OFFICE OF THE CONTROLLER OF BUDGET. BUDGET PERFORMANCE BY THE NATIONAL AND COUNTY GOVERNMENTS: Realities and way forward

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1 OFFICE OF THE CONTROLLER OF BUDGET BUDGET PERFORMANCE BY THE NATIONAL AND COUNTY GOVERNMENTS: Realities and way forward PRESENTATION TO THE ICPAK PUBLIC SECTOR TAX SEMINAR By: Stephen Masha Deputy Controller of Budget June 3, 2015

2 OUTLINE 1. Overall Government Budget 2. National Government Budget Performance 3. County Governments Budget Performance 2

3 TOTAL 2014/15 GOVERNMENT BUDGET Total Budget trillion MDAs trillion CFS billion County Governments billion

4 National Government Budget Performance

5 NATIONAL BUDGET FY2014/15 (Kshs.1,840.4 b) Kshs. Billions Consolidated Fund Services County Governments Teachers Service Commission State Department for Infrastructure State Department for Interior Ministry of Energy and Petroleum State Department for Education The National Treasury Ministry of Defence State Department for Planning State Department for Higher Education, Science and Ministry of Health State Department for Transport State Department for Water & Regional Authorities State Department for Agriculture Parliamentary Service Commission Ministry of Lands Housing,and Urban Development Ministry of Labour Social Security and Services State Department for Environment & Natural The Judiciary National Intelligence Service State Department for Coordination of National Ministry of Foreign Affairs and International Trade Ministry of Information & Communication and Ministry of Industrialization and Enterprise State Department for Devolution State Department for Livestock State Department for Commerce & Tourism The Presidency Office of the Attorney General and Department of Ministry of Sports Culture and Arts Independent Electoral and Boundaries Commission Auditor General State Department for Fisheries Ministry of Mining Directorate of Public Prosecutions Ethics & Anti-Corruption Commission National Lands Commission State Department for East African Affairs Public Service Commission Registrar of Political Parties Salaries & Remuneration Commision Judicial Service Commission Controller of Budget The Commission on Administrative Justice Kenya National Commission on Human Rights Commission for Implemenation of the Constitution National Gender & Equality Commission The Commission on Revenue Allocation National Police Service Commission Witness Protection Agency Independent Police Oversight Authority

6 FINANCING THE KSHS.1.84 TRILLION BUDGET Receipts by Category Printed Estimates. Opening Balance 2014/15 Total Tax Income 1,050.9 Total Non-Tax Income 36.2 Net Domestic Borrowing Loans External 36.2 Commercial Loan(Sovereign Bond) 36.4 Commercial Loan(Exchange Gain) Loan-Budget Support(Social Safety Net) 5.4 Domestic Lending and On-Lending 2.0 Grants-Foreign Govt. and International Org 10.0 Grants from AMISOM 6.1 TOTAL 1,374.1

7 FY2014/15 HALF YEAR REVENUE CONTRIBUTION BY CATEGORY

8 FY 2013/14 & FY 2014/15 REVENUE TREND Growth of 41.49% Kshs. Billions Q1 FY2013/14 FY2014/15 Q2

9 FY2014/15 HALF YEAR EXPENDITURE Development Exp. Kshs Bn (21%) CFS Exp. Kshs Bn (36%) Total Expenditure Kshs Billion, or 39.4% of the Gross Estimates Recurrent Exp. Kshs Bn (44%)

10 FY 2013/14 & FY 2014/15 EXPENDITURE TRENDS Growth of 43.12% Q1 Q2 FY FY

11 FY 2014/15 HALF YEAR ABSORPTION RATES Development Expenditure, Kshs Bn (26%) Gross Estimate.Kshs Bn Total Expenditure Kshs Billion, or 39.4 % of the Total Gross Estimate Recurrent Expenditure, Kshs.499 Bn (40%) Gross Estimate, Kshs.1,103.1 Bn

12 FY2014/15 HALF YEAR EXPENDITURE BY SECTOR Kshs. Billions

13 FY2014/15 HALF YEAR RECURRENT ABSORPTION (39.8%) 60.0% 50.0% 40.0% 50% expected absorption 39.8% achieved absorption 30.0% 20.0% 10.0% 0.0% Only CFS registered an absorption above 50%. This was due to the rising public debt stock that grew by 5.1% from Kshs.2.36 trillion in June to Kshs.2.48 trillion in December Public debt stands at 52.1% of GDP.

14 FY2014/15 HALF YEAR DEVELOPMENT EXPENDITURE ABSORPTION (26.1%) 60.0% 50.0% 50% expected absorption 40.0% 30.0% 26.1% achieved absorption 20.0% 10.0% 0.0%

15 CHALLENGES 1. Low Absorption of Recurrent and Development Budget Absorption rate of recurrent and development expenditure was 39.8 per cent and 26.1 per cent respectively, against an expected rate of 50 per cent. 2. Nondisclosure of A-I-A by the MDAs Total expenditure by 5 MDAs exceeded Exchequer Issues. This is partly due to A-I-A underreporting by the MDAs. 3. High Public Debt Position The total public debt stock grew by 5.1 per cent from Kshs.2.36 trillion in June 2014 to Kshs trillion in December 2014, which was 52.1 per cent of the GDP. Increasing public borrowing may result in undesirable fiscal consequences such as high interest rates, inflation, and in the long run overburdening of future generations. 4. Special Audit of the Consolidated Fund Services Account During the first nine months of the FY 2014/15, expenditure on Consolidated Fund Services account exceeded exchequer issues by Kshs.16.3 billion.

16 RECOMMENDATION 1. The low absorption of expenditure has been attributed in part, to slow release of funds by the National Treasury, particularly in the first quarter of the year. There is need for timely release of both recurrent and development funds and re-alignment of releases to work plans. 2. The National Treasury should institute appropriate measures to ensure that MDAs report generated A-I-A. This will enhance accountability, transparency and completeness in financial reporting. 3. The National Treasury should take appropriate measures to ensure that public debt does not reach unsustainable levels in view of the constitutional provision allowing county governments to borrow. 4. It is recommended that a special audit be undertaken by the Auditor General to establish the cause of the differences in the CFS.

17 County Governments Budget Performance

18 FY 2014/15 COUNTY BUDGETS The Budget Estimates for the FY 2014/15 amounted to Kshs billion This is to be financed by: a) Transfers from the National Government amounting to Kshs billion:. I. Kshs billion as the National Equitable Share of Revenue II. Kshs billion as Conditional Allocations to Level 5 hospitals III. Kshs billion as Conditional Allocation for ongoing projects. b) Revenue from local sources Kshs billion c) Balance brought forward from FY 2013/14 was projected at Kshs billion d) Conditional grant of Kshs million from DANIDA.

19 FY2014/15 COUNTY BUDGETS (320.23b) 30 Kshs. Billions Nairobi had the highest budget at KShs billion while Lamu had the lowest budget at KShs 1.96 Billion Nairobi City Turkana Mombasa Mandera Kisumu Kiambu Nakuru Kakamega Machakos Narok Kilifi Bungoma Kisii Kitui Garissa Wajir Uasin Gishu Murang'a Meru Siaya Kajiado Marsabit Kwale Makueni Busia Nyeri Baringo Homa Bay Migori Nandi Trans Nzoia Vihiga Nyamira Bomet Kericho Kirinyaga West Pokot Taita/Taveta Embu Elgeyo/Marakwet Tharaka -Nithi Nyandarua Tana River Samburu Laikipia Isiolo Lamu

20 FY2014/15 COUNTY BUDGETS BREAKDOWN

21 FY2014/15 Q2 COUNTIES TOTAL REVENUE RECEIPTS

22 FY2014/15 HALF YEAR REVENUES AVAILABLE TO THE COUNTIES (136.96b) 10 Kshs. Billions Counties are highly dependent on National Government transfers Baringo Bomet Bungoma Busia Elgeyo/Marakwet Embu Garissa Homa Bay Isiolo Kajiado Kakamega Kericho Kiambu Kilifi Kirinyaga Kisii Kisumu Kitui Kwale Laikipia Lamu Machakos Makueni Mandera Marsabit Meru Migori Mombasa Murang'a Nairobi City Nakuru Nandi Narok Nyamira Nyandarua Nyeri Samburu Siaya Taita/Taveta Tana River Tharaka -Nithi Trans Nzoia Turkana Uasin Gishu Vihiga Wajir West Pokot National Equitable Share Local Revenue Opening Balance

23 FY2014/15 HALF YEAR EXCHEQUER ISSUES (119.29b)

24 FY2014/15 HALF YEAR EXCHEQUER ISSUES (119.29b) Kshs. Billions Baringo Bomet Bungoma Busia Elgeyo/Marakwet Embu Garissa Homa Bay Isiolo Kajiado Kakamega Kericho Kiambu Kilifi Kirinyaga Kisii Kisumu Kitui Kwale Laikipia Lamu Machakos Makueni Mandera Marsabit Meru Migori Mombasa Murang'a Nairobi City Nakuru Nandi Narok Nyamira Nyandarua Nyeri Samburu Siaya Taita/Taveta Tana River Tharaka -Nithi Trans Nzoia Turkana Uasin Gishu Vihiga Wajir West Pokot Recurrent Development

25 FY2014/15 HALF YEAR LOCAL REVENUE RAISED BY COUNTIES (13.10b) Kshs. Billions Nairobi City Narok Nakuru Mombasa Kiambu Machakos Kisumu Uasin Gishu Nyeri Kakamega Kajiado Kilifi Murang'a Meru Bungoma Migori Kitui Busia Kericho Embu Kisii Samburu Baringo Kirinyaga Laikipia Kwale Taita/Taveta Makueni Isiolo Nandi Garissa Homa Bay Turkana Trans Nzoia Bomet Siaya Tharaka -Nithi Nyandarua Nyamira West Pokot Elgeyo/Marakwet Wajir Vihiga Marsabit Mandera Lamu Tana River County Governments generated Kshs billion in Local Revenue Only 3/47 Counties achieved their third quarter revenue targets

26 100.0% FY2014/15 HALF YEAR LOCAL REVENUE TARGETS ACHIEVED 90.0% 80.0% 70.0% 60.0% 50.0% 50% expected target 40.0% 30.0% 20.0% 21% achieved target 10.0% 0.0% Marsabit Elgeyo/Marakwet West Pokot Migori Wajir Nakuru Uasin Gishu Samburu Kakamega Baringo Narok Laikipia Nyandarua Nairobi City Machakos Nyamira Tharaka -Nithi Lamu Kilifi Isiolo Meru Kitui Kiambu Kericho Siaya Nyeri Kwale Taita/Taveta Murang'a Busia Embu Makueni Nandi Bomet Homa Bay Kirinyaga Kisumu Mandera Bungoma Garissa Kisii Kajiado Turkana Vihiga Mombasa Trans Nzoia Tana River

27 FY2014/15 HALF YEAR EXPENDITURE BY ECONOMIC CLASSIFICATION (103.7b)

28 FY2014/15 COUNTIES OVERALL ABSORTION RATES Turkana Mandera KEY ABSORPTION RATES % overall absorption rate Trans Nzoia Bungoma West Pokot Busia Kakamega Vihiga Nandi Siaya Kisum Kericho Homa Bay Nyamira Kisii Bomet Migori Narok Baringo Kajiado Marsabit Samburu Isiolo Laikipia Meru Nyandarua Tharaka Nithi Nakuru Nyeri Murang'a Embu Kiambu Nairobi Machakos Kitui Wajir Garissa Tana River Lamu NOTE: Absorption rate is actual expenditure as a percentage of budget estimates. Source: [Office of the Controller of Budget] Taita Taveta Kwale Kilifi Mombasa

29 FY2014/15 COUNTIES OVERALL ABSORTION RATES 60.00% 50.0% Expected Absorption Average 50.00% 40.00% 32.4% Absorption Average 30.00% 20.00% 10.00% 0.00% Homa Bay Tana River Nandi West Pokot Mandera Laikipia Garissa Bomet Samburu Murang'a Embu Migori Kisii Makueni Meru Kericho Trans Nzoia Nyeri Nakuru Taita/Taveta Elgeyo/Marakwet Baringo Narok Machakos Busia Bungoma Kakamega Kitui Nairobi City Kajiado Kirinyaga Kiambu Kwale Wajir Nyandarua Kilifi Tharaka -Nithi Siaya Uasin Gishu Lamu Marsabit Nyamira Mombasa Isiolo Turkana Vihiga Kisumu

30 FY2014/15 COUNTIES RECURRENT ABSORTION RATES Choropleth Map Kenya Value Colors Turkana Mandera Marsabit KEY RECURRENT EXPENDITURE IN KSHS BILLIONS Wajir to to to to to to to to to 9.0 West Pokot Trans Nzoia Bungoma Busia Kakamega Vihiga Siaya Kisum Kericho Homa Bay Nyamira Kis ii Bomet Migori Narok Samburu Isiolo Baringo Laikipia Meru Nyandarua Tharaka Nithi Nakuru Nyeri Embu Muranga Kiambu Machakos Kitui Tana River Garissa 40.4% recurrent absorption rate Kajiado Lamu Source: [Office of The Controller of Budget] Taita Taveta Kwale Kilifi Mombasa

31 FY2014/15 COUNTIES RECURRENT ABSORTION RATES 70.0% 60.0% 50.0% 40.0% 50.0% Expected Absorption Average 40.4% Recurrent Absorption Average 30.0% 20.0% 10.0% 0.0% Homa Bay Tana River Bomet Trans Nzoia Embu Machakos Garissa Migori Busia Kirinyaga Mandera Murang'a Meru Laikipia West Pokot Nairobi City Tharaka -Nithi Nakuru Nyeri Baringo Kisii Bungoma Kericho Elgeyo/Marakwet Taita/Taveta Kwale Nandi Narok Makueni Kiambu Kakamega Samburu Turkana Kajiado Uasin Gishu Kitui Wajir Siaya Nyandarua Mombasa Kilifi Lamu Isiolo Nyamira Marsabit Vihiga Kisumu Homa bay, Tana River, Bomet had the highest recurrent absorption rates at 61.0%, 55.7% and 54.8% respectively. Vihiga and Kisumu had the lowest recurrent absorption rate at 21.9% and 10.9% respectively

32 FY2014/15 COUNTIES DEVELOPMENT ABSORTION RATES Choropleth Map Kenya Value Colors Turkana Mandera KEY DEVELOPMENT EXPENDITURE KSHS (Bns) 0 to to to to to to to to to to 3.0 Bungoma Busia Kakamega West Pokot Trans Nzoia Baringo Laikipia Samburu Marsabit Meru Isiolo Siaya Vihiga Ki sumu Nyandarua Tharaka Nithi Kericho Homa Bay Nakuru Nyeri Nyamira Embu Kis ii Muranga Bomet Migori Kiambu Narok Nairobi Machakos Kitui Wajir Tana River Garissa 21.9% development absorption rate Kajiado Lamu Source: [Office of The Controller of Budget] Taita Taveta Kwale Kilifi Mombasa

33 FY2014/15 COUNTIES DEVELOPMENT ABSORTION RATES 50.0% 45.0% 50.0%Expected Absorption Average 40.0% 35.0% 30.0% 25.0% 21.9% Development Absorption Average 20.0% 15.0% 10.0% 5.0% 0.0% Nandi Samburu West Pokot Mandera Makueni Garissa Tana River Murang'a Kitui Kisii Bomet Laikipia Kakamega Narok Migori Homa Bay Wajir Elgeyo/Marakwet Bungoma Meru Taita/Taveta Baringo Kilifi Kericho Marsabit Kajiado Nyamira Kwale Nakuru Trans Nzoia Busia Machakos Nyeri Embu Vihiga Siaya Kiambu Uasin Gishu Turkana Nyandarua Lamu Tharaka -Nithi Kisumu Kirinyaga Nairobi City Mombasa Isiolo Nandi, Samburu and West Pokot had the highest development absorption rates at 47.3%, 42.2% and 39.1% respectively Mombasa and Isiolo had the lowest development absorption rate at 4.6% and 4.1% respectively

34 CHALLENGES 1. Quarterly Reporting by Administrators of County Public Funds Section 168 of the PFM Act, 2012 requires administrators of county public funds to submit quarterly reports. Despite this requirement, most Counties are yet to submit quarterly reports by administrators of the established county public funds. 2. Use of Local Revenues at Source 6 Counties (Nairobi, Homabay, Machakos, Murang a, Meru and Trans Nzoia) reported higher expenditure than the amounts approved by the COB. 3. Unauthorised Diversion of Exchequer Releases Counties diverted approved releases to expenditure items that were not requisitioned. 4. Non-Compliance to SRC Circulars on Remuneration and Benefits of Public Officers Some officers are paid monthly commuter allowances despite having been assigned official vehicles. This is in contravention to the SRC Circulars. 5. Non-adoption of IFMIS by some County Assemblies

35 RECOMMENDATIONS 1. Counties must submit quarterly reports by administrators of county public funds as required by Section 168 (3) of the PFMA Act, All Counties should ensure that all locally generated revenue is deposited intact into the CRF. 3. County Treasuries should ensure strict budgetary control to address diversion of exchequer issues to other purposes rather the approved work plans. 4. All Counties must adhere to SRC Circulars on staff remuneration and benefits and should also recover all payments made in contravention of Circulars. 5. All Counties should adopt IFMIS.

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