EMPOWERING PAC THROUGH REGIONAL NETWORKING EMPOWERING PAC
THROUGH REGIONAL NETWORKING PRESENTATION BY.. HON. JOHN M. CHEYO,
MP CHAIRPERSON PAC TANZANIA AT THE 2012 ANNUAL MEETING OF ARAPAC,
10 TH 13 TH OCTOBER 2012, MALE, MALDIVES. 1
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The Presenter Chairperson of PAC Tanzania From 1997-2000
2006-2010 2011- to date Secretary General SADCOPAC (2006 2011)
Chairperson- EAAPAC (2009 2011) Resource person for WAAPAC
Formation Member of Pan African Parliament ( 2008 2010) Member of
Parliament- Bariadi East ( 2005 to date) Presidential Candidate
(UDP) 1995 and 2000 2
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An I deal Committee The Committee is small; committees seem to
work well with 5 11 members, none of whom should be government
Ministers. A senior opposition figure chair the Committee. The
Committee is appointed for the full term of parliament. The
Committee is adequately resourced, with an experienced clerk and
competent researchers. There is clarity on the Committees roles and
responsibilities The Committee meets frequently and regularly.
Hearings are open to the public; a full verbatim transcript and
summary minutes are available for public distribution. 3
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An Ideal Committee A steering committee plans the Committees
work in advance and prepares an agenda for each meeting to the full
Committee. The typical witness is a senior public servant (the
accounting officer) accompanied by the officials that have a
detailed understanding of the issues under examination. In addition
to issues raised by the Auditor, the Committee occasionally decides
to investigate other matters. The Committee strives for some
consensus in its reports. The Committee issues formal substantive
reports to parliament at least annually. 4
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An Ideal Committee The Committee has established a procedure
with the government for following up its recommendations and is
informed about what, if any, action has been taken. The Committee
uses the Auditor as an expert advisor. Parliament holds an annual
debate on the work of the Committee. 5
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The typical Product of an Ideal PAC is a Report with the
following features It is a consensus report to Parliament It is
based on the Report of the Auditor General - Financial - Projects -
Value for Money - Forensic - Accurate assessment on the Accounting
Officers reaction and actions taken visa-a-avi recommendations of
the AG 6
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Features - An independent investigation by the committee on
matters arising from the AG Report - Is a summary of
recommendations to Parliament - A basis for Parliamentary Debate,
leading to Parliamentary resolutions which are quasi legislations -
Allows follow up mechanisms - Open to Public 7
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Method of Empowering the Committee Training by AG and other
Government agencies Peer learning through accountability
conferences Networking through regional and international
associations e.g. SADCOPAC, EAAPAC, WAAPAC Developing accepted best
practices through conference resolutions Training Visits to other
countries ( training tours outside jurisdictions e.g. Denmark PAC,
Sweden PAC, Finland, UK, Australia Beachworthy) 8
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Methods Learning by doing-encouraging members to take
leadership of committee discussions with accounting officers 9
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SOUTHERN AFRICAN EXPERIENCE Role Played by SADCOPAC in
empowering PACs 10
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Shared Impediments to PAC effectiveness within the Region Time
commitment Continuity Limited or lack of internal expertise
Limitations on PACs powers Limited resources Work load Legislative
environment and political support Lack of follow up procedure on
PACs recommendations 11
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Shared Impediments to PAC effectiveness... Backlog of audit
reports Attendance of meetings Quality of PAC reports Independence
of the SAIs 12
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Solutions to impediments - REGIONAL NETWORKING 13
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Historical note of SADCOPAC An association of PACs from SADC
member states It was launched in October 2003 in Joburg, South
Africa Members include Angola, Botswana, Lesotho, Malawi,
Mozambique, Namibia, South Africa, Swaziland, Seychelles, Tanzania,
Zambia, Zimbabwe The secretariat is in Tanzania 14
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Mandate SADCOPAC is an autonomous and independent organization
established as permanent institution in order to foster the
exchange of ideas and experience among PACs. Participation in
SADCOPAC activities is open to PACs outside SADC countries as
affiliated members. 15
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Mission SADCOPAC is an autonomous and independent association
of PACs from SADC states established to promote mutual support;
foster the exchange of ideas, knowledge and experiences; act as a
recognised voice of PAC within SADC community; and promotes
accountability, good governance and transparency in SADC states.
16
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Vision SADCOPAC shall strive to distinguish itself as an
organization empowering the Members of each Member State to
effectively carry out their functions as oversight committee over
public sector finances, as well as promoting good governance
Furthermore, SADCOPAC shall strive to work with governments in SADC
countries in meeting the peoples expectations of sound and
accountable governance, through best practice, sharing information
and experience and to continuously facilitate the efficient and
effective management of Public Resources. 17
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Aims and Objectives To work with governments and other relevant
role players in meeting the peoples expectations of sound and
accountable governance Build capacity and expertise among SADCOPAC
members to diligently and efficiently carry out their oversight
functions Improve the effectiveness of PACs or similar committees
in the SADC Region Promote good governance Strengthen relationships
with appropriate SADC structures 18
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Aims And Objectives Cont.. Share Best Practices and innovation,
and, where appropriate and possible, harmonize and standardize the
work of PAC in the region Conduct research and introduce new best
practices and innovations to improve and enhance the effectiveness
of PAC in the region Communicate and build relationships with
individuals and organizations with relevant expertise (nationally
and internationally) Empower members to disseminate information on
the work of and activities of PAC among elected representatives,
the media and general public, as well as oversight or similar
committees Liaise with the African Organization of Supreme Audit
Institutions (AFROSAI) on areas of mutual concern 19
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Core Values Specialized knowledge and insight into the work of
PAC Platform for sharing experiences and knowledge amongst PAC
members of SADCOPAC An organization for members and run by members
of PAC with assistance of Secretariat Centralized point where civil
society and other institutions can engage with PACs 20
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Critical Success factors Leadership of the Governing council
Support for and participation by all PACs from member states in
SADCOPAC activities Financial sustainability Timely payment of
membership fees Secured donor funds Diversification of donor
funding Sustainable and skilled secretariat Relevant training and
research programmes Training for members Training for PAC Clerks
and Secretariat staff 21
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Key Result Areas In year 2012 to 2015 SADCOPAC will measure its
performance from the following areas; governance activities
Secretariat services, administration and financial management
Training activities for MPs and PAC Clerks Research and information
sharing Implementation and follow-ups of SADCOPAC annual conference
resolutions e.g. independence of SAIs Liaison with strategic
partners or similar organizations such as SADCPF, EAAPAC, WAAPAC
and INTOPAC Resolution to establish AFROPAC and INTOPAC as a mirror
image to AFROSAI and INTOSAI. Broadening the financial resource
envelope. 22
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Current financial Sources In the period of 2012 to 2015
SADCOPAC expects funding from the following sources Annual
subscription fees Donor funding WBI GIZ Offices of Auditor Generals
23
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A summary of Conferences Held YearHostThemeOutput
2004TanzaniaOversight Role of Parliament in safeguarding Public
Resources 1.The ExCom was formally ratified 2.The interim
Constitution was adopted 3.Six strategic topics were discussed from
which fifteen observations and recommendations were made
2005TanzaniaEnhancing effectiveness of PAC in Public Financial
Management and accountability Six strategic topics were discussed
thereafter five major resolutions were reached 2006NamibiaEffective
Public Financial Accountability in the SADC Region Three strategic
topics were discussed and thereafter members came up with eight
resolutions 24
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DateCountryThemeOutput 2007MozambiqueTransparency in the
management of Public Resources and accountability Two strategic
topics were discussed and fourteen resolutions were identified
2008MalawiMaking Government accountable to the people through PAC
1.Members training was carried out 2.Five resolutions were reached
3.Election of Office bearers took place 2009ZambiaEnhancing
Transparency and accountability by breaking barriers- The role of
PAC 1.Twelve resolutions were reached 2010SwazilandEnhancing
Accountability for the use of Public Resources 1.Typical
Resolutions attached 25
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DateCountryThemeOutput 2011ZimbabweSustainable and Effective
Public Resources Accountability through Strategic Partnership of
PAC with other Oversight Institutions 1.Six resolutions were
reached 2.Election of Office bearers took place 2012South
AfricaMaking Government accountable to the people through PAC
1.Declaration for the establishment of AFROPAC was passed. 2.Twenty
resolutions were reached 26
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SUCCESS Good Practice Manual Adopted by member states Strategic
and Business Plans in place Training in partnership with WBI and
GIZ New members are trained on the work of PAC Continues training
of Clerks Annual Conferences Strategic topics are chosen, discussed
and deliberated SADCOPAC website (www.sadcopac.org)www.sadcopac.org
Engagement of full time staff 27
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Success Most Parliaments take PAC seriously and provide
amenities as per adopted good practice manual There are
legislations guiding the operation of PAC and AG. For instance
Public Audit Act in Kenya, Tanzania, Uganda and SA. - Newly
established Parliamentary Standing Orders for Botswana allows for
PAC to be a Standing Committee. Acceptance by the Executive wing of
most States that PACS are instruments of domestic accountability
PAC Reports have immense political influence to the community as
they form an assessment of how the Executive uses public resources
28
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Success Media is now an accepted partner in the work of
Parliament in holding the Executive to account as in the Region the
media is accepted to televise PAC Reports as they are tabled in
Parliament, thus bringing the community on board. In some
jurisdictions, law enforcing agencies e. g the Police are being
used to enforce PAC Reports- Uganda experience. Follow up
committees are in place by law e.g. the Kenya experience 29
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SUMMARY OF RECOMMENDED BENCHMARKS ON PAC PRACTICES
PracticeRecommended Benchmarks and Key Considerations Mandate and
legal powers A PACs mandate should be stated in a detailed and
clear manner PAC members should have a common understanding and
articulation of a PACs mandate, roles and powers The Rules and/Acts
of Parliament must empower the PAC with appropriate powers to carry
out its mandate PAC members must have a good understanding of how
PAC powers should be applied The Rules and Acts of Parliament
should allow for regular review and updating of a PACs mandate to
ensure that it remains adequate and relevant to the current
political and legislative context 30
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Size PAC should preferably have 6 15 members. The following
factors should be considered when deciding on the size of a PAC
following: The scope of the committees mandate and its
responsibilities The size of Parliament The number of SAIs reports
to be reviewed by the PAC The advantages and disadvantages of small
and large committees Term of office of Committee members and
Chairperson Ideally PACs members and Chair should be appointed for
the full term of Parliament because: Experience and continuity are
some of the critical factors for success of a PAC The nature of a
PACs work is such that it may carry over from one year to another
and may require follow-up A PAC invests resources in building
capacity of members. The return on investment takes a long period
to be realised 31
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Chairperson Although having a Chair from the Opposition is
considered best practice in the majority of Commonwealth countries,
there is no research-based evidence to prove that PACs that are led
by members of the Opposition are more effective than those chaired
by members of the ruling party or vice versa. One of the factors
that should inform the choice of a Chairperson is whether the
political environment is enabling and supportive of financial
scrutiny and accountability. A Chairperson should have strong
leadership skills (e.g. competence, firmness, honesty,
dependability, objectivity) and knowledgeable in the matters of
PACs She/he should have the ability to articulate the non- partisan
objective of the Committee and ensure that members have a shared
understanding of this objective She/he should have the ability to
manage all PACs processes including meetings and hearings 32
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Chairpersons roles & responsibilitiesA PAC should develop a
clear written statement describing the role and responsibilities of
a Chairperson; A PAC should develop a performance contract for the
Chairperson, with clearly stated objectives, outputs and
performance indicators Resources A PAC must have its own budget,
adequate to cover its personnel and other operational costs,
training and capacity building costs, as well as costs associated
with hearings, publication of its reports and sourcing external
expert advice where required A PAC must have skilled and qualified
support staff, especially a Clerk and research staff There must be
adequate and appropriate working space dedicated for a PAC to
conduct its work comfortably; and accommodate the public and media
during open PAC meetings and public hearings 33
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Meetings A PAC should schedule and hold sufficient and regular
meetings to discharge its responsibilities PAC Meetings should be
open to the public and media PAC meetings recorded and minutes of
the meetings made available to the public and media Relationship
with the SAI A PAC should maintain a good working relationship with
the SAI and the Rules and/Acts of Parliament should set the rules
of engagement for PAC-SAI relationship. This relationship should in
no way compromise the independence of the SAI The independence of
the SAI should be assured so that audit priorities are set
objectively, and audit results are reported fairly, factually and
objectively Audit results should be presented expeditiously in
reports that are user-friendly and easy to read SAI should brief
the PAC on the key findings of the audit, particularly on the areas
that were identified as requiring corrective action The AG should
attend all hearings as an Expert witness 34
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Public Hearings Hearings should be open to the public and media
A PAC should set clear objectives and work plan for hearings Full
verbatim transcript and summary minutes of hearings must be made
available for public distribution A PAC must hold briefing sessions
with the AG prior to the hearing The primary witness called before
the Committee should be a senior public official (an Accounting
Officer) Reports Committee reports should ideally represent
unanimous agreement, but if not, should reflect the minority
opinion/report Draft reports must be debated within the Committee
before finalisation Final Committee reports must be tabled in
Parliament before they can be made available to any government
minister Final Committee reports are debated in House following the
tabling. The reports should then be approved by Parliament during
the plenary sessions giving it the endorsement of the whole House.
35
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Follow up A PAC must have documented formal procedure on
following up on Committee recommendations PerformanceA PAC must
have a performance measurement framework to assess the Committees
effectiveness/performance 36
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In Conclusion Although we all know that no one-size-fits-all
model for an effective PAC but Regional networking is key to an
effective PAC. 37
