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Annex B:
List of Good Governance Indicators Monitored by the GGI
Annex A: GGI Concept Paper
Unit for Government Performance Assessment and Follow Up and
Promotion of Good Governance Principles
A Concept Paper
Introduction
Since the creation of the
Palestinian National Authority (PNA) and assuming responsibility over
establishing and running the civil service, legislation, and judiciary in Palestine, it has faced huge number of obstacles and
challenges including encountering new experiences and limited resources and
the hardship and difficulties the Israeli occupation imposes on Palestine. Consequently,
the success of the PNA in carrying out its responsibilities has been limited.
The PNA; however, has registered certain achievements in the government
system. On the other hand, the PNA has noticeably failed to register any
progress in crucial areas such as security, judiciary, and building of
institution in a manner that allows such institutions to be fit and possible
to run successfully and affordably; this also applies to budgeting and budget
priorities and the ideal utilization of human resources.
Meanwhile Palestinian civil
society organizations have plaid an active role on the political, economic,
and social levels. These organizations could play even a wider role including
supporting and empowering integrity, transparency, efficiency, and
accountability of the public administration and civil service of Palestine. Many CSOs,
for a number of reasons, have been able to conduct their activities in
accordance with international standards. Some of the CSOs are reputable for
their promotion, monitoring, and performance assessment of the government
reform and the government efficiency in service delivery. These organizations
have, in one way or another, succeeded in establishing network of relations
and coalitions, which produced noticeable support in government reform
including the judicial system. A number of institutions, commissions,
organizations, and initiatives sought to play the role of the monitor over
the government system performance in order to realize good governance through
supporting civil service, legislative, and judicial institutions in Palestine. More over,
they have sought to maintain the achievements in these areas. This Coalition
seeks to support and promote the civil service system, and the legislative
and judicial institutions of Palestine.
This will be done through partnership with all relevant parties including the
public sector and the NGOs within a framework of a vision for development
built on the nationally agreed upon considerations and interests of the
Palestinian people. Also, the framework shall be based on the principles of
transparency, responsibility, control, accountability, accurate performance,
and ideal utilization of Palestinian resources. It is worth noting that the
Coalition is within the context of the significance of activating the efforts
of the CSOs to empower a Palestinian government system based on the
principles of democracy, integrity, transparency, and good governance.
General
principles
The Coalition seeks to empower
and support the civil service system and institutions as well as legislation
and judiciary of Palestine
through a set of principles and standards, which it considers its reference;
the set of principles and standards can be summarized as follows:
- Positive construction: The Coalition considers the process of
supporting and empowering the civil service system and institutions as
well as legislation and judiciary of Palestine is the property of the
Palestinian people and responsibility of all relevant governmental and
non-governmental parties. Therefore, the Coalition seeks to cooperate
with the aforementioned parties based on participation and positive and
constructive interaction in order to contribute to ensure modern and
effective civil service, judicial, and legislative institutions.
- Objectivity and professionalism: The Coalition believes that the principles of
objectivity and professionalism do not contradict with absolute bias to
the interests, considerations, and priorities of the Palestinian people.
However, the Coalition does not consider itself or any of its approaches
as political programs, on the contrary, to be politically unbiased is a
reference to the Coalition. In any case, total bias to the principles of
objectivity and professionalism shall be in accordance with the
standards of best practices of good democratic governance.
- Transparency and accountability: Spread of the principles of transparency and
accountability shall be among the priorities of the Coalition. This
applies to the function of the Coalition as well as its wide spread and
circulation to include the different governance instruments of Palestine.
General
objectives
The Coalition aims to
contribute to the wide spread of the principles
of integrity and good governance as basic values in the Palestinian society. Despite the limited efforts in this area, the
challenges Palestinian people have to face in this regard are still huge,
which requires additional efforts especially to cover new areas including:
- Raise awareness with respect to good
governance concepts: This includes effective circulation of the
basic and modern concepts of civil service, judiciary, and legislation.
There is a major gap in the Palestinian people's perception of the
meaning of civil service, the role, and job of the "civil
servant" or the public servant. There is a real need to develop the
perception of the Palestinian people concerning the meaning, role, and
duty of the three branches of the government and the nature of their
relations. Also, to allow wider contribution of the people in taking
part in repairing the government system and performance. The Coalition
seeks to provide permanent organized podium to spread knowledge and
information in this regard.
- Promote and contribute to the protection of
the achievements in the area of administrative and financial reforms: We
believe that the achievements are not even the minimum required;
however, certain achievements in institutionalization and organization
of administering public finance cannot be ignored. The Coalition will
strengthen these achievements and progress in other financial reforms.
- Contribute to activating the role of the civil
society in particular and the Palestinian people in
general in policy making and medium strategic alternatives as well as
empowering and strengthening the capacities and monitoring instruments
over the governance instruments.
- Contribute to introducing and educating the
Palestinian people of the components of the government sector and its
performance especially the ministerial and
non-ministerial government institutions. Large number of ministries is
involved in the government sector as well as even greater number of
non-ministerial governmental institutions, some of which have the size
of a ministerial institution. These institutions have specific roles and
mandates as well as different tasks and duties. However, the roles and
mandates as well as the tasks and duties crosscut, which leads to
duplication of work and conflict among these institutions and wasting
public money.
- Contribute to ensuring effective and organized
monitoring in accordance with specific standards and scientific and
professional basis: A good number of governmental and
non-governmental watchdog institutions work in Palestine; they monitor governance
instruments. The Coalition seeks to develop and strengthen the watchdog
role of these institutions through developing special standards. The
Coalition will ensure circulation of the standards and ensure their
application and organized and effective utilization.
Areas of work
In addition to the positive contribution
to circulation and strengthening of the good governance principles and the
pro-priorities good governance, the Coalition proposes to concentrate on
monitoring the government performance in areas of direct impact on the lives
of the Palestinian people. The monitoring areas shall be gradually developed
to include the following:
- Social tolerance: The Palestinian society, despite the internal
and external pressures to trap it in conflicts of belief and politics, is
well-known for being democratic and friendly and enjoys a good share of
personal freedoms including freedom of expression, freedom of
protesting, freedom of the press, freedom of establishing parties,
coalitions, and societies and other freedoms guaranteed by laws and
treaties. The Coalition shall monitor the politics, decisions, and
mechanisms of the governing party in strengthening or weakening of the
common principles of democracy and social tolerance.
- The democracy of the political
system and the rule of law: The
Basic Law of the PNA includes basic principles of the democracy of the
political system and the rule of law as well as separation of powers and
peaceful authority dealing and judicial independence. It also includes a
number of other principles that are not included in the constitutions of
the neighboring countries. However, some of these principles have not
been applied as they should have been; for instance, the security system
and the judicial system have not been functioning effectively since the
creation of the PNA. This has been due to a number of reasons most
importantly the weak coordination between security and the judicial
system and the conflicting roles and marginalization of the judicial
institution. The Coalition will monitor the size of application of the
principles and accountability of officials in charge of such application
of principles. The Coalition will also analyze the required governance
structure to achieve these principles in order to protect the
accomplishments of the principles and empower them in the government
system structure through pressure, accountability, and influence.
- Financial performance and
resource management:
Efficiency and effectiveness of utilization of human and financial
resources are key signs of good governance. Since the PNA has initiated
many reforms of financial and human resources management, the Coalition
will monitor work progress and impact. This will also include analysis
and monitoring of the size and form of performance of the governing institutions.
- The performance of public service
institutions: The
PNA provides approximately 60 percent of the different social services
(health, education, and social affairs) to the Palestinian people. The
PNA is the only civil services (passports and identity cards) provider.
This requires the PNA to continuously develop its services in order to
ensure ideal utilization of available resources. Hence, the performance
of the service institutions will be monitored in accordance with clear
standards and indicators that enable people and decision-makers to
pinpoint weaknesses and strengths in the performance of these
institutions with respect to serving the public.
- Size, shape, and performance of
the key government institutions: This
area will include analyzing the size, shape, and performance of the
President's Office, the PLC, the Cabinet, the Judicial Institution, and
the rest of the non-ministerial governmental institutions. This will
also include monitoring the performance and decisions of these institutions
with respect to their positive or negative impact on the four
abovementioned areas especially with respect to conflicting mandates and
duplication of roles and size and shape of human resources in accordance
with the capabilities of the resources of the Palestinian people.
Work
mechanisms
The work mechanism will be
gradually developed in two main stages. The first stage, which is expected to
go on for 12 months, will focus on the Jerusalem Media and Communication Center's
(JMCC) establishment of an advisory committee consisting of Palestinian
institutions and individuals who are interested in the proposed areas of work
to establish the advisory commission of the Coalition. JMCC will also take
charge of the tasks of implementation especially work institutionalization
and monitoring of the government institutions in the areas pinpointed by the
advisory commission in accordance with policies and performance indicators as
defined by the commission. It is expected that certain member institutions of
the advisory commission will be allocated to carry out the monitoring tasks
in their area of specialty; they will receive technical assistance through
the JMCC if necessary. JMCC will not play roles or carry out the tasks of
other existing Palestinian institutions; it will gather and direct and build
on whatever available by adding basic axes in an organized manner.
The second stage will witness
focus on strengthening the roles of partner institutions through forming an
official framework of the Coalition institutions to be supported by an
executive commission to widen monitoring and participation in politics and
strengthen the practices of good governance.
Outputs
The work components will
produce four main outputs; they are:
-
Periodic
publications
-
Public debates
-
Close
debates (with relevant government institutions)
-
Media
coverage
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Type
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Indicator
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Definition
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Relevance
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Frequency
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PFM
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PUBLIC FINANCIAL RESOURCES
MANAGEMENT
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PFM
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Credibility of the Budget
|
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PFM
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Difference between actual
expenditure and budgeted expenditure
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Actual expenditure divided by
approved budget (total, in different categories, and by cost center or
agency).
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Demonstrates improved planning and
forecasting.
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Annually
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PFM
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Actual domestic revenue
collection compared to estimates in budget
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Actual revenue collected divided
by that forecast in the budget (disaggregated as appropriate).
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Demonstrates effectiveness of government
operations as well as improved planning capacity.
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Monthly
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PFM
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Stock of expenditure payment
arrears
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Shortage in funding availability
for recurrent expenditures, arrears to suppliers increase. Expenditures are considered being in
arrears when payments are delayed by one month or more of their due
payment.
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Demonstrates appropriateness of
financial planning
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Monthly
|
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PFM
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Budget Comprehensiveness &
Transparency
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PFM
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Share of the listed information in
the budget documentation by the central government.
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The type and quality of
information available
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Demonstrates commitment of
government to the principles of transparency and accountability as well as
improving public planning.
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Annually
|
|
PFM
|
Level of extra budgetary
expenditure (other than donor funded projects), which is not included in
government financial reports.
|
As in indicator
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Demonstrates the level of
comprehensiveness of the planning and budgeting process. Also, indicative of donor's confidence in
public sector plans.
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Annually
|
|
PFM
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Extent of central government
monitoring of autonomous public enterprises.
|
As in indicator
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Demonstrates commitment to
accountability and transparency.
|
Ongoing
|
|
PFM
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Budget covers both recurrent and
capital costs
|
Recurrent expenditures include:
operation, salaries, and maintenance costs.
Capital expenditures include: new plant, facilities, and equipment.
|
Indicates that govt. is able to
raise revenues that go beyond the demands of recurrent expenditure and also
able to plan for larger projects on a multi-year basis. Also demonstrates
efficiency.
|
Annually
|
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PFM
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Public access to key fiscal
information
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Access to: Annual budget documentation,
in-year budget execution reports, financial statements, external audit
reports, contract awards, etc.
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Demonstrates commitment to
accountability and transparency.
|
Monthly
|
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PFM
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Laws and regulations requiring govt.
information sharing on key issues related to budget execution and reporting
are in place.
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To be accountable and
transparent, government needs to report on its expenditures and use of
resources.
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This indicates a commitment for
citizen access to information.
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Ongoing
|
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PFM
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Citizens believe they have
adequate information on political and economic issues and on key aspects of
government activities.
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% of citizens who answer survey
questions that they are satisfied that the govt. is providing adequate
information (in terms of accuracy and sufficiency).
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Indicates level of public
confidence in government and transparency of operations.
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Annually
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PFM
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# and % of govt. contracts and their
monetary values advertised in set number and category of media channels.
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Procedures, channels of
publicity, and required time should be clear and worked out in consultation
with various stakeholders
|
Full, timely advertisement of
bids/tenders for govt. contracts is a first and important step towards open
govt. bidding and contract system;
reduces opportunities for corruption.
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Ongoing
|
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PFM
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Perceptions of corruption by
surveys of businesses or firms attempting to do business with govt.
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% of owners or managers of
registered businesses (representing different sectors and sizes) perceiving
corruption as a serious problem.
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Highly relevant because they
reflect the opinions of important groups (whose assessment can indirectly
affect flows of international private capital).
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Once Annually
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PFM
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Policy-Based Budgeting
|
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PFM
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Existence and adherence of a
budget calendar
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A clear budget calendar is set
out in the Organic Budget Law. Also
the new MTP&B approach being developed speaks of a planning timetable.
|
Expenditure will take a large
chunk of the budget, allowing few resources for investment.
|
Ongoing
|
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PFM
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Clarity/comprehensiveness of
political involvement in the guidance on preparation of budget submissions
|
The input provided by political
groups, civil society organizations, and other influential stakeholders in
the planning and budgeting process
|
Demonstrates participation and
influence
|
Ongoing
|
|
PFM
|
Adequacy of PLC review processes:
a) executive branch submits budget, b) PLC has sufficient time to consider
budget; c) appropriate committee reviews budget; d) budget analysis
prepared; e) PLC holds hearing on budget; f) PLC amends budget
|
Indicator combines between a
binary assessment (yes/no) and a narrative (qualitative) assessment by
experts.
|
Measure of increased capacity
regarding the budget process.
Attention should be paid to quality and not only on the binary
answers.
|
September-March of each year
|
|
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PLC Budget Committees have the
appropriate structure and formation for issue areas and have sufficient
resources at their disposal
|
Criteria should be established.
For example, the education committee considers only educative issues and
comprises members who have the training and knowledge of such issues, and
the staff supporting them has the requisite capacity to do so.
|
Committees play a vital role
before draft laws are brought to plenary meetings. This indicator measures the capacity of these
committees to carryout their role.
|
Ongoing
|
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PFM
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Timely budget approval by PLC
|
According to the Basic Law, the
PLC should approve the Budget by the end of March of each year.
|
Shows commitment to the
budgeting process and legislative work.
|
September-March of each year
|
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PFM
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Preparation of multi-year fiscal
forecasts
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These include a projection of
revenue and expenditures over the medium term.
|
Demonstrates improved planning
and budgeting processes.
|
Ongoing
|
|
PFM
|
Existence of sector strategies
with multi-year costing of recurrent and capital expenditures
|
As in indicator
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Demonstrates improved planning
and budgeting processes.
|
Ongoing
|
|
PFM
|
Predictability and Control in
Budget Execution
|
|
PFM
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Existence of payroll audits
|
As in indicator
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Demonstrates commitment to
accountability and control.
|
Annually
|
|
PFM
|
Effectiveness of internal
controls for non-salary expenditures
|
As in indicator
|
Demonstrates commitment to accountability
and control.
|
Semi-Annually
|
|
PFM
|
Timeliness of the issue of
budget execution reports
|
As in indicator
|
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Ongoing.
|
|
PFM
|
Quality of information of
in-year budget reports
|
As in indicator
|
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Ongoing.
|
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PFM
|
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