Public Financial Management in Ghana: A Move beyond Reforms to

Consolidation and Sustainability

Mohammed Sani Abdulai, PhD, Project Director, Public Financial Management Reforms
Project, Ministry of Finance/Controller and Accountant General’s Department, Ghana, Accra,
[email protected]
Abstract
Ghana’s Public Financial Management reforms had been going on for some two decades now
(1997/98 to 2017/18). Given this long period of reforms, Ghana in 2019 is putting together both a
PFM strategy and a Government Integrated Financial Management Information System
(GIFMIS)’s strategy for the next 5-years (2020-2024). The primary aim of these dual strategies is
assisting the country in moving beyond reforms to consolidation and sustainability. In this paper, I
first examined the evolution of Ghana’s PFM reforms. I, secondly, reviewed the legal and
institutional reforms undertaken to strengthen the country’s key PFM institutions. Thirdly, I
summarized the strengths and weaknesses identified by the 2018 PEFA assessment of Ghana’s
PFM system relating to the its macro-fiscal framework, budget preparation and approval, budget
execution, accounting and fiscal reporting as well as external scrutiny and audit. I, finally,
considered what the country should be doing to achieve its intended goal of PFM consolidation and
sustainability. Using a qualitative method of review and analysis of existing documents, I have,
through this paper, brought to the fore the lessons that could be learnt by other developing
countries from Ghana’s PFM reforms experiences. These lessons included the need to (a)
undergird any PFM reform with a comprehensive PFM reform strategy; (b) undertake a legal and
institutional reforms of the key PFM institutions (c) assess the strengths and weaknesses of those
reforms using PFM performance evaluation tools such as PEFA framework; and (d) move beyond
reforms to consolidation and sustainability.
Keywords: Public Financial Management, Public Expenditure and Financial Accountability
(PEFA), Public Financial Management Act, Reforms, Consolidation, Sustainability
1.0 Introduction
Public Financial Management (PFM), as a discipline, draws from several fields of academia.
According to Christine Lagarde, PFM is ‘the fine art of budgeting, spending, and managing
public monies’ and this fine art, she further asserted, is rooted in an ‘interdisciplinary
combination of economics, political science, public administration, and accounting’ (Cangiano
and others, 2013, p. vii). PFM, as an amalgam of these disciplines, is primarily concerned with
providing the tools or instruments for implementing fiscal policy and not the tools for making
those policies. In this regard, PFM as a discipline deals with ‘how’ a government’s fiscal
policies should be implemented and not with ‘what’ fiscal policies a government should pursue.
In the generation of tax revenues, for example, the role of PFM is to provide the tools relating to
‘how’ those taxes are to be collected and not ‘what’ tax policies a government ought to be
pursuing (Allen and others, 2013).

PFM, being a discipline of the ‘how’, means that ‘how’ the government of Ghana raises and
spends its public funds will differ from the government of another country. For this reason,
PFM is not a discipline that aims for ‘best practice’ because there is no such thing as a one-size-
fit-all PFM system. PFM is, instead, a subject that seeks for ‘good practice’ with which comes
the possibility and opportunity for peer-to-peer learning, continues reforms and improvements.

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 To this end, the PEFA Framework 1 uses a methodology that ‘draws on international standards
and good practices’ but not ‘best practices’ (PEFA Framework, 2016, p. 1). An open and orderly
PFM system provides the tools for achieving the three desirable fiscal and budgetary outcomes
of (a) aggregate fiscal discipline – that is, effective control of the total budget and management
of fiscal risks; (b) strategic resource allocation – that is, planning and executing the budget in
line with government priorities; (c) and efficient service delivery – that is, using budgeted
revenues to achieve the best levels of public services within available resources (PEFA
Framework, 2016, p. 2).
2.0 The Evolution of Ghana’s PFM Reforms Journey: Two Decades On (1997/98-
2018)
In seeking to enhance the achievement of aggregate fiscal discipline, strategic resource
allocation and efficient service delivery, Ghana embarked on a PFM reforms journey some two
decades ago. To this end, the current wave of Ghana’s PFM reforms began in 1997-98 with the
launching of the Public Financial Management Reform Programme (PUFMARP). The
Programme, which was Ghana’s first significant attempt at a more comprehensive approach to
PFM reforms, was aimed at the development of integrated Budget and Public Expenditure
Management System (BPEMS). The BPEMS was meant to integrate for the first time Ghana’s
budget preparation and implementation with its financial accounting and reporting as well as
cash management. In addition to BPEMS, the PUFMARP was also aimed at reforming such,
other PFM activities, as revenue management, aid and debt management, auditing, procurement,
fiscal decentralization, legal and regulatory framework, as well as the development of integrated
personnel and payroll database. The PUFMARP, which ended in 2002-3, was noted to have
been a failure because it ‘suffered from major delays and setbacks that resulted from the lack of
a coherent strategy and ownership among the key stakeholders’ (Dener and others, 2011, p. 52).

The need for a coherent strategy in the implementation of its PFM reforms led Ghana into
developing its ‘short and medium-term PFM Action Plan (ST/MTAP)’ following the 2006
PEFA assessment of the country’s PFM system (Betley and others, 2012, p. 27). The short-term
aspect of the action plan focused on correcting the wrongs of BPEMPS’ implementation while
the medium-term aspects concentrated on aligning the focal areas and key objectives of
ST/MTAP with the indicators or key results of the 2006 PEFA assessment. This alignment
resulted in the reformulation of the eGhana Project 2 to include an additional component called
the Ghana Integrated Financial Management Information System (GIFMIS). This GIFMIS
component, which was a project in its own right, was implemented from July 1, 2010, to
December 31, 2014 (World Bank, 2016).
The GIFMIS Project which was aimed at undertaking PFM activities deemed necessary at
‘improving the efficiency and transparency of government financial management functions
using ICT based tools’ (World Bank, 2016, p. 3). An independent post-completion performance
assessment of the eGhana Project revealed that the GIFMIS component was successful in
operationalizing Ghana’s IFMIS in all the then 33 Ministries, Departments and Agencies

1
PEFA, which stands for the Public Expenditure and Financial Accountability, is used in assessing the performance
of a country’s PFM system
2
The main eGhana Project began in November 2006 and was executed by the Ministry of Communication (MoC)
whilst the GIFMIS component of the Project was implemented by the Ministry of Finance (MoF).

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 (MDAs) located in Accra, the capital city, and 250 Spending Units (SUs) located across the
country, including 10 Regional Treasuries (World Bank, 2016, p. 15). These MDAs and SUs are
now able to process their Consolidated Fund transactions, which at the time represented almost
66% of total public expenditure, through this IT-based system (World Bank, 2016, p. 15). The
GIFMIS component had also achieved a seamless linkage of Ghana’s budget preparation,
accounting and reporting modules. These successes were triangulated using the 2009 and 2012
PEFA assessments results. In spite of these achievements, the implementation of the GIFMIS
component could not cover other public funds such as ‘the Internally-Generated Funds (IGFs),
Statutory Funds, Extra-Budgetary Funds and the Donor Funds’ (World Bank, 2016, p. xi).
Besides, the implementation of GIFMIS was not underpinned by ‘a comprehensive PFM
Reforms Strategy’ (Dener and others 2011, p. 52).
This lack of a comprehensive PFM Strategy and the inability of the GIFMIS to cover all the
public funds as well as the transactions of sub-national government institutions led to rollover of
GIFMIS activities into a new, but a separate, project called the Public Financial Management
Reforms Project (PFMRP). The new project, which began in May 2015, was preceded by the
development and launching of Ghana’s PFM Reforms Strategy in April 2015. The PFM
Strategy, which set forth Ghana’s PFM Reforms agenda for the next 4-years to December 2018,
had six thematic areas. The first of this has to do with achieving budget credibility. The second
is that of enhancing comprehensiveness and transparency in public financial management. The
third is that of improving MDA and sectorial management by developing a PBB system. The
fourth is about improving control, predictability, accounting and reporting of budget execution.
The fifth bordered on strengthening Treasury/Cash Management by consolidating the
development of the TSA. The sixth and final thematic area dealt with enhancing auditing and
risk management by strengthening internal and external audit and parliamentary scrutiny.
The PFMRP had a Project Development Objective (PDO) of ‘improving the budget
management, financial control and reporting of the Government of Ghana’ and it seeks to do so
by ‘building on [the] PFM systems and tools accomplished in the GIFMIS project’ (World
Bank, 2015, p. 7). The Project is aimed at contributing to Ghana’s effort in ‘enhancing fiscal
discipline, strategic allocation of resources and service delivery efficiency’ (World Bank, 2015,
p. 7). The Project is being implemented along the four main components of enhancing budget
credibility, public financial management systems and control, reinforcing financial oversight
and accountability, and PFM reform coordination and change management. Ghana’s PFM
reform journey could be said to have been going on for some two decades or so now as depicted
in Figure 1.
3.0 Data Collection Methodology and the Theoretical Lens/Framework
In putting this paper together, I reviewed available and accessible documents on Ghana’s PFM.
The document review was guided by the budget cycle as the theoretical lens or the framework
within which the data collection and analysis were undertaken. In conducting a professional
related research work such as this one, Bowen (2009, p. 27) argued that ‘organizational and
institutional documents have been a staple in qualitative research for many years’. Document
review, as a research method, is particularly advantageous with regards to (a) efficiency – in
terms of being less time consuming; (b) availability – in terms of document being publically
available; and (c) cost-effectiveness – in the sense that ‘the data (contained in documents) have
already been gathered’ (Bowen, 2009, p. 31).Using document review as the research
methodology of this paper, I was of the view that these advantages outweigh the limitations that

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 are inherent with the use of only documents as a source of data collection and analysis. These
limitations include, but not limited, to (a) insufficient details as a result of the data contained in
documents having been collected for other purposes; (b) irretrievability as result of the
documents, not being made publically available; and (c) biased selectivity as a result of the
documents being ‘likely aligned with corporate policies and procedures’ (Bowen, 2009, p. 32).
Figure 1: Two Decades of Ghana’s PFM Reform Journey: A Diagrammatic
Representation

Source: The Author 3

On the use of budget cycle as the theoretical framework within which the documents were
reviewed, it is my belief that at the fulcrum around which the PFM systems of any country
revolves is the budget cycle. The budget cycle encapsulates every aspect of the budget processes
and procedures pertaining to the revenues that a government is expected to generate and the
expenditures the government intends to spend those revenues on. To enhance this framework, I

3
The author first developed this diagram for a presentation he made at a PEFA Conference in Senegal in January
2019.

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 further edged onto the five constituent parts of the budget cycle the scores of the respective
performance indicators (PIs) from Ghana’s PEFA Assessments in 2006, 2009, 2012 and 2018.
Figure 2: The Theoretical Framework: The Budget Cycle and Ghana’s PEFA
Assessments

Source: The Author 4

4.0 Legal and Institutional-Related Reforms of Ghana’s PFM Systems

A country’s PFM system is about ‘the laws, organizations, systems and procedures available to
governments wanting to secure and use resources effectively, efficiently and transparently’
(Allen and Others, 2013, p. 2). To, therefore, strengthen a country’s PFM institutions the place,
to begin with, is the reform of the law with which those institutions operate.
In spite of its noted setbacks, one of the successes Ghana managed to achieve under its first
wave of PFM reforms (i.e., PUFMARP, 1997/98-2003) was the promulgation of a plethora of
primary and secondary PFM-related legislations whose aim were to strengthen the PFM
provisions within the country’s 1992 Constitution. The PFM related laws passed during this
period were the Audit Service Act, 2000 (Act 584); the Bank of Ghana Act, 2002 (Act 612), the
Financial Administration Act, 2003 (Act 654), the Internal Audit Agency Act, 2003 (Act 658),

4
The author first developed this diagram for a presentation he made at a PEFA Conference in Senegal in January
2019.

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 the Public Procurement Act, 2003 (Act 663) and the Financial Administration Regulation, 2004
(L.I. 1802).
Following the development of Ghana’s PFM Reform Strategy in 2015, it was realized that the
legal landscape of the country’s PFM system consisted of ‘a plethora of legal instruments,
which together, do not establish an integrated legal framework’ (IMF, 2015, p. 10). Ghana’s
PFM laws were, therefore, out of sync with the more modern PFM laws of its contemporaries in
Africa such as ‘the Kenya’s 2012 Public Finance Management Act, Liberia’s 2009 Public
Finance Management Act, Rwanda’s 2006 Organic Budget Law, South Africa’s 1999 Public
Finance Management Act as amended, and more recently, Uganda’s 2015 Public Finance
Management Act’ (IMF, 2015, p. 10).
To, therefore, modernize the Ghanaian PFM legislation, the Parliament under the sponsorship of
the Ministry of Finance, passed into law the Public Financial Management Act, 2016 (Act 921)
and its related regulation the Public Financial Management Regulations, 2019 (L.I. 2378). The
Act, which was signed into law on August 25, 2016, repealed and replaced the Financial
Administration Act, 2003 (Act 645) and its Amendment (Act 760) as well as the Loans Act of
1970.
The role of the budget execution units – that is MDAs/MMDAs 5 – in the overall budget process
cannot be overemphasized. To this end, Ghana has since 2014 enhanced the capacity of its line
ministries in their budget execution processes by providing them with the four Integrated
Financial Management Information Systems called GIFMIS (i.e., Ghana’s IFMIS). These four
systems comprise the budget preparation module (i.e., GIFMIS Hyperion), the budget
execution, accounting and reporting module (i.e., GIFMIS Financials), the human resource
management information system (i.e., GIFMIS HRMIS), and the payroll processing system (i.e.,
GIFMIS Payroll).
The MDAs/MMDAs use the GIFMIS Hyperion in preparation of their line ministries’ budgets.
As a result of this ICT-based system alongside the respective budget documentation such as the
budget chatter, fiscal strategy document (FSD), program-based budget (PBB) manuals and the
like, the quality and timeliness of budget preparation process of these line ministries has
tremendously improved over the years.
Following the usage of the GIFMIS Hyperion in the formulation of their budgets, the line
ministries go into the budget execution mode using the GIFMIS Financials. Having had
Parliamentary approvals of their respective allocations and the issuance of their warrants on the
GIFMIS Financials, the MDAs/MMDAs are able to process their expenditure on the system.
The expenditure processes include, but not limited to: (a) the purchase requisition for
expenditure initiation; (b) the preparation of purchase orders when a supplier is selected; (c) the
issuance of stores receive advice when goods/services are supplied; (d) the preparation of
payment vouchers to aid in the payment of the supplier invoice; (e) the running of cash
requirements report to establish total bills due for payment; (f) the running of the cash pooling
report to establish total cash available on the bank accounts; (g) effecting payments on the
system through Electronic Funds Transfer (EFT) for 3rd parties transactions and the use of
system cheques for moneys required for internal payments.

5
MDAs/MMDAs stands for central government agencies (i.e., Ministries, Departments and Agencies (MDAs)) as
well as sub-national agencies (i.e., Metropolitan, Municipal and District Assemblies (MMDAs))

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 In addition to the GIFMIS Hyperion and the GIFMIS Financials, MDAs/MMDAs are also able
to use the GIFMIS HRMIS (i.e., Human Resource Management Information System) in the
management of their human resources. The rollout of the GIFMIS HRMIS has cut down the HR
business processes and enabled new employees in the MDAs/MMDAs to be paid within one
month after recruitment, a payment which would otherwise have been received after 3-5 months
following recruitment. The operationalization of the system in the MDAs/MMDAs has also
reduced the backlog of inputs of personnel data. Following the capture of their human resources
data into the GIFMIS HRMIS, the MDAs/MMDAs can run their payrolls through the GIFMIS
Payroll system.
5.0 The Macro-Fiscal Framework-Related Reforms of Ghana’s PFM Systems
Revenue generation and absorptions should reflect the fiscal policy objectives of the
government. To this end, the budget process, and for that matter, PFM is informed first by the
macro-fiscal policy framework of government. The macro-fiscal framework phase of the budget
cycle sets out the medium-term fiscal plans of a country. The planning process begins with the
Medium-Term Fiscal Framework (MTFF) followed by the Medium-Term Budget Framework
(MTBF) and the Medium-Term Expenditure Framework (MTEF). MTFF is ‘the basis for
cabinet decisions on fiscal aggregates and a formal agreement on major policy initiatives’
(Diamond, 2013, p. 21). MTBF allocates expenditure across different sectors and ‘reflects
cabinet decision-making on aggregate and line ministry spending ceilings over the medium
term’ (Diamond, 2013, p. 21). MTEF details out the ceilings in MBTF into the expenditure
items in the annual budget. Following the two decade of Ghana’s PFM reforms in this area, the
2018 PEFA assessment of the country’s macro-fiscal framework revealed the following
strengths and weaknesses as depicted in Figure 3.
Figure 3: Strengths and Weaknesses in Ghana’s Macro-Fiscal Framework

Source: Author’s diagrammatic representation of Ghana’s 2018 PEFA Assessment Findings

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 Ghana has been successful in producing macro-fiscal forecasts, the preparation of which had
been described as being of ‘high quality annual macro-economic reports’ (2018 PEFA Report,
p. 90). The forecasts are based on the IMF’s financial programming approach covering the real,
monetary, external and fiscal sectors. The preparation of these forecasts is, however, weakened
by the fact that they do not come with ‘a consolidated macroeconomic framework for the next
few years’ hence they are not very detailed in showing the linkages between the four
macroeconomic sectors’ (2018 PEFA Report, p. 90). Another observed weakness was the lack
of explicit and easily discernable assumptions that underlie the country’s macroeconomic and
fiscal forecast.
Fiscal strategy ‘enables the government to articulate … its fiscal policy objectives, including
specific quantitative and qualitative fiscal targets and constraints’ (PEFA Framework, 2016, p.
47). Following the passage of Ghana’s PFM Act 2016, the Government of Ghana began the
implementation of s.15 of that Act by the production of its first fiscal strategy document (FSD)
in 2017, this strategy which was prepared by the Ministry of Finance was assessed, in the 2018
PEFA assessment of the country’s PFM systems, to be ‘very comprehensive and analytical’ (p.
93). The only weakness identified was that the FSD tended to be a confidential document
accessible to only members of the executive thereby defeating the very essence of it being a
means by which the government’s fiscal policy objectives are made known ‘to central
government units, the legislature, and the public’ (PEFA Framework, 2016, p. 47).
The expenditure budgeting of the country was highly rated as being of ‘a sound performance
above the basic’ (i.e., a ‘B’ score) because the countries ‘program-based budgeting (PBB),
introduced in 2014, takes place within MTEF’ (2018 PEFA Report, p. 96). The key weakness,
however, is that the budget guidelines through which the government’s approved medium-term
expenditure ceilings are circulated to MDAs, are in practice not issued until August when they
are supposed to be issued by July each year (2018 PEFA Report, p. 96).
6.0 Budget Preparation and Approval Processes-Related Reforms of Ghana’s PFM
Systems
Having had the macroeconomic and fiscal framework completed, the budget preparation
process, logically and sequentially continues with ‘the issue of budget instructions, preparation
of budget proposals, negotiations on those proposals and finally presentation to and approval by
the legislature’ (Schiavo-Campo, 2007, p. 252). The strengths and weaknesses observed of the
country’s budget preparation and approval processes from the 2018 PEFA Assessment are as
depicted in Figure 4.
Concerning budget classification, it was noted that the Ghana’s budget formulation in the main
reflects such internationally accepted categorizations of revenue by type and expenditures by
administrative, economic, functional, and program or subprogram classifications (2018 PEFA
Report, p. 40). The weaknesses in the country’s budget classification bordered on the fact that
not all MDAs/MMDAs are currently using the budget preparation module of GIFMIS hence the
classification of their budget are done either manually or using semi-automated budget
formulation tools such as Microsoft Access-based Activate (2018 PEFA Report, p. 40).
On budget documentation, it was assessed that Ghana accords with six out of the twelve
elements of good budget documentation. The first of these six is that the country incorporates
within its budget a forecast of the fiscal deficit or surplus. Secondly, the previous year’s budget
outturns are presented in the same format as the current year’s budget proposals. Thirdly, the
format of the current fiscal year’s budget also accords with the budget proposals. Fourthly, the

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 budget also provides data on deficit financing as well as a description of its anticipated
composition. Fifthly, the budget also incorporates the macroeconomic assumptions
underpinning the government fiscal forecast and these assumptions include, but not limited to
estimates for GDP growth, inflation, interest rates and the exchange rate. Sixthly, the budget
inculpates the documentation of the country’s medium-term fiscal forecasts. The weaknesses
facing Ghana’s budget documentations that are submitted to the legislature for approval are,
however, that the documentations do not include details of such elements as the debt stock,
financial assets, fiscal risks, and the implications on revenues of the government’s new policy
initiatives (2018 PEFA Report, p. 43).

Figure 4: Strengths and Weaknesses in Ghana’s Budget Preparation and Approval

Processes

Source: Author’s diagrammatic representation of Ghana’s 2018 PEFA Assessment Findings

On the budget preparation itself, it was noted that the budget guidelines are detailed and
comprehensive in aiding MDAs/MMDAs in the preparations of their respective budgets. The
first of the two main weaknesses, however, was that these agencies are allowed a maximum of
only two weeks, instead of internationally good accepted practice of 6 weeks, in the preparation
of their budgets (2018 PEFA Report, p. 99). The second weakness is that the legislature is only
giving one month to review and approve the budget which does not also accord with the
internationally accepted legislative review period of two months (2018 PEFA Report, p. 99). On
the legislative review itself, the identified weaknesses have to do with the concentration on the

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 review and approval of only the current year’s budget and not those of the outer years (2018
PEFA Report, p. 101).
7.0 Budget Execution and Management-Related Reforms of Ghana’s PFM Systems
7.1. Revenue Management
The budget execution phase of the PFM cycle, ‘is the phase when resources are used to
implement policies incorporated in the budget’ (Tommasi, 2007, p. 279). The first element of
budget execution, as depicted in Figure 2, is revenue management. The strengths and
weaknesses observed in the 2018 PEFA Assessment of the country’s revenue management are
as depicted in Figure 5.
Figure 5: Strengths and Weaknesses in Ghana’s Revenue Management

Source: Author’s diagrammatic representation of Ghana’s 2018 PEFA Assessment Findings

The weaknesses facing Ghana in improving its revenue generation potential were examined in
relation to aggregate revenue outturn, revenue administration and revenue accounting. On the
revenue outturn, it was observed that the country’s revenues had, on aggregate, not performed as
expected and that the non-performance was witnessed with respect to income, property and
trade taxes (2018 PEFA Report, p. 38). The weaknesses observed with revenue administration
related to the non-existence of the risk management program, compliance improvement plans,
lack of comprehensive assessment of aged-analysis of tax debtors and so on (2018 PEFA
Report, p. 104). Despite these weaknesses, it was noted that the key strength of Ghana’s tax
administration system rests on how the country deals with the rights and obligations of the

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 taxpayers where the country had a score of ‘A’. The Ghana Revenue Authority (GRA), it was
observed, provides the taxpayers with information about their rights and obligations, the
processes and procedures by which those taxpayers could obtain redress to their grievances and
that the GRA affords the taxpayers these information through a variety of media (2018 PEFA
Report, p. 104). On revenue accounting, it was observed that the GRA has the capacity and do
indeed provided information on revenue collections by preparing and sharing on monthly basis a
consolidated report on all central government revenues. Another observed strength was that
almost 80% (i.e., 79.10%) of these tax revenues are transferred to the country’s Treasury Single
Account (TSA) 48-hours following collection. Despite these strengths, revenue accounting had
been bedeviled with irreconcilable items and the inability of the country to properly manage its
revenue arrears (2018 PEFA Report, p. 104).
7.2. Expenditure Management
The second element of budget execution, as depicted in Figure 2, is expenditure management.
This element considered such issues as aggregate expenditure, expenditure composition outturn,
central government transfers to sub-national governments (SNGs), expenditure arrears and
internal controls. The 2018 PEFA Assessment revealed, per Figure 6, the strengths and
weaknesses of each of these elements.
Figure 6: The Strength and Weaknesses in Ghana’s Expenditure Management

Source: Author’s diagrammatic representation of Ghana’s 2018 PEFA Assessment Findings

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 The aggregate expenditure outturn and expenditure composition of Ghana were not capable of
comparison because while the appropriated budget shows all sources of funding – that is
consolidated, statutory, internally generated as well as donor funds – the main budget execution
reports – that is the public account of Ghana – reports only on the consolidated fund. Although
the consolidated fund, at the time of the 2018 PEFA assessment, represented almost 80% of
MDAs/MMDAs sources of financing, the non-reporting of other funds such as statutory,
internally generated as well as donor funds is a weakness needing a redress. On transfers from
the central government to SNGs, the identified weakness was that not all the block grants are
allocated using a transparent, rule-based system. The management of expenditure arrears had
also faced the challenges of MDAs/MMDAs executing transactions outside the GIFMIS. As a
result of this GIFMIS infractions, the internal controls surrounding these outside-the-GIFMIS
expenditure transactions could not be vouched for.

On the strengths and weaknesses of the country’s expenditure management with regards to
expenditure arrears and internal controls on non-salary related expenditures was observed in the
2018 PEFA Assessment to be as shown in Figure 7.

Figure 7: The Strength and Weaknesses of Ghana’s Expenditure Management

Source: Author’s diagrammatic representation of Ghana’s 2018 PEFA Assessment Findings

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 7.3 Payroll Management

The third element in budget execution, as depicted in Figure 2, is payroll management. The
payroll management in Ghana is done using two separate, but related, oracle-based systems of
the Human Resource Management Information System (HRMIS) and the Integrated Personal
and Payroll Database (IPPD 2) system. The critical weakness observed, at the time of the 2018
PEFA assessment (and shown in Figure 8), was that the HRMIS had only achieved a 50%
coverage and hence its feed into the IPPD 2 system only covered that percentage, thereby
requiring the remaining 50% feed from a non-automated manual based system.

7.4. Public Investment and Assets Management

The fourth and fifth elements in budget execution process depicted in Figure 2 related to public
investment management as well as public asset management. During the 2018 PEFA
assessment, public investment management could not be measured because it was deemed to be
at its infantile stage. This is because the Public Investment Division (PID) of Ministry of
Finance had not been sufficiently resourced to effectively undertake economic analysis,
selection, costing and monitoring of investment projects. The management of public assets in
Ghana had been bedeviled with the lack of a comprehensive asset register for both financial and
non-financial assets.

Figure 8: Strengths and Weaknesses in Payroll, Public Investments and Assets

Management

Source: Author’s diagrammatic representation of Ghana’s 2018 PEFA Assessment Findings

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 7.5 Debt and Cash management

The sixth and seventh elements in budget execution depicted in Figure 2 were debt and cash
management respectively. Debt management had, over the years, witnessed tremendous
improvement in that Ghana’s Medium-Term Debt Management Strategy (MTDMS) had come
of age. Cash management had resulted in Ghana implementing a Treasury Single Account
(TSA), while the success of TSA’s implementation had been widely acknowledged, the
persistence of cash-rationing had undermined this success.

Figure 9: Strength and Weaknesses of Ghana’s Debt and Cash Management

Source: Author’s diagrammatic representation of Ghana’s 2018 PEFA Assessment Findings

7.6. Procurement Management and Internal Control

The eighth and ninth elements of budget execution depicted in Figure 2 related to procurement
management and internal audit. The strength of Ghana’s procurement management systems is
evident by its sound performance as assessed PEFA score of ‘B’. The challenge that had,
however, faced the country’s procurement processes had to do with monitoring because its
performance indicator was assessed to less than the basic standard of performance (a score of

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 ‘D’). The country’s performance concerning its internal audit met the basic standard (a score of
C). The main obstacle to improving the efficiency and effectiveness of internal audit lies in
inadequate funding of the internal audit activities within the various MDAs/MMDAs.
Figure 10: Strength and Weaknesses of Ghana’s Procurement and Internal Audit
Mgt.

Source: Author’s diagrammatic representation of Ghana’s 2018 PEFA Assessment Findings

8.0 Accounting and Fiscal Reporting-Related Reforms of Ghana’s PFM Systems

The rollout of the GIFMIS had tremendously improved accounting and financial reporting in
Ghana. The principal obstacle of the system has been with its non-comprehensive coverage of
other funds such as the statutory, internally generated and donor funds. The integrity of the
financial data had also been challenged by the non-existence of automatic bank reconciliation
(ABR) functionality within the GIFMIS. For these reasons the resulting annual financial
statements generated through the system do not meet the completeness requirement. Ghana
strengths concerning this performance dimension lie in its ability to provide the public with
information on its fiscals. The critical obstacle has, however, been with the country’s in-year
budget reports whose coverage is limited because they provide information on only one source
of finance – that is the consolidated funds. Figures 11 and 12 shows the strengths and
weaknesses that were observed with regards to accounting and fiscal reporting observed in the
2018 PEFA assessment of the country.

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 Figure 11: Strength and Weaknesses of Ghana’s Accounting and Fiscal Reporting

Source: Author’s diagrammatic representation of Ghana’s 2018 PEFA Assessment Findings

9.0 External Scrutiny and Audit-Related Reforms of Ghana’s PFM Systems

One of the strengths of Ghana’s PFM system is the pervasive nature of its external audit
scrutiny led by its Supreme Audit Institution (SAI) called the Ghana Audit Service (GAS). The
country’s 1992 Constitution guarantees the independence of GAS. The only obstacle identified
as interfering with this independence has to do with that having the executive, through Ministry
of Finance, scrutinizing the budget of GAS. Ghana had been respected for having a robust and
unyielding Public Accounts Committee (PAC) of Parliament that holds the executive
responsible for their stewardship. Despite this, however, had suffered from having to deal with a
backlog of audit report hence their scrutiny tends to deal with audit reports that are almost three
years late at any point in time. Figure 13 shows the strengths and weaknesses that were observed
with regards to accounting and fiscal reporting observed in the 2018 PEFA assessment of the
country.

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 Figure 12: Strength and Weaknesses of Ghana’s Accounting and Fiscal Reporting

Source: Author’s diagrammatic representation of Ghana’s 2018 PEFA Assessment Findings

Figure 13: The Strength and Weaknesses of External Scrutiny and Audit

Source: Author’s diagrammatic representation of Ghana’s 2018 PEFA Assessment Findings

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 10.0 Ghana’s PFM: A Move to Consolidation and Sustainability [2019-2024]

From the PEFA assessment findings, it is evident that Ghana, in the two decades of its PFM
reform efforts, seemed to have touched on all aspect of its budget cycle with one kind of reform
or the other. To this end, the time has come for Ghana’s PFM journey to move beyond reforms
to consolidation and sustainability. To do so, Ghana in developing its PFM and the
accompanying GIFMIS strategies for the next 5-years (2020-2024), could benefit from
according with the 7-stage process proposed by the PEFA Secretariat in transforming a PEFA
assessment into a PFM Strategy as shown in Figure 14.
Figure 14: The Proposed Stages of Ghana’s PFM Consolidation and Sustainability
Dialogue

Source: PEFA Handbook Volume IV: Using PEFA to support Public Financial Management
improvement (2nd Draft, June 2019)

In putting together Ghana’s PFM Strategy, the first stage requires the identification of the
strength and weaknesses of the country’s PFM. The intent of this stage is to answer the
questions: ‘what is the problem?’ and ‘what are the findings of the PEFA assessment?’ (PEFA
Handbook Volume IV, 2019, p. 14). In answering these questions, Ghana has the opportunity of
assessing whether a giving issue identified during the PEFA assessment could be addressed
using PFM or non-PFM related interventions. Having identified an issues as requiring a PFM
related intervention should lead to the second stage in the development of Ghana’s PFM

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 Consolidation and Sustainability Strategy. The stage requires Ghana to provide an answer to the
question: ‘what are the causes of strong and poor PFM performance identified by the PEFA
assessment?’ (PEFA Handbook Volume IV, 2019, p. 15). To this question, while the 2018
PEFA assessment report could be useful, there may be the need for further assessment to be
undertaken by the country using other PFM diagnostic tools such as ‘TADAT 6 for monitoring
tax administration or … PIMA 7 for monitoring public investment’ (PEFA Handbook Volume
IV, 2019, p. 16). 8 The use of such other tools will provide Ghana with the opportunity of
unearthing both the technical and non-technical causes of its PFM weaknesses. Having
identified the underlying causes of the weaknesses in its PEFA assessment report, the third stage
requires Ghana to decide as to the outcomes it wishes each aspect of its PFM consolidation and
sustainability effort to achieve. The decision on the outcomes is required as an input into the
fourth stage which requires the country to prioritize and sequence the PFM initiatives that will
be necessary in achieving a given PFM outcome. The fifth stage requires the country to identify
the constraints that will inhibit the achievement of the desired outcomes. The sixth stage is the
stage of implementation and the seventh is about monitoring and evaluation.

In putting together its GIFMIS Strategy, Ghana could benefit from a PFM digitization
architecture that is ‘a data-driven, single-platform based, deployement optimized, hybrid-cloud
architecture’ as shown in Figure 15.
Figure 15: The Proposed PFM Digitization Architecture for Ghana

Source: Author’s as inspired by Peter Erdosi

6
TADAT - Tax Administration Diagnostic Tool
7
PIMA - Public Investment Management Assessment
8
The PEFA Secretariat’s study Stocktake of PFM Diagnostic Tools, identifies a total of 46 diagnostic tools for
PFM systems in use as at December 2016 available at
https://pefa.org/sites/default/files/asset/study_document/Stocktake%20PFM%20Tools-04-17-
2018_clean.pdf

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 Ghana’s PFM and its enabling technological solutions and systems cannot lag behind the digital
revolution the global economy is currently experiencing. To this end, Ghana needs a rethink
with regards to its current technology platform – the current on-prem Oracle E-Business Suite
(EBS) that is running Oracle database and IBM based operating system and server
infrastructure. The call for a re-think is premised on the fact that the current mega-trends
borders on such new digital technologies as machine learning, artificial intelligence, internet of
things (IoTs), conversational user interfaces, chat bots, mobile-enabled devices, social-media,
blockchain, embedded real-time analytics and so on. These new technologies are in the main
cloud driven and hence the technology behind Ghana’s PFM systems cannot ignore the adoption
of one-form of cloud computing or the other. The question is not whether Ghana’s PFM systems
should or should not be cloud oriented, the question is rather on when and in what form the
country’s PFM could related digitization agenda should take.

In putting together its GIFMIS Strategy for the next 5-years, Ghana needs to decide on which
cloud-based PFM model it wishes to adopt, considering all aspects of PFM operations: from
security to data residency, from (functional) compliance to control, from scalability and
robustness to interoperability and openness. This is especially so because Ghana being a
sovereign nation, will need to carefully mitigate risks that are tolerable for private sector players
but substantially different in PFM context of a sovereign government. To this end, there are four
common cloud deployment models today that are opened to Ghana – these are public, private,
hybrid, and community cloud. Leaving out a detailed elaboration on each of these four models
and limiting this discussion to the proposed model and its benefits, it is important for Ghana to
note that a choice of a cloud-based PFM architecture is dictated by where services are hosted,
who has access to data and information, who is managing the cloud, and customization of
services. The proposed hybrid cloud architecture for Ghana’s PFM systems will consists of a
public and private cloud within which the country can easily segment data and transfer data
between clouds (i.e., private and public) as and when necessary.

11.0 Conclusion

In charting a way forward for Ghana’s PFM systems, I have in this paper traced the various
waves of Gahan PFM reforms which began some two decades ago. Having been engaged in
PFM reforms for such a long period, Ghana’s decision to move beyond reforms to consolidation
and sustainability is an endeavor that must be encouraged. In this regard, I have sought in this
paper to encourage Ghana’s PFM consolidation and sustainability efforts by pointing out the
steps the country should take in getting its PFM strategy for the next 5-years prepared. In the
paper, I have further encouraged the country to ensure that its GFMIS strategy embraces
technologies of the now as well as those the near future.

In addition to these country-specific admonishments, I have in the paper drawn out the lessons
that could be learnt by other developing countries from the two-decades of Ghana’s PFM
reforms. These lessons include the need to ensure ownership of the reforms by each of the key
PFM institutions. I have also drawn attention to the need to ensure that strategies should
underpin PFM reform processes to avoid muddling-through. Furthermore, I have drawn
attention to the need to have a periodic assessment of PFM reforms, consolidation or
sustainability efforts using such PFM performance measurement frameworks as those of PEFA.

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