiary department. 6.5.2 Request for Non-Financial Assets Release of funds for activities under non-financial assets shall be based on the submission of interim payment certificates, invoices and stores receipts advice (SRA) by the Head of the Department to the Central Administration of the Assembly. In both cases, the Budget Unit shall issue specific warrants with an accompanying memo in respect of the request for approval by the DCE and DCD. The approved warrant shall be forwarded to the Finance Office. Before final payments are made to the beneficiary department, the disbursement documents shall be forwarded to the Internal Audit Unit for verification. COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 38 The following steps shall be taken to request a warrant for non-financial assets: 1. The Head of Department shall apply for a commencement warrant to procure goods, works and services through the Management of the Assembly. This activity must be in the Procurement Plan and be in line with the appropriate procurement process as stated in the Public Procurement Act (Act 663, 2003). 2. DCE/DCD shall refer the request to the DBO. 3. After checking the relevant budget provision, cash ceiling and relevant documentation including the Entity Tender Committee Minutes, award of contract letter, pro forma invoices, bills of quantities etc., the DBO through the DCE/DCD shall commit the Assembly to the tune of the value of the assets to be procured by issuing a commencement warrant to the Department. 4. The Department upon receipt of the invoices or interim payment certificates shall apply for the release of funds from the Assembly with copies of the relevant documents and commencement certificates. 5. The DBO shall prepare the specific warrant for approval by the DCE and DCD. 6. The approved specific warrant shall be forwarded to the Finance Office for the preparation of payment vouchers and supporting documents. The payment voucher together with the warrant and other supporting documents shall be forwarded to the Internal Auditor. 7. The Internal Auditor shall vet and cross all disbursement documents including the warrant. 8. The vetted documents shall be returned to the Finance Office for final payment to the beneficiary department. NOTE: No payment shall be made without the PV and appropriate supporting documents including the specific warrant duly approved. 6.6 Other Payment Requirements for Non-Financial Assets The District Planning and Coordinating Unit (DPCU) and the Regional Planning and Coordinating Unit (RPCU) shall undertake monthly and quarterly project monitoring, respectively, to inspect and assess project execution status. The DPCU shall prepare and submit progress reports which will be the basis for payment for the assessed value of work done. The inspection team shall include the Chairmen of Development Planning, Finance and Administration and Works Sub- Committee as well as service providers, community leaders and Assembly members. COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 39 6.7 Contract Management The Assemblies shall keep and regularly update a Contract Register. This is to ensure efficient and effective project management. It will also provide the necessary information on projects status and outstanding commitments for management decision. 6.8 Budget Implementation Rules The budget implementation process will be governed by the relevant sections of the FAA, FAR, FM, the Procurement Act, the IAA, and any other regulations that may be issued. 6.9 Accounting, Recording and Reporting This section deals with responsibilities such as accounting, recording and reporting requirements of MMDAs as laid down in the Financial Administration Act 2003, (FAA), Financial Administration Regulation 2004 (FAR), the Local Government Financial Memorandum and the MMDAs Accounting Manual developed by the CAGD. It therefore provides a regulatory framework of the overall financial management system of the MMDAs. The main highlights of the Accounting Manual are • Legal and Regulatory Framework guiding public accounting system in ghana, • Accounting Principles and Administration • Overview of a District Assembly’s Financial Management System • Accounting Policies • District Assembly’s Chart of Accounts and update Procedures • Revenue Accounting • Purchasing and Commitment Control • Cheque and Cash Payments • Petty Cash and Imprest • Payroll Accounting (Salaries) • Inventory Management Procedures • Capital Expenditure Control COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 40 • Fixed Assets Accounting • Reporting Requirements • Preparation of Periodic Accounts • Management Information System • Cash Management • Accounting Duties and Administration The objective of the manual is to ensure compliance with the relevant financial laws in the financial management system of all the MMDAs. 6.9.1 Legal framework for Public Accounting Section 91 of the Local Government Act, 1993, Act 462, empowers the Minister responsible for Local Government, after consultation with the Minister responsible for Finance, to issue written financial instructions for the control and efficient management of the finances of the Assemblies. The instruction may be issued either generally or with respect to a particular District Assembly. Regulation 4 of FAR, 2004 stipulates the following: Regulation 4(1) ‘A head of department shall with the approval of the Controller and Accountant–General given in consultation with the Auditor–General issue Departmental Accounting Instructions to regulate the financial business of the department, indicating the duties to be performed by specified officers, the accounts to be kept and returns to be submitted, and such other instructions as may be required for the proper conduct of the financial business of the department. Persons authorised to collect or receive public moneys and moneys in trust for Government shall pay the monies promptly into the Public Fund Account within twenty- four hours of receipt except in exceptional circumstances to be identified by the CAG. 6.9.2 Accounting and Recording All MMDAs shall use the basic accounting books in recording accounting transactions. MMDAs shall keep proper books of accounts which will reflect the accuracy and completeness of accounting transactions at any given period. COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 41 6.9.3 Financial Reporting Sections 38 -44 of the FAA deal with accounts and audit of MMDAs. 6.9.4 Basis of Accounts Accounts prepared and submitted by MMDAs shall state the basis used in the preparation of the accounts and shall identify any significant departures and the reasons for the departures. Financial statements shall be prepared in accordance with Generally Accepted Accounting Principles (GAAP). The FAR recommends the adoption of either the accrual or cash basis of accounting. Since the CAGD is mandated to determine the basis of accounts for government, the modified cash basis is being adopted by CAGD for use by MDAs and MMDAs. It is therefore expected that all MMDAs adopt the modified cash basis of accounting as a transitional measure to the accrual basis. 6.9.5 Classification of Accounts (CoA) The Controller and Accountant-General shall, with reference to the approved Government Chart of Accounts, determine the classification of accounts. The CoA has four main classifications. These are revenue, expense, assets and liabilities. MMDAs shall strictly use the CoA in the Composite Budget preparation and implementation and in all their financial transactions. The Controller and Accountant-General has the sole responsibility for the management of the CoA, including the custody and update of the COA (Additions and Terminations, etc.). 6.9.6 Monthly Statement of Accounts Within a period of fifteen days after the end of the month, MMDAs are required to prepare and submit their monthly financial statements to the CAGD and the AuditorGeneral. The composition of the MMDA financial statements is as follows: (a) a balance sheet showing the assets and liabilities for the month (b) a statement of receipts and payments for the month COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 42 (c) a statement of revenue and expenditure for the month (d) a cash flow statement for the month (e) notes that form part of the accounts. 6.9.7 Other Supplementary statements to be attached to the financial statements are: Classification of Expenditure by Cost Centre and Nature Classification of Expenditure by Cost Centre Functional Classification of Expenditure by Cost Centre and Nature Staff Advances Schedules Deposit schedules Bank Schedules Bank Reconciliation Statements Fixed Assets Schedule Accounts Payables Accounts Receivables Revenue and Expenditure Trend Revenue and Expenditure Chart Fixed Assets Register Trial Balance ( This should be part of the supplementary statements and not part of the basic financial statements) 6.9.8 Annual Statement of Accounts The composition of the Annual Statement of Accounts is same as the monthly statements of account. However, the Annual Statement is to be prepared within a period of three months after the end of the financial year. Formats for preparation of the financial statements are attached to this document as Annex 1 6.9.9 Role of Internal Auditors In addition to the traditional functions y the Internal Auditor, shall, as per Section 120 (4) of the Local Government Act (Act 462, 1993), incorporate a status report and issues relating to Composite Budget implementation in his/her quarterly report to the Assembly. COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 43 CHAPTER 7 MONITORING AND EVALUATION Monitoring and Evaluation (M&E) are two separate activities, but inter-related strategies to collect data and report the findings on how well or not the MMDA services, projects and programmes are performing. Monitoring shall take place during the implementation stage while evaluation takes place after the budget implementation period. Lessons learnt can inform management when formulating the budget for the ensuing year. 7.1 Legal framework The Local Government Act, 1993 Act 462, Section 142 and the National Development Planning System Act, 1994 Act 480, Section 9 gives the legal basis for monitoring funds allocated to assemblies. MMDAs are therefore required to develop a monitoring system to ensure the proper use of funds. Under Section 120 and Section 121 the Local Government Act, the Internal Audit and External Auditors Operations are also respectively stated to ensure that public funds are used judiciously. The Monitoring and Evaluation system and procedures follow the following steps: Develop and manage the Assembly’s M&E Plan to ensure a proper flow of information; Provide potential decision-makers with management information for effective implementation of programmes and projects; Prepare quarterly/ Mid-year/ End of year reviews of the budget and plan of the Assembly. The Assemblies shall meet all stakeholders to review the progress of plans and programmes; COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 44 The RPCU, DPCU, FDU, MLGRD and other relevant government institutions shall be responsible for monitoring the use of funds, plans and programmes of the MMDAs; The aforementioned agencies shall after monitoring prepare and submit reports to all relevant stakeholders; Utilization of funds shall follow laid down financial rules and regulations; and Ensure greater transparency, efficiency and accountability in the management of funds. 7.2 Principles Governing Monitoring and Evaluation at the MMDA Level The MMDAs shall assess the availability of funds before each project and programme is implementation; Monitoring should be continuous throughout the implementation of projects and programmes; The monitoring process should be simple and transparent; The monitoring and evaluation indicators should concentrate on key specific issues for example, budget variance, budget timeliness, compliance and other such indicators; and The monitoring and evaluation exercise shall cover both factual evidence and with the participation of stakeholders. The DPCUs shall monitor all MMDAs financial activities. In executing the monitoring tasks, there shall be an assessment of the extent to which targets set for the programmes, projects and activities have been achieved. The following tables should be used for monitoring and evaluation: Table 1: Performance Measures PMs Indicators Credibility Information source, Assessment basis Budget Variance Timeliness Budget approval date (30th Nov) Budgeting Compliance Use of Budget Guidelines COMPOSITE BUDGET MANUAL FOR METROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 45 MTDP Goal: The new policy framework Objective to Link: Objective: Indicators Indicator Type Baseline 2009 Targets Monitoring Frequency Responsibility MoFA Semi- annually MoFA, DPCU 2014 2014 2013 2012 Data Sources % increase in Output yield of selected crops, livestock and fish Other COMPOSITE BUDGET MANUAL FOR MTROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 39 Table 3: M & E Calendar Activities TIME FRAME 2012 2013 2014 DMTDP Evaluations 2015 PPMED Mid-term Evaluation Terminal Evaluation Specific Evaluation and studies COMPOSITE BUDGET MANUAL FOR MTROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Responsibility Page 39 Budget Table 4: IMPLEMENTATION, MONITORING AND AUDITING FRAMEWORK ACTIVITY IMPLEMENTATION OF BUDGET RELEASES INDICATOR DEFINITION OF INDICATOR TARGET RESPONSIBLE AGENCY QTR 1 30% OF Sector Specific NTWG DIRECTOR BUDGET Transfer releases of OF BUDGET 15/2/12 RELEASED GHC TO MMDAs DACF RELEASES NTWG DOB/DACF TO MMDAs ADM/MLGRD 15/4/12 COMPOSITE BUDGET MANUAL FOR MTROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 39 QTR 2 QTR 3 QTR 4 15/5/12 15/8/12 15/11/12 15/5/12 15/8/12 30/1/13 7.3 Coverage of the Monitoring and Evaluation Exercise The Audit Report Implementation Committee (ARIC) shall ensure compliance with both internal and external audit recommendations. The DPCU shall monitor the status and achievement of set targets (indicators both MMDAs specific and national) in the following: Revenue mobilization and expenditure; GOG funds; DACF-funded programmes and projects; DDF and UDG-funded projects; and Donor-funded programmes and projects. 7.4 Internal and External Audit Inspection of Transactions This requires the continuous monitoring of Assembly’s budget and transaction details to ensure proper and effective use of public funds, and compliance with sound financial management practices. Internal Auditing should be carried out as and when an expenditure transaction takes place. The Internal Audit shall include comments on implementation of the Composite Budget in their quarterly reports. MMDAs shall submit their financial statements to the Auditor General by 31st March each year. External audit can serve various objectives. Basic financial audit attests to the accuracy and fairness of the MMDAs end of year financial statements. Compliance audit verifies, for example, that expenditures were properly authorized and that rules and procedures were followed in carrying out expenditure. Performance audit or evaluation will meanwhile assess whether spending or programme implementation is delivering “value for money”. 7.5 Frequency of Monitoring Full scale monitoring shall be carried out every quarter by RCC and Sector Agencies. However, in case of suspected irregularities, the MMDAs, RCC, MLGRD and Sector Agencies could request for specific monitoring assignments at any point in time. COMPOSITE BUDGET MANUAL FOR MTROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 39 7.6 Briefing of MMDCEs after Monitoring Exercises Following each monitoring assignment, the monitoring team shall hold a meeting to brief the MMDCE’s and other heads of department on progress, observations and gaps identified. At the end of the meeting, the DPCU should agree in writing by assigning task and agreeing on deadlines. (for details refer to the separate Internal Audit, External Audit and Accounting Manuals). . 7.7 Reporting on Monitoring Events The DPCU shall complete a quarterly report for circulation not later that one month after the monitoring exercise. This will allow the Assembly and the nation to take necessary action on issues that require redress before the next assignment is undertaken. 7.8 Circulation of the Monitoring Report Finalized monitoring reports shall be submitted to MMDCE who shall distribute them as follows: MDAs PM RCC MoFEP MLGRD LGSS NDPC DACF COMPOSITE BUDGET MANUAL FOR MTROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 39 FINANCIAL STATEMENTS ANNEX 1 NAME OF MMDA: BALANCE SHEET AS AT ………………… NOTES CURRENT GH¢ PREVIOUS GH¢ NON FINANCIAL ASSETS Building and Structures Machinery and Equipment Work In Progress Other Non-Current Assets Inventory 17 18 19 20 21 XXX XXX XXX XXX XXX XXX XXX XXX FINANCIAL ASSETS-Foreign Deposit Securities other than shares Loans Shares and other equity Other Account Receivables (Advances) 22 23 24 25 26 XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX FINANCIAL ASSETS-Domestic Currency and Deposit Securities other than shares Loans Shares and other equity 27 28 29 30 ASSETS TOTAL ASSET COMPOSITE BUDGET MANUAL FOR MTROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES XXX Page 39 XXX LIABILITIES DOMESTIC Currency and deposits Securities other than shares Loans Other Public Funds Other accounts payable 31 32 33 34 35 XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX FOREIGN Currency and deposits Securities other than shares Loans 36 37 38 XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX ACCUMULATED RESERVE 39 XXX XXX SURLUS/DEFICIT 40 XXX XXX XXX XXX TOTAL LIABILITY NET WORTH COMPOSITE BUDGET MANUAL FOR MTROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 39 NAME OF MMDA: STATEMENT OF RECEIPTS AND PAYMENTS FOR THE MONTH ENDED ……………………… ANNUAL BUDGET GH¢ XXX XXX XXX XXX XXX XXX XXX XXX REVISED BUDGET GH¢ XXX XXX XXX XXX XXX XXX XXX XXX MONTHLY BUDGET GH¢ XXX XXX XXX XXX XXX XXX XXX XXX ACTUAL GH¢ XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX GH¢ XXX XXX XXX XXX XXX XXX XXX XXX CUM ACTUAL TO DATE GH¢ XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX 100 100 100 XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX xxx XXX XXX XXX XXX XXX XXX XXX XXX TOTAL PAYMENTS XXX XXX XXX XXX 100 100 100 Net Receipts/ (Payments) XXX XXX RECEIPTS Rates Land and Concessions Fees and Fines Licenses Rent Grants Investment Income Miscellaneous NOTE 2 3 4 5 6 7 8 9 TOTAL RECEIPTS PAYMENTS Compensation of Employees Goods and Services Consumption of Fixed Capital Interest Grants Social Benefits Other Expenses 10 11 12 13 14 15 16 XXX Cash and Bank Balance as at ….(Opening) XXX Cash and Bank Balance at ….(Closing) XXX COMPOSITE BUDGET MANUAL FOR MTROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 39 % OF ACTUAL VARIANCE NAME OF MMDA: STATEMENT OF REVENUE AND EXPENDITURE FOR THE MONTH ENDED ………………………… REVISED BUDGET GH¢ XXX MONTHLY BUDGET GH¢ XXX MONTHLY ACTUAL GH¢ XXX % OF ACTUAL NOTE 2 ANNUAL BUDGET GH¢ XXX XXX GH¢ XXX 3 4 5 6 7 8 9 XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX 100 XXX 10 11 XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX 12 13 14 15 16 XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX TOTAL EXPENDITURE XXX XXX XXX XXX XXX XXX SURPLUS/(DEFICIT) XXX XXX XXX XXX XXX XXX REVENUE Rates Land and Concessions Fees and Fines Licenses Rent Grants Investment Income Miscellaneous TOTAL REVENUE EXPENDITURE Compensation of Employees Goods and Services Consumption of Fixed Capital Interest Grants Social Benefits Other Expenses COMPOSITE BUDGET MANUAL FOR MTROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 39 VARIANCE NAME OF MMDA: STATEMENT OF CASH FLOW FOR THE MONTH ENDED………………………. CASH FLOW FROM OPERATING ACTIVITIES NOTES CURRENT PREVIOUS GH¢ GH¢ Cash Receipts From Operating Activities Grants Other Revenue 7 41 XXX XXX XXX XXX Cash Payments From Operating Activities Compensation of Employees Goods and Services Consumption of Fixed Capital 10 11 12 (XXX) (XXX) (XXX) (XXX) (XXX) (XXX) Interest Grant Social Benefits Other Expenses 13 14 15 16 (XXX) (XXX) (XXX) (XXX) (XXX) (XXX) (XXX) (XXX) XXX XXX Net cash flow from operating activities COMPOSITE BUDGET MANUAL FOR MTROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 39 CASH FLOW FROM INVESTING ACTIVITIES Purchase/Granting of non-financial assets Fixed Assets Inventory WIP 41 42 43 Cash outflow from investing in nonfinancial assets (XXX) (XXX) (XXX) (XXX) (XXX) (XXX) XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX Sale/Recovery of non-financial assets Fixed Assets Inventory WIP Cash inflow from sale of non-financial assets Net cash flow from investment in Financial assets 44 45 46 COMPOSITE BUDGET MANUAL FOR MTROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 39 CASH FLOW FROM FINANCING ACTIVITY DOMESTIC INFLOWS OUTFLOWS XX (XX) XX (XX) XX XX XX (XX) XX (XX) XXX XXX NET CHANGE IN STOCK OF CASH XXX XXX Cash and cash equivalent @ beginning XXX XXX Cash and cash equivalent @ close XXX XXX 47 48 Net incurrence of domestic liability FOREIGN INFLOW OUTFLOW Net incurrence of foreign liability 49 50 COMPOSITE BUDGET MANUAL FOR MTROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 39 NAME OF MMDA: PRINCIPAL NOTES TO THE FINANCIAL STATEMENTS NOTES CURRENT GH¢ PREVIOUS GH¢ XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX 2 Rates 3 Land and Concessions 4 Fees and Fines 5 Licenses 6 Rent 7 Grants 8 Investment Income 9 Miscellaneous 10 Compensation of Employees 11 Goods and Services COMPOSITE BUDGET MANUAL FOR MTROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 39 12 Consumption of Fixed Capital XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX 13 Interest 14 Grants 15 Social Benefits 16 Other Expenses 17 Building and Structures Dwelling Non residential Other structures 18 Machinery and Equipment Transport Equipment Other Machinery and Equipment 19 Work In Progress Dwelling Non Residential Other Structures Transport Equipment Other Machinery and Equipment 20 Other Non-Current Asset Land Soft wares and Licenses 21 Inventories Strategic stocks Materials and supplies Finished Goods COMPOSITE BUDGET MANUAL FOR MTROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 39 22 Deposit XXX XXX XXX XXX XXX XXX XXX XXX xxx xxx xxx xxx XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX 23 Securities other than shares 24 Loans 25 Shares and other equity Other Account Receivables 26 (Advances) Other Account Receivables Staff and Departmental Advances Foreign Missions Remittances & Advances 27 Currency and Deposit 28 Securities other than shares 29 Loans 30 Shares and other equity 31 Currency and deposits 32 Securities other than shares 33 Loans 34 Other Public Funds 35 Other accounts payable 36 Currency and deposits COMPOSITE BUDGET MANUAL FOR MTROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 39 37 Securities other than shares XXX XXX XXX XXX XXX XXX XXX XXX 38 Loans 39 Accumulated Reserve 40 SURLUS/DEFICIT COMPOSITE BUDGET MANUAL FOR MTROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 39 NAME OF MMDA: CLASSIFICATION OF EXPENDITURE BY COST CENTRE AND NATURE Compensation of Employees GH¢ Goods & Services GH¢ Consumption of Fixed Capital GH¢ Interest GH¢ Grants GH¢ Social Benefits GH¢ Other Expense GH¢ XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX Central Administration Department Finance Department Education, Youth and Sports Department Health Department Waste Management Department Agriculture Department Physical Planning Department Social Welfare & Community Development Department Natural Resources Conservation Department Forestry, Game and Wildlife Division Works Department Trade, Industry Department Budget and Rating Legal Department Transport Department Disaster Prevention Department Urban Roads Department Births and Deaths XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX TOTAL XXX XXX XXX XXX XXX XXX XXX COMPOSITE BUDGET MANUAL FOR MTROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 39 NAME OF MMDA: CLASSIFICATION OF EXPENDITURE BY COST CENTRE Central Administration Department Finance Department Education, Youth and Sports Departments Health Department Waste Management Department Agriculture Department Physical Planning Department Social Welfare and Community Development Department Natural Resources Conservation Department Forestry, Game and Wildlife Division Works Department Industry and Trade Department Budget and Rating Department Legal Department Transport Department Disaster Prevention and Management Department Urban Roads Department Births and Deaths BUDGET GH¢ ACTUAL GH¢ VARIANCE GH¢ XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX TOTAL COMPOSITE BUDGET MANUAL FOR MTROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 39 NAME OF MMDA: FUNCTIONAL CLASSSIFICATION OF EXPENDITURE BY COST CENTRES AND NATURE Compensation GH¢ Goods & Services GH¢ Consumption of Fixed Capital GH¢ Interest GH¢ Grants GH¢ Social Benefits GH¢ Other Expenses GH¢ TOTAL GH¢ XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX General Public Services Sub Total Defence Sub Total XXX XXX XXX XXX XXX XXX XXX XXX Public Order & Safety Sub Total XXX XXX XXX XXX XXX XXX XXX XXX COMPOSITE BUDGET MANUAL FOR MTROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 39 Economic Affairs Sub Total XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX Environmental Protection Sub Total XXX XXX XXX XXX XXX XXX Housing and Community Amenities XXX XXX XXX XXX Sub Total XXX Health Sub Total XXX XXX XXX XXX Recreation, Culture and Religion XXX XXX XXX XXX Sub Total XXX COMPOSITE BUDGET MANUAL FOR MTROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 39 Education XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX Sub Total XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX XXX GRAND TOTAL XXX XXX XXX XXX XXX XXX XXX XXX XXX Sub Total XXX XXX XXX XXX XXX XXX Social Protection COMPOSITE BUDGET MANUAL FOR MTROPOLITAN/MUNICIPAL/DISTRICT ASSEMBLIES Page 39
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