亞開行-脆弱和受沖突影響的局勢、小島嶼發(fā)展中國家和緊急情況：財務管理技術指導說明（英）

FRAGILEANDCONFLICT-AFFECTED

SITUATIONS,SMALLISLAND

DEVELOPINGSTATES,AND

EMERGENCYSITUATIONS

TECHNICALGUIDANCENOTE

ONFINANCIALMANAGEMENT

NOVEMBER2023

ASIANDEVELOPMENTBANK

FRAGILEANDCONFLICT-AFFECTED

SITUATIONS,SMALLISLAND

DEVELOPINGSTATES,AND

EMERGENCYSITUATIONS

TECHNICALGUIDANCENOTE

ONFINANCIALMANAGEMENT

NOVEMBER2023

ASIANDEVELOPMENTBANK

CreativeCommonsAttribution3.0IGOlicense(CCBY3.0IGO)

?2023AsianDevelopmentBank

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ISBN978-92-9270-494-0(print),978-92-9270-495-7(electronic),978-92-9270-496-4(e-book)PublicationStockNo.TIM230569-2

DOI:

/10.22617/TIM230569-2

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CoverdesignbyJosefIlumin.

Contents

TableandFiguresiv

AboutThisPublicationv

Acknowledgmentsvii

Abbreviations

viii

ExecutiveSummaryix

I.Introduction1

II.FinancialManagementforFCAS,SIDS,andEmergencySituations

5

Appendix:IllustrativeExamplesfromFCASandSIDSContexts14

TableandFigures

Table

ADBFinancialManagementGuidanceMaterials2

Figures

1TheProjectCycle3

2TheFCASandSIDSApproach4

AboutThisPublication

ThisguidancenoteisissuedbytheProcurement,PortfolioandFinancialManagementDepartmentoftheAsianDevelopmentBank(ADB)toguideADBstaff,consultants,andstaffofexecutingandimplementingagenciesinperformingfinancialduediligenceandmonitoringprojectsinthecontextof

fragileandconflict-affectedsituations,smallislanddevelopingstates,andemergencysituations.

ThefollowingisalistofguidancematerialsonfinancialduediligenceissuedbyProcurement,PortfolioandFinancialManagementDepartment,showingthephasesintheADBprojectcycletowhichtheyapply.

Financial

Management

GuidanceonFCAS,SIDS,andEmergency

Situations

Year

Issued/Updated

2023

Processing

Implementation

ProjectClosing

ConceptStage

Fact-Finding

RRP

Reporting

PCR

FinancialReportingandAuditing

2022

CostEstimationin

SovereignOperations

2022

FinancialAnalysis

andEvaluation

2019

FinancialDue

Diligence

forFinancial

Intermediaries

2018

Financial

Management

Assessment

2015

GuidanceonUsingtheAPFSChecklist

2015

APFS=auditedprojectfinancialstatement,FCAS=fragileandconflict-affectedsituations,PCR=projectcompletionreport,RRP=reportandrecommendationofthePresident,SIDS=smallislanddevelopingstates.

viAboutThisPublication

Objective

Thisguidancenotedescribesandexplainsfinancialmanagementandfinancialduediligencerequirementsinthecontextoffragileandconflict-affectedsituations,smallislanddevelopingstates,andemergencysituations.

LivingDocument

Thisguidancenotewillberevisedasneeded.VariousADBpoliciesandregulations(operationsmanual,projectadministrationinstructions)referredtointhisguidancenotearesubjecttorevisionfromtimetotime.Thereaderisadvisedtoconsultthelatestversionofthosedocuments.

TheReader

FAQs

Readersareexpectedtousethisguidancenotetosuittheirneeds.ItisassumedthatthereaderisaprofessionalwithbasicfinancialknowledgeandinvolvedinactivitiessupportedwhollyorinpartbyADB-financedorADB-administeredsovereignoperations.

Frequentlyaskedquestions,clarifications,examples,additionalinformation,linkstotraining,andotherusefulresourcesareavailableontheADBwebsite.

LegalConcernsandOrderofPriority

LegalagreementsgovernthelegalrelationshipbetweenborrowersandADB.Ifthereisanydiscrepancybetweenthisguidancenoteandlegalagreements,thelatterwillprevail.

Acknowledgments

ThisguidancenotewasdraftedbyateamofdedicatedandengagedstaffinthePublicFinancialManagementDivision(PFFM)oftheProcurement,PortfolioandFinancialManagementDepartmentundertheguidanceofPFFMDirectorSrinivasanJanardanam.ThecoreteamcomprisedTahmeenAhmad(seniorfinancialmanagementspecialist)andAaronPasquinelCruz(associatefinancialmanagementofficer).CeciliaPeralta(seniorfinancialmanagementassistant)providedadministrativesupport.

CopyeditingwasdonebyTerryErleClayton,proofreadingbyLeviRodolfoLusterio,coverdesignbyJosefIlumin,andlayoutbyEdithCreus.

Weacknowledgethepivotalguidanceandsupportfromthefragileandconflict-affectedsituationsandsmallislanddevelopingstatesteamintheClimateChangeandSustainableDevelopmentDepartment.

ValuablerecommendationsreceivedduringtheinterdepartmentalreviewfromtheSectorsGroupandADBdepartments—CentralandWestAsia;ClimateChangeandSustainableDevelopment;EastAsia;SouthAsia;SoutheastAsia;Pacific;Strategy,Policy,andPartnerships;IndependentEvaluation;EconomicResearchandDevelopmentImpact;Controllers;andOfficeoftheGeneralCounsel—significantlyenrichedthecontentanddepthoftheguidancenote,andaregratefullyacknowledged.

Abbreviations

ADB–AsianDevelopmentBank

AEFS–auditedentityfinancialstatement

APFS–auditedprojectfinancialstatement

DMC–developingmembercountry

FCAS–fragileandconflict-affectedsituations

FDD–financialduediligence

FMA–financialmanagementassessment

FMS–financialmanagementstaff

FSA–FCASandSIDSApproach

OM–operationsmanual

SIDS–smallislanddevelopingstates

TGN–technicalguidancenote

ExecutiveSummary

Operatinginfragileandconflict-affectedsituations(FCAS),smallislanddevelopingstates(SIDS),andemergencysituationsrequiresadeepunderstandingofuniquecountrycontexts,recognitionofanelevatedgovernanceriskenvironment,adaptabilitytochangingcircumstances,andalong-termperspectivefordevelopmentimpact.

Strategy2030oftheAsianDevelopmentBank(ADB)callsfordifferentiatedapproachestodevelopmentworkinFCAS,SIDS,andsubnationalregionsofpovertyandfragility.TheFCASandSIDSApproachpromotesthedevelopmentandimplementationoftailoredapproaches,cognizantofthespecificcontexts,drivers,anddimensionsoffragilityuniquetoeachsituation.

FinancialmanagementforADBsovereignoperationsinFCASandSIDSisgroundedinADBfinancialmanagementguidance,derivedfromtheADBCharter,andalignedwiththethreecorepillarsoftheFCASandSIDSApproach:(i)improvingresponsivenessofstandardADBprocesses,procedures,andpracticesforFCASandSIDSdifferentiatedapproaches;(ii)enhancinganalyticaltoolsandknowledgesolutionstoinformoperationsplanning,design,andimplementation;and(iii)buildinginstitutionalcapacityforoperationsinFCASandSIDS.

EffectivefinancialmanagementarrangementsforADBsovereignprojectsrelyupontheprofessionaljudgmentofskilledandexperiencedfinancialmanagementstaffwhobalancefiduciaryassurancewithprojectandprogramimplementationneeds.InFCASandSIDSwithcapacityconstraints,astrategicapproachfocusesonlong-termengagement,ongoingcapacityenhancement,andgovernanceimprovementforsustainableimpactratherthanproject-specificfinancialmanagementarrangementsasappliedinlargercountriesornon-FCAScontexts.

ThistechnicalguidancenoteisalsorelevantforemergencysituationsandoutlinesprocessflexibilityinfinancialmanagementthatmayapplytoFCAS,SIDS,andemergencysituations.However,thelistisnotexhaustive,andfurtherareasofflexibilitymaybeidentifiedandapplied.TheappendixprovidesexamplesofcustomizeduseofADB’sfinancialduediligenceandmanagementforADB-financedsovereignprojectsinFCASandSIDS,demonstratingbestpracticesandpotentialchallenges.

I.Introduction

1.1Thistechnicalguidancenote(TGN)outlineshowtoadapttheAsianDevelopmentBank’s(ADB)financialduediligence(FDD)andmanagementrequirementsforADB-financedsovereignprojectsinfragileandconflict-affectedsituations(FCAS),smallislanddevelopingstates(SIDS)contexts,andemergencysituations.ItrecognizestheelevatedriskenvironmentinFCASandSIDS,thechronicstructuralchallengesfacedbySIDS,andtherapidlyevolvingriskenvironmentsofemergencysituationsandrecommendsadifferentiatedapproach.FlexibilitiesareincorporatedwithoutcompromisingADB’sfiduciaryobligations.

1.2In2022,ADBclassified12developingmembercountries(DMCs)asFCAS.1TheseDMCsareoftenimpactedbyweakgovernanceandinstitutionalcapacity,economicandsocialinsecurity,greatervulnerabilitytotheeffectsofclimatechangeandnaturalhazards,and,insomecases,politicalinstability.2Situationsoffragilitytendtoincreaseprojectfinancialmanagementrisks,persistforprolongedperiods,andrequirecontinuousintervention.AconflictsituationmayrequirerapidinterventionsandflexibilitytoconductFDDandmonitoringactivitiesremotely.

1.3In2022,16ADBDMCsself-identifyasSIDS.3TheseDMCsareoftencharacterizedbystructuralvulnerabilities,includinggeographicremotenessanddispersion,smallpopulationsandmarkets,narrowlybasedeconomies,lowfiscalrevenue,andhighimportandexportcostsforgoods.Theyarealsosusceptibletoweakgovernanceandinstitutionalcapacity,whichcanmanifestineconomic,social,andpoliticalinstability.ManySIDSDMCsareamongthemostgloballyexposedcountriestotheimpactofnaturalhazardsandclimatechange.4ThelimitedinstitutionalcapacityandvulnerabilitytoexternalshockselevatefiduciaryriskinSIDS.

1AcountryisconsideredFCASifithasanaverageratingof3.2orlessbasedontheADB

countryperformanceassessmentandtheWorldBankGroupcountrypolicyandinstitutionalassessment.

2AsianDevelopmentBank(ADB).2016.

MappingFragileandConflict-AffectedSituationsinAsia

andthePacific:TheADBExperience

.Manila.

3SIDSarerecognizedbytheUnitedNationsOfficeoftheHighRepresentativefortheLeastDevelopedCountries,LandlockedDevelopingCountriesandSmallIslandDevelopingStates

(UN-OHRLLA).Accordingtothis,ADBrecognized16ofitsDMCsasSIDSin2022.

4ADB.2021.

FragileandConflict-AffectedSituationsandSmallIslandDevelopingStatesApproach

.Manila.

Introduction3

1.8AnillustrationofADB’sfinancialmanagementandduediligencerequirementsateachstageoftheprojectcycleisdepictedinFigure1.

ADBProject

Cycle

Country

Partnership

Strategy

(Identi?cation)

Project

Designand

Preparation

Approval

?ImplementationofFMactionplan

?Compliancewithlegalcovenants

?ReviewofAPFS/AEFS

ImplementationandMonitoring

Figure1:TheProjectCycle

?Assesscountrypublic?nancialmanagementsystems

?Financialduediligence:

Costestimatesand?nancingplans

Projectviabilityand

sustainabilityassessments

Financialmanagement

assessment

Financialreporting,auditing,andfunds?owarrangements

Post-

Completion

Evaluation

Completion

?Financialviability

andsustainability

?Costatcompletion

?Lessonslearnedandrecommendations

ADB=AsianDevelopmentBank,AEFS=auditedentityfinancialstatements,APFS=auditedprojectfinancialstatements,FM=financialmanagement.

Source:AsianDevelopmentBank.

B.ADB’sFCASandSIDSApproach

1.9ADB’sStrategy2030callsfordifferentiatedapproachestodevelopmentworkinFCAS,SIDS,andsubnationalregionsofpovertyandfragility.7Differentiatedapproaches,basedonanunderstandingoftherootcauses,drivers,anddimensionsofvulnerability,fragility,andconflict,andthemultidimensionalaspectsofriskandresiliencefactorsinthespecificFCASandSIDScontexts,arecrucialtomoreproductiveADBengagementwithDMCsandimproveddevelopmentoutcomes.

7ADB.2018.

Strategy2030:AchievingaProsperous,Inclusive,Resilient,andSustainableAsiaand

thePacific

.Manila.

4FragileandConflict-AffectedSituations,SmallIslandDevelopingStates,andEmergencySituations

1.10AsadirectoutcomeofStrategy2030,ADBpublisheditsFCASandSIDSApproach(FSA)inJune2021.8TheFSAoutlinesADB’soperationalapproachandactionplan(2021–2025)forstrengtheningitsdevelopmenteffectivenessinFCASandSIDS.Thisactionplancomprises13keyactionareasand34supportingsub-actionsunderthreepillars(Figure2).ThisFCAS,SIDS,andemergencysituationsTGNonfinancialmanagementfallsunderthefirstpillar.

Figure2:TheFCASandSIDSApproach

Improvedlivelihoods,inclusiveness,andresilienceinFCASandSIDS

[mediumterm]

RESULTS

[intermediate]

ImprovedperformanceofADBoperations

ImprovedDMC

program

implementation

Increaseduseof?t-for-purposeapproachesinADBoperationsinFCASandSIDS

Improvingresponsiveness

ofstandardADBprocesses,

procedures,andpractices

forFCASandSIDS

?t-for-purposeapproaches

PILLAR1

5KeyActionAreas

?Adoptionofrisk-basedstrategicplanningandbusinessprocess

?FCASandSIDS-responsiveprojectmodalitiesin

operationaluse

?Contextappropriateprojectprocedures

?FCASandSIDS-responsivemonitoringandreporting

systemsoperational

?Enhancedknowledge

transferandintroductionofnewtechnologies

14sub-actions

IncreasingADB’s

institutionalcapacity

foroperations

inFCASandSIDS

PILLAR2

6KeyActionAreas

?EnhancedADBFCASandSIDSorganizational

coordination

?Strengthenedknowledgeandanalytics

?ADBstafmoreefective

inapplyingFCASand

SIDScontextualknowledgeandskills

?EnhancedADB

responsivenessontheground

?Strongerhumanresourcepoliciesandincentives

?Expandedpartnershipsandcoordination

16sub-actions

EnhancingunderstandingofDMCcontents

PILLAR3

2KeyActionAreas

?Completedmultidimensionalfragilityandresilience

assessment

?Completedwatchingbriefsonpotentialcontext-

sensitivesituations

4sub-actions

ADB=AsianDevelopmentBank,DMC=developingmembercountry,FCAS=fragileandconflict-affectedsituations,FSA=FCASandSIDSApproach,SIDS=smallislanddevelopingstates.

Source:AsianDevelopmentBank.

8Footnote4.

II.FinancialManagementforFCAS,SIDS,andEmergencySituations

A.DifferentiatedApproaches

2.1FinancialmanagementforADBsovereignoperationsinFCASandSIDSisbasedontheADBfinancialmanagementguidance(Table)andthethreecorepillarsoftheFSA.ItisimplementedwiththededicatedsupportofqualifiedandexperiencedADBfinancialmanagementstaff(FMS).Whiledesigningthefinancialmanagementarrangements,theprojectFMScarefullybalancetheneedforfiduciaryassurancewithanunderstandingofpracticalimplementationconstraintsduetocontextualfactors.Theyalsoassesstheneedforcapacitybuildingandsustainableinstitutionalstrengthening.

2.2ThefollowingbroadprinciplesareappliedwhileoperatinginFCASandSIDScontexts:

(i)Context-specificapproach.NotwoFCASorSIDScontextsare

identical.Thisrequiresthedesignoftailoredfinancialmanagementarrangementsthatbalancefiduciaryassurancewithpractical

implementationneeds.

(ii)Risk-basedapproach.Withinherentweaknessesingovernance,thepreliminaryfinancialmanagementriskisoftensubstantialorhigh.Theriskmitigationactionplanconsidersthecapacityoftheexecutingandimplementingagenciestomitigatefinancialmanagementandfinancialsustainabilityrisks.

(iii)Sustainedengagement.Closemonitoringofprojectfinancial

managementarrangementsandsustainedengagementforinstitutionalstrengtheningiscritical.

(iv)Fieldpresenceandclosecoordination.In-countrypresenceand

stakeholdercoordinationareessentialforeffectiveimplementation

support,especiallywhenmultipledevelopmentpartnersareinvolved.

Fiduciaryandfinancialmanagementunitsservingmultipledevelopmentpartner-fundedprojectsinasectororcountryensurecontinuityand

reliability.ADBhasalsoestablishedseveralcountryofficesinthePacificregiontoimproveinteractionanddeeperengagementwithADB’s

smallestDMCs.

6FragileandConflict-AffectedSituations,SmallIslandDevelopingStates,andEmergencySituations

B.ProjectDesignandDueDiligence

2.3ADB’sprojectpreparatoryactivitiesforsovereignoperationsincludefourFDDactivities:thepreparationof(i)financialmanagementassessments(FMAs)oftheexecutingandimplementingagencies;(ii)costestimatesandafinancingplan;(iii)financialanalysisoftheexecutingandimplementingagencies,andwhereapplicable,thefinancialevaluationoftheproject(orprojectcomponents);and(iv)thedesignoffundflows,financialreporting,andauditingarrangements.

2.4Financialmanagementstaffwiththerequisiteskills,qualifications,andexperienceconductFDDforADBprojects.TheseincludeexperienceinconductingduediligenceinFCAS,SIDS,andemergencysituationsandtheapplicationofprofessionaljudgmenttotheproject,agency,andcountrycontexts.

2.5ThefollowingsectionssummarizeADB’sFDDrequirementsanddiscusshowthesecanbetailoredtoFCAS,SIDS,andemergencysituations.Thelistisnotexhaustive,andADBfinancialmanagementstaffwillworkcloselywiththeexecutingandimplementingagenciestodesignbespokefinancialmanagementarrangements.

2.6TheappendixincludesexamplesoftailoredFDDactivitiesin

ADB-financedprojectsinFCASandSIDScontexts.

FinancialManagementAssessment

2.7Overview.AnFMAevaluatesthecapacityevaluatesthecapacityofexecutingandimplementingagenciesforefficientlyandeffectivelymanagingthefinancialresourcesfortheproposedADBprogramsandprojects.TheFMAisguidedbyADB’sOMG2:FinancialDueDiligenceinSovereignOperationsandTGNonFMA.TheFMAdrawsonthecountrypartnershipstrategyanditsrelatedgovernanceriskassessmentinestablishingarobustfinancialmanagementapproach.9

2.8WeakgovernancearrangementsandcapacitygapsheightenfinancialmanagementrisksinFCASandSIDS.Toaddresstheserisks,itiscrucialtoidentifyandtransparentlydiscloseallmaterialfinancialmanagementrisks,allowingformitigationsinprojectfinancialmanagementarrangements.IndefiningmaterialPFMweaknessesandrisks,itshouldberecognizedthatPFMandprocurementsystemsinFCASandSIDSmaybelesscomplexcomparedtootherjurisdictions.Whatmaybeamaterialfinancialmanagementriskinlargerjurisdictions(such

9Forthe12smallpacificislandstates(thePIC-12),thereferencetocountrypartnershipstrategymaybereplacedby"thePacificApproach."

FinancialManagementforFCAS,SIDS,andEmergencySituations7

aslackofaccrualaccountingorinadequatebudgetallocationsforoperationsandmaintenanceofassetsbykeylineministries)mightbeasystemicandcommonfindinginFCASorSIDScontexts.VariousaspectstobeconsideredwhiletailoringtheFMAaredescribedasfollows.

(i)Flexiblymanagingevolvingfinancialmanagementrisks.Risksandopportunitiescontinuetoevolveandemergeduringimplementation.Financialmanagementarrangementsneedtobesufficientlyflexibletorespondtoshiftingrealitiesthroughoutimplementation.

(ii)Simplifiedfinancialmanagementassessments.WhenprocessingaprojectwithanexecutingorimplementingagencywhichhaspriorandrecentexperiencewithADB,asimplifiedassessmentmaysuffice,whichwillconsistofanupdatetotheagency’sexistingFMA.10

(iii)Capacitybuildingandsupplementation.Financialmanagement

capacitybuildingisshapedbygovernanceriskassessments,financial

duediligence,bestpractices,andlessonslearnedfromprevious

projects.11ADBcraftscapacityenhancementplansforboththeprojectandgovernment,balancinginstitutionalstrengtheningwithcapacity

supplementation.Strengtheningkeypublicfinancialmanagement

institutionssuchasthecentralbank,theministryoffinance,andthe

supremeauditinstitution,aswellasthefinanceteamsofimplementingandexecutingagencies,contributestotheachievementofsustainabledevelopmentoutcomes.

2.9Financialmanagementassessmentduringemergencysituations.Inemergencysituations,efficientfinancialmanagementisvitalforaswiftresponseandensuringsufficientfundflows.Balancingimmediatesupportwiththerecipientagency’sabilitytouse,control,andreportADBfundsiscrucial.TheFMAmustbefinalizedbeforeprojectapprovalandcannotbedelayed.However,anexistingFMAmaybeacceptedduringprocessingandupdatedwithin3monthsofapprovalifitisolderthan2years.ForanFMAfornewexecutingorimplementingagencies,itshouldbecompletedduringprocessing.

10TheexistingFMAshouldnotbeolderthan2yearsfromthedateofpreparation.

11Tailoredtechnicalassistanceprogramscanprovidesupport,includingon-the-jobtraining,peerlearningwithotherDMCs,andcreatingorupdatingfinancialmanagementmanuals.InSIDScontexts,wherecapacityispersistentlylowandstaffturnoverhigh,ADBmayconsidercapacitysupplementationthroughlong-termconsultanciesandsupportingfinancialmanagementteamsbothatprojectandgovernmentlevelwithappropriatefunding.However,capacitysupplementationisnotwithoutitsownchallenges,subjecttofundingrisk,andofferedfortheshort-tomedium-term.

8FragileandConflict-AffectedSituations,SmallIslandDevelopingStates,andEmergencySituations

CostEstimation

2.10Overview.Costestimatesarepreparedattheconceptstage,refinedthroughoutprocessing,updatedduringimplementation,andvalidatedatcompletion.Thecostestimatescoverthetotalcosttobeincurredindeliveringalloutputsincludedintheprojectscopeasdefinedinthelegalagreement.Totalprojectcostcomprisesbasecost,contingencies,andfinancialchargesduringimplementation.Cost-estimatepreparationisguidedbyADB’sOMG2andTGNoncostestimationinsovereignoperations.Tosupporthigh-qualitycostestimates,projectteamsmustensuretimelinessandrealisticunderlyingassumptions.

2.11Challengesofcostestimation.ThelikelihoodofdelaysandcostoverrunsmaybehigherinFCASandSIDSduetocapacityconstraints,limitedexperience,andgenerallackofadministrativeprocessesandoversightand—particularlyforSIDS—remotenessanddispersionthatcanincreasesupplychainuncertaintiesandtransportationcosts.

2.12Financingprojectreadiness.ADBoffersaprojectreadinessfacilityfortimelyprojectpreparationandreliablecostestimates.TheSmallExpenditureFinancingFacilityallowsquickresponsetofinancingneedsforsmallexpendituressuchasprojectpreparationconsultancies.Ongoingloanscanincludeconsultingpackagesforpreparingfeasibilitystudies,duediligence,andbiddingdocumentsforensuingprojects,enhancingthereadinessforFCASandSIDSprojects.

2.13Refiningcostestimates.Inareaswithheighteneduncertaintysuchasremote,inaccessible,orconflict-affectedareas,asdescribedinpara.2.11,contingencyallocationsmayinitiallyconstituteahigherproportionofthecostestimatesthanusual.Asadditionalinformationbecomesavailable,costestimatesshouldberefinedandupdatedbothbeforeprojectapprovalandduringprojectimplementation.Thiscanreducetherisksofprojectdelays,costoverruns,orloancancellations.

2.14Costestimationinemergencysituations.Thecostestimatesduringemergencysituationsshouldfollowthesameprinciplesforcostestimationasregularprojects.Duringprocessing,theinitialcostestimatesma