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Table of Contents
Foreword
1
2
I.
II.
Acronym
Introduction
A. Rationale
B. Target Users
C. Structure of the Manual
8
8
8
10
10
11
12
13
13
13
13
14
15
15
16
20
22
22
26
V.
28
28
28
28
29
29
55
VI. Annexes
58
125
VIII. References
127
1|Page
FOREWORD
These Guidelines for the Audit of Foreign-Assisted Projects (GAFAP) attempt to put
together all existing pertinent guidelines of the Commission on Audit (COA) into a single
user manual to equip COA auditors with an easy reference in the performance of the
audit of foreign-assisted projects (FAPs). Recently, there have been changes in COA
operations, and in the countrys initiatives to improve and maximize benefits from aid
effectiveness, that have significant implications for the audit of FAPs and have also
necessitated revision or updating of the existing guidelines. The changes include the
following:
Growing concern for improved transparency, accountability, effectiveness and
timeliness of the audit of FAPs to better achieve the desired development results by
identifying and analyzing audit risks, and formulating appropriate audit programs, in
accordance with standard auditing rules and regulations;
Adopting COAs integrated results and risk-based audit (IRRBA) methodology in
performing its audit functions, and providing a general framework to ensure
consistent delivery of quality financial audit services;
Explicit use in the audit of FAPs of the criteria and procedures of financial and
compliance audit, and performance audit, as specified in these GAFAP; and
Supporting the use of the logical framework in project preparation, implementation,
monitoring and evaluation.
For this purpose, a Sub-Technical Working Group (STWG) was reconstituted pursuant to
COA Office Order No. 2010-145 dated March 1, 2010 to finalize the GAFAP. The STWG
was composed of Supervising Auditor Fatima A. Rafer, as leader; and Supervising Auditor
Carmelita O. Antasuda, Auditors Ellen T. Sison, Ma. Theresa B. Ferreros and Anniely P.
Ibanez, as members, and Auditor Rhea D. Piano, as secretariat.
The STWG was under the Technical Working Group (TWG) as reconstituted pursuant to
COA Office Order No. 2010-088 dated February 4, 2010 composed of Director Bato S. Ali,
Jr, as chair, and Directors Luz L. Tolentino, Marietta M. Lorenzo and Roland A. Rey, as
members. The TWG enlisted the support of Director Melanie R. Anonuevo and
Supervising Auditors Villa DJ. Bernaldo and Myrna K. Sebial as Resource Persons to assist
both the STWG and the TWG. Technical assistance was also provided by Director Adelina
Concepcion L. Ancajas, Cluster 2-National Government Sector, who has audit jurisdiction
over Department of Finance (DOF), Bureau of the Treasury (BTr), Department of Budget
and Management (DBM) and National Economic and Development Authority (NEDA).
The project output was subject to the review and recommendation of the Steering
Committee composed of then Commissioner Juanito G. Espino, Jr., as chair, and
Assistant Commissioners Emma M. Espina, Carmela S. Perez and Isabel D. Agito, as
members, pursuant to COA Office Order No. 2010-088.
The preparation of these GAFAP benefited from the technical and financial support
provided by the Kreditanstalt fur Wiederaufbau (KfW), German bank, under the
Guidelines on the Audit of Foreign-Assisted Projects
2|Page
Technical Assistance (TA) for the Capacity Strengthening of the Philippine Government
for Improving and Demonstrating Development Effectiveness and Managing for
Development Results (MfDR) from March 2010 up to the completion of the draft GAFAP,
and the conduct of orientation and training for COA officials and auditors assigned to
audit FAPs. Lastly, the GAFAP preparation also gained facilitation and technical support
from the Sustainable Development Solutions, Inc, (SDS) - the managing contractor for
KfW TA.
3|Page
I.
ACRONYMS
AASC
ABM
ADB
ADDO
AGDB
AM
BAR
BED
BSP
BTr
CAMC
CC
COA
CPPR
DAC
DBM
DFS
DILG
DMCs
DMF
DOF
DOJ
DPs
EA
EO
EoPR
FA
FAPs
FCA
FLIs
FS
GA
GAA
GAFAP
GFIs
GOCCs
GOP
GPA
GPFS
GTZ
IA
IAASB
IAR
4|Page
IBRD
ICB
ICC
ID
IED
IEG
IFAD
IFR
IMA
IACs
IRA
IRRBA
ISA
ISSA
JAW
JEV
JICA
KfW
LA
LASA
LC
LCB
LCE
LGUs
LIBOR
LogFrame
M&E
MB
MCP
MDFO
MfDR
MTPDP
MOD
MOU
MRD
NCA
NCAA
NCB
NEDA
NG
NGAs
NGOs
NIB
NPMC
OA
ODA
OECD
5|Page
OED
OP-PMS
OPEC
PA
PAD
PCR
PDC
PDM
PDP
PER
PF
PFP
PFS
PPFS
PIOs
PIP
PIU
PMO
PMS
PMU
PO
PP
PPE
PPMS
PSC
QPRO
RA
RME
ROW
RPMC
RPMES
SA
SAAODB
SAAODBOE
SAR
SARO
SB
SDS
SEER
SOE
SP
SPFS
SPLA
SSAF
STWG
6|Page
TA
TB
TACR
TL
TT
TWG
USAID
WA
WB
ZOPP
Technical Assistance
Technical Board
Technical Assistance Completion Report
Team Leader
Task Team
Technical Working Group
United States Agency for International Development
Withdrawal Application
World Bank
Zielorienterte Projektplanung
7|Page
II. INTRODUCTION
A.
Rationale
Government agencies have long recognized the difficulties and challenges
associated with the management, supervision and execution of foreign-assisted
projects (FAPs). It is for this reason that these agencies have exerted efforts to
strengthen and streamline their existing systems of managing FAPs.
Parallel efforts should be taken by the Commission on Audit (COA) to synchronize
the audit of FAPs with the initiatives of these agencies. It is therefore imperative
that the auditors acquire a wide grasp and understanding of what FAPs are, and
how these are managed, supervised and implemented by government agencies.
This Manual will serve as guide for the auditors to be able to address the
requirements of audit of FAPs, including those of the development partners (DPs).
It is applicable to the audit of projects funded by foreign loans and foreign loans
with grant released thru BTr.
B.
Target Users
This Manual is primarily for the use of COA auditors assigned to audit FAPs.
C.
Title
Acronyms
Particulars
contains the meaning of the acronyms used in
the Manual
II
Introduction
III
COA at a Glance
IV
Understanding FAPs
8|Page
Part
Title
Particulars
Guidelines in the
Audit of FAPs
VI
Annexes
VII
Definition of Terms
VIII
References
9|Page
10 | P a g e
B.
11 | P a g e
C.
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Purpose
The purpose of this chapter is to give a brief description of FAPs to assist the
auditors in their understanding of its operation - knowledge of which is not only
necessary in planning the audit but in the entire audit exercise itself.
B.
Overview
As defined, FAPs are development projects partly or fully financed by foreign
loans and/or grants. This chapter distinguishes the characteristics of foreign loans
and grants, and discusses the four types of loans which the Government of the
Philippines (GOP), Government Financial Institutions (GFIs) and other GovernmentOwned and/or Controlled Corporations (GOCCs) may enter into agreements with
DPs.
This chapter explains that, once agreements are entered into with DPs, the entire
funding requirements may consist of loan proceeds, GOP counterpart or equity,
and/or grant proceeds. The funds are sourced from different types of
creditors/donors who have their own peculiar rules and regulations.
This chapter also discusses the different modes of availment through which the
loan proceeds can be withdrawn. A short explanation is also given regarding the
financial cost which the GOP, GFIs, GOCCs or local government units (LGUs) bear as
a result of their loans. This cost includes interests, commitment charges, and
front-end fees, among others.
The auditors understanding of the executing agency (EA)/implementing agency
(IA) and its projects require familiarity with the major phases of DP-financed
projects. These phases are collectively referred to as the project cycle. Lastly, the
chapter briefly describes these phases including the steps and the responsible
agency/institution for each phase as well as the documents produced in each step
of the phases.
C.
Types of Financing
There are two main types of financing for FAPs, namely:
(i)
13 | P a g e
guaranteed by the GOP. Generally, there are four types of foreign loans,
namely:
a.
b.
c.
Commodity loans are provided by DPs in the form of goods for the direct
use of the project or to be subsequently monetized to finance such
project of the EA/IA.
d.
Mixed Credit composed of one or more loans and one or more grants,
usually from bilateral and commercial DPs.
Funding Requirements
The total funding requirements of a FAP are usually composed of loan/grant
proceeds and GOP counterpart (for NGAs) or equity (for GFIs, GOCCs, LGUs and
beneficiaries), as briefly described below:
Loan proceeds are funds coming from DPs which should be used exclusively for
purposes specified in the LA.
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E.
Grants are assistance received either in cash or in-kind, which may be in the
form of goods and/or services for project development and implementation.
Sources of Financing
Funds for FAPs could be sourced from multilateral, bilateral and/or commercial
DPs. The distinct features of these DPs are described below:
Bilateral DPs are countries which extend assistance on a government-togovernment basis. Among the GOPs bilateral DPs are the Government of Japan
[through Japan International Cooperation Agency (JICA)], Government of the
United States of America [through United States Agency for International
Development (USAID)], and Federal Republic of Germany [through
Kreditstanstalt fur Wiederaufbau (KfW) and Gesellchaft fur Technische
Zusammenarbeit (GTZ)].
F.
Modes of Availment
The loan becomes effective when all requisite conditions or the period/date for
loan effectivity as stipulated in the LA have been fulfilled by a borrower. Common
conditions for loan effectivity are the establishment of Project Steering Committee
(PSC), Project Management Office (PMO), adoption of the Project Implementation
15 | P a g e
Plan (PIP), and engagement of an independent audit firm with qualifications and
under terms of reference acceptable to the DPs. Once the loan is effective, the
borrower can start loan availment and the commitment fees start to accrue.
The modes of availment, whether cash or non-cash, through which the loan
proceeds can be withdrawn as stated in the LA are discussed below:
Cash Availment - in the form of:
Imprest Fund (for ADB)/Special Account Procedure (for IBRD, JICA) is when
the DP makes an advance disbursement from the loan account for deposit to a
designated bank account of the project to be used exclusively for DPs share of
eligible expenditures; and/or
Reimbursement Procedure (ADB, IBRD, JICA) is when the DP pays from the
loan proceeds to the borrowers account for expenditures for goods and
services that have already been incurred and paid by the borrower from its
own resources.
Direct Payment Procedure (ADB, IBRD, JICA) is when the borrower requests
the DP to pay from loan funds the amount due directly to the designated
beneficiary (consultant/supplier); and/or
Commitment Procedure (ADB, IBRD, JICA) is when the DP, at the request of
the borrower, provides an assurance in the form of a commitment letter from
the Bank to a commercial bank/third party for payment made or to be made to
a supplier in accordance with the terms and conditions specified in the letter of
credit (LC)/agreement between the DP and the borrower.
Grants that pass through BTr are deposited to the designated account of the
Treasurer of the Philippines, and eventually transferred to an Imprest or Special
account specifically opened by the EA/IA for the purpose. Other grants that do not
pass through BTr are directly deposited to the designated account of the EA/IA or
administered by a Fund Manager as designated by the donor.
G.
Funds Flow
The funds flow for the receipt of loan proceeds varies depending on the mode of
availment and on whether the EA/IA is an NGA, a GFI/GOCC or an LGU. For LGUs,
loans are availed through relending from the Municipal Development Fund Office
(MDFO) or a GFI. Initially, the loan proceeds are availed of by the MDFO or GFI, as
the EA, following the procedures diagrammed in A.1 and A.2, respectively. The
MDFO or a GFI relends the funds received to the LGU.
16 | P a g e
The process for each mode and type of borrower is illustrated below:
A.
Cash Availment
1.
2.
EA/IA
DP
Opens Project
PA and submits WA to
DPs
Receives,
Processes WA and
Credits EA/IAs PA
Receives loan
proceeds and records
receipt
17 | P a g e
3.
LGU
MDFO/GFIs
Submits feasibility
study Sanggunian
Panlalawigan (SP)/
Sanggunian Bayan
(SB) Resolution to
MDFO/GFIs
Receives loan
proceeds and
records receipt
Note: If through MDFO, MDFO instructs AGDB to credit LGUs Project Account
B.
Non-Cash Availment
1.
18 | P a g e
2.
EA/IA
DPs
Supplier/Contractor
Submits WA for
Direct Payment to
DPs
Receives,
processes WA and
pays the
Supplier/Contractor
Receives payment
Receives Notice of
Disbursements/ WA/
Payment Advice and
records availment
Notifies GOCCs
of disbursement
made
Loan Cancellation
While the loan is still effective, any unwithdrawn amount of the loan may be
cancelled by the DPs, upon notice to the borrower and the guarantor under
any of the following conditions:
The borrowers right to make withdrawals from the loan account has
been suspended or the reasons for suspension have remained
unremedied;
DP determines, at any time and after consultation with the borrower,
that the loan is no longer required for purposes of the project;
DP determines, with respect to any contract to be financed out of the
proceeds of the loan, that corrupt or fraudulent practices were engaged
in by representatives of the borrower, the guarantor, or any beneficiary
of the loan during the procurement of goods or services, consultants
selection or the execution of the contract, without the borrower or
guarantor having taken appropriate action to remedy the situation;
DP determines that the procurement of any goods and services to be
financed out of the proceeds of the loan is inconsistent with the
procedure set out in the LA; or
An amount of the loan remains unwithdrawn from the loan account at
loan closing date.
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Debt Service
Debt service refers to the repayment of the principal, payments of interest, fees
and charges such as front-end fee, commitment fee, and service charges, other
fees/charges as well as penalties on a loan. It is usually a scheduled payment
made semi-annually based on an amortization schedule as agreed between the
DPs and borrower country or agency. Under some loan agreements, interests,
commitment fees, services charges, and other fees/charges are no longer paid by
the borrower to the DPs but by the DP to itself, thus, are capitalized expenses
which form part of the availments/drawdowns from the loan.
Debt Servicing Process (by Borrower Type)
Loans of the NG
In the NG, the BTr effects debt servicing through the BSP and it involves the
following procedures:
BTr, based on the billing statements of DPs, prepares Letter/Debit Authority
for BSP to effect payments to DPs through its designated bank; and
BSP issues debit advice to BTr and the latter records loan repayment, interest
payment and other financing charges in the NG books of accounts.
Loans of GOCCs/GFIs
The GOCCs/GFIs may obtain loans through the NG or directly from the DPs. The
loan repayment involves the following processes:
20 | P a g e
Direct Loans
DPs directly send bills to the GOCCs/GFIs.
Based on the billing statements, the GOCCs/GFIs send payment to DPs
through the designated banks and in the currency stipulated in the LA or in
the billing statement.
The GOCCs/GFIs deposit cash with the BTr and request it to pay the DPs.
In case the GOCCs/GFIs have no available funds to pay the amortization due,
the GOCCs/GFIs request DOF for the NG to advance said amortizations and
submit the required documents for review.
After the review, DOF recommend to the BTr for the NG to advance the
amortization due as requested.
The BTr effects payment to the DPs.
Loans through the NG
DPs send bills to the BTr;
BTr sends bills to GOCCs/GFIs;
GOCCs/GFIs pay DPs through the BTr; and
In case the GFIs/GOCCs are unable to pay amortizations due, BTr advances
payment of loan amortization for the GOCCs/GFIs. The process follows the
repayment process for GOCCs/GFIs direct loans.
Loans of LGUs
Foreign funding availed by LGUs through the NG or conduit GFIs are called relent
loans. The MDFO manages relent loans from NG while the Land Bank of the
Philippines (LBP) and the Development Bank of the Philippines (DBP) manage other
relent loans to the LGUs.
The repayment of MDFO-managed relent loans involves the following processes:
In the grant of loans, MDFO requires LGUs to execute the Sub-Project Loan
Agreement (SPLA) which defines the terms, conditions and requirements for
the loan, the repayment mode and schedule of amortization.
SPLA also requires the inclusion of a Sanggunian resolution authorizing the
local chief executive (LCE) to secure loan from MDFO and authorizing further
the intercept of the Internal Revenue Allotment (IRA) in case of default in
amortization payment.
SPLA also requires the maintenance of a bank account where loan
amortizations will be deposited for further remittance to MDFO.
In case of default in amortization payment, MDFO requests DBM to withhold
the loan amortization due from IRA releases.
21 | P a g e
DBM informs LGU of the withheld IRA through the Notice of Funding Check
Issued which shows the deduction for the loan amortization from the IRA.
The repayment of GFI-managed relent loans is made directly to the specific GFI
through a designated bank account in accordance with the amortization schedule
specified in the LA, and the statement of account or bill is sent to the LGUs
concerned.
I.
Terms of Financing
When the NG, GFIs and GOCCs borrow from DPs for their development projects,
such borrowed funds are coupled with financing costs such as interests,
commitment charges and front-end fees, among others. A sample comparative
table of the loan charges, repayment and grace period for ADB, IBRD JICA and KfW
is shown in Annex A.
J.
22 | P a g e
Philippine Development Plan (PDP) and the development of the necessary prefeasibility study.
1
Institution
EA/IA/DP
Activity
Conceptualizes and identifies Project/s
Prepares Project Proposal/s (PP)
Output
Project Proposal/s
Agency
EA/IA
Activity
Reviews existing policies and procedures
which can affect project
Examines technical and institutional
alternative
Assesses costs, time schedules and
operational requirements.
Output
Project concept note
Situational analysis
Indicative cost
assessments, time
schedule and
operational
requirements
Risk assessment
Phase 3: Feasibility
The projects overall potential or viability is examined using data and information
gathered at the preparation stage. The feasibility stage is critical as it is the
culmination of all preparatory work and provides a comprehensive review of all
aspects of the project before a final decision about its viability is taken.
1
Agency
EA/IA
Activity
Prepares the various modules of the
Project Feasibility Study (PFS).
Determine if project is worthwhile to
implement
Output
PFS
Other required
documents (Annex B)
23 | P a g e
The general sequence of activities during project approval and financing phase is
listed in the table below.
Agency
EA /IA
Activity
Submits PFS and other requirements to ICC
through the ICC Secretariat
NEDA ICC
Secretariat
ICC-Technical
Board
DBM
EA/IA
ICC CC
7
8
NEDA Board
DOF
DBM
10
Bangko Sentral
ng Pilipinas
(BSP)
International
Department (ID)
Office of the
President (OP)
11
12
DOF
13
DP
Output
PFS
ICC-PE Forms
Regional
Development Council
(RDC) Endorsement
Environmental
Compliance
Certificate (ECC)
Calendar of Projects
PER, (contents as
shown in Annex B)
Special authority to
negotiate and sign in
behalf of the President
Request for FA
Forward Obligational
Authority (FOA)
MB approval in
principle
24 | P a g e
Agency
14
DOF/BSP/
Department of
Justice (DOJ)
15
DOF
16
17
18
BSP
DOJ
BSP, DOF, BTr
(for GOP loans
and GOCC
relent) IA/EA
EA/IA
19
20
DBM/OP
21
22
Congress/OP
EA/IA
23
DBM
Activity
team, sends the preliminary LA and Invitation
to negotiate to the DOF and IA
Reviews the LA as part of Inter-Agency
Committee Review of Foreign Loan
Documents (BSP-ID, Chair; DOF, Co-Chair &
DOJ), except for JICA, ADB & IBRD
Signs the LA and request for MB final approval
and DOJ legal opinion
Facilitates MB final approval
Reviews and issues legal opinion
For implementation once loan becomes
effective
Submits to DBM the funding requirements for
the project in its annual budget
For projects funded by loan that become
effective without appropriation, EA/IA submits
approved special budget request at CC level
by March 31, of each year per Budget call
Evaluates and includes in the proposed budget
for submission to Congress
Undertakes the budget review and approval
Prepares and submits the Physical and
Financial Plan (PFP) to the DBM and Monthly
Cash Program (MCP)GOP
Reviews the PFP and releases the Agency
Budget Matrix (ABM)/ Special Allotment
Release Order (SARO)
Output
Reviewed LA
Signed LA
Final Approval
Legal Opinion
Proposed Annual
Budget of the Project
Proposed annual
budget
GAA
PFP and MCP
ABM/SARO
25 | P a g e
Agency
EA /IA
Activity
Prepares detailed basic programs
Allocates tasks
Determines resources
Completes blueprints and specifications.
Output
Detailed design
Detailed
engineering
Task and resource
allocation
Agency
EA/IA
Activity
Implements, operates, monitors, evaluates and
reports on progress of project.
Output
Regular progress
reports
Project implementation
completion report
K.
Agency
EA /IA
Activity
Re-estimates projects outcomes based on
actual performance
Identifies critical variations from plan
Output
Ex-post evaluation
report
26 | P a g e
Appraisal Report (SAR) for ADB, and Minutes of Discussion (MOD) for JICA, the LA
and its attached Schedules and Operations Manual required by the DP, if any, each
DP has its own rules and regulations that the auditor should know, some of which
are shown below:
DPs
1. ADB
IBRD
Guidelines/Manuals/Handbooks
Loan Disbursement Handbook, January 2007
ADBs Guidelines on the Use of Consultants by Asian Development Bank and
its Borrowers, April 2010
ADBs Procurement Guidelines, April 2010
Handbook on Policies, Practices, and Procedures Relating to Procurement
under Asian Development Bank Loans
2. KfW
3. JICA
Guidelines for Procurement under Japanese ODA Loans dated March 2009
Reimbursement Procedure for Japanese ODA Loans dated October 2008
Commitment Procedure, October 2008
Special Account Procedure, October 2008
Reimbursement Procedure, October 2008
The auditors should also consider the relevant amendments to the above DPs rules
and regulations as applicable to the grant or loan agreement.
27 | P a g e
Purpose
The purpose of this chapter is to provide detailed guidelines in the conduct of
financial and compliance audit (FCA) and performance audit (PA) of FAPs within
the context of the COAs audit framework (i.e., IRRBA).
B.
Overview
This chapter provides the framework in conducting FCA and PA of FAPs. The
objective of FCA is to express an opinion on the fairness of presentation of the
general purpose financial statements (GPFS) or special purpose financial
statements (SPFS) generated by the EA/IA for its FAPs, and on the EAs/IAs
compliance with laws, rules and regulations with regard to FAPs. The objective of
PA is to evaluate the efficiency, economy, effectiveness and sustainability of FAPs.
This chapter also identifies the audit areas for PA such as project readiness,
procurement of goods/services/consultancies, monitoring and evaluation, asset
management and project sustainability. It also includes the different ways by
which the DPs, oversight agencies and the respective Project Management Offices
(PMOs) of the EAs/IAs conduct project monitoring and evaluation during
implementation and after completion.
C.
Audit Framework
COA is committed to promote good governance and be a vibrant partner in nation
building by providing adequate, reliable and current information on the affairs of
government through appropriate approaches and impartial exercise of its powers
so that accountability, transparency, economy, productivity and effectiveness in
the conduct of government operations are promoted.
In this pursuit, COA uses the IRRBA methodology in performing its audit functions.
Its purpose is to provide a common framework to ensure consistent delivery of
quality audit services.
The IRRBA methodology is designed to enable the team:
(i)
28 | P a g e
Planning
Agency Audit
Planning and
Risk Assessment
Delivery
Execution
Conclusion and
Reporting
Monitoring
D.
Scope of Audit
The audit of FAPs will cover: (i) program loans of investment type, (ii) all project
loans, and (iii) grants that pass through BTr and those that require audit as
specified in the GAs.
E.
Types of Audit
(i) Financial and Compliance Audit
This audit is conducted to enable the auditor to express an opinion on the fair
presentation of the GPFS or SPFS generated for FAPs, as well as on the EA/IAs
compliance with applicable laws, rules and regulations, and LAs/GAs.
a.
29 | P a g e
30 | P a g e
b.
31 | P a g e
Project Readiness
Project readiness refers to the timely compliance of the EAs/IAs with the
start-up requirements during appraisal and prior to project
implementation which may include the following:
Appraisal
Alignment with GOP objectives
Institutional Readiness (IAs
technical
and
financial
preparedness)
Ownership
Design of the Project
Risk Assessment
32 | P a g e
Appraisal
33 | P a g e
34 | P a g e
other risks identified and prepare the corresponding APs to address such
risks.
b.
Procurement
The categories of goods, services and civil works and the applicable
procurement methods are stipulated in the LA between the DP and the
EA/IA. In the absence of specific requirements in the LA, the provisions
of Republic Act No. 9184 (RA 9184), the Government Procurement
Reform Act shall apply.
Goods and Civil Works
The following are the selection methods of the funding institutions:
Consulting Services
The selection and employment of consultants may be undertaken
through the following selection methods:
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The identified possible risks and the corresponding sample APs are
presented in Annex K. However, the auditors are not precluded to
include other risks identified and prepare the corresponding APs to
address such risks.
c.
Asset Management
Asset management refers to the whole range of activities and processes
in the safeguard, proper operation, maintenance of assets, and keeping of
pertinent records to achieve the following:
a)
b)
c)
d)
e)
The auditor should look into the achievement of the above objectives.
The identified possible risks and the corresponding sample APs are
presented in Annex L. However, the auditors are not precluded to
include other risks identified and prepare the corresponding APs to
address such risks.
d.
Description
Tracking of inputs or resources employed to implement a
project
Tracking of production of goods or delivery of service for
36 | P a g e
Types of
Monitoring
Description
an intended beneficiary
Tracking of pre-implementation processes, procurement
processes, right of way (ROW) acquisition and
resettlement activities, negotiation with LGUs
Sector
Tracking of sector performance either based on the
consolidated project performance on sub-sector or
sector-wide basis or through the Sector Efficiency and
Effectiveness Review (SEER)
Source: Manual for Project Monitoring, NEDA (2004)
Process
Description
37 | P a g e
By the GOP
a. NEDA
Executive Order (EO) 230 provides the organization and functions of
both the NEDA Board and the NEDA Secretariat. The Project
Monitoring Staff (PMS) of NEDA is tasked to: (i) monitor the progress
of implementation of approved development programs, based on
reports from the central offices of line agencies and NEDA regional
offices; (ii) identify bottlenecks and propose solutions to problems of
implementation; (iii) prepare integrated reports on the status of
approved development projects; (iv) monitor the implementation of
ongoing projects, including the utilization of foreign exchange
proceeds by these projects; (v) provide technical assistance to NEDA
regional offices in project monitoring and assessment; and (vi)
conduct post project evaluation and impact analyses.
Under RA 8182 or the ODA Act of 1996, NEDA is mandated to
conduct an annual review of the status of all projects financed by
ODA, identify causes of delays, reasons for bottlenecks, cost overruns,
both actual and prospective, and continued viability, and report to
Congress not later than June 30 of each year. The Act likewise
provides for assessing the performance of individual ongoing
projects as well as the overall performance of all projects that are
funded in whole or in part by ODA.
ODA Portfolio Review
The NEDA PMS, with the participation of oversight agencies (e.g.,
DOF, DBM), DPs (e.g., ADB, WB, JICA) and various EAs/IAs, conducts
annual ODA Portfolio Reviews of active loans and grants. In general,
the Review aims to: (i) assess the performance of all ODA-funded
projects; (ii) report on results and outcomes; (iii) identify key
implementation issues/problems and address cross-cutting issues that
hamper project implementation; (iv) determine actions taken and
actions that should be taken by concerned entities to ensure smooth
project implementation; (v) track development on recommendations
made in previous portfolio reviews; and (vi) identify lessons learned
and best practices.
Project Implementation Officers (PIO) System
The PIO system, created in 1999, designates individuals at the
Undersecretary level to be held accountable for overseeing the
implementation of ODA-funded projects in their respective agencies.
With the NEDA PMS as the Secretariat, regular PIO meetings are
38 | P a g e
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status. The projects are either classified as regionspecific, multi-regional, and nationwide projects.
End of Project The EOPR is prepared by NEDA PMS for all
Report (EoPR) completed projects or closed loans. Each EOPR
contains details on project design, divergence
between appraisal and actual targets, reasons for
deviations, actual inputs and outputs and initial
assessment.
Ex-post Evaluation
Joint ex-post evaluation of projects is being done by NEDA and JICA
through a series of MOUs signed since 2006. The MOUs aim to
capacitate NEDA and other concerned EAs/IAs through the transfer of
evaluation techniques in the course of jointly conducting postevaluation for selected ODA projects in the country.
b. PMOs
PMOs of the EAs/IAs usually have M&E Units that undertake the M&E
activities and report the results based on the PIPs or Implementation
Manuals or its equivalent. Implementing arrangements for FAPs vary.
Below are some of the categories or modalities, among others.
41 | P a g e
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IBRD
DP
M&E Processes/Reports/Practices
Evaluation is an important part of its project cycle. Its
evaluation has two levels: a) self-evaluation by the
operations department of the EA/IA responsible for
preparing and implementing projects, programs and TA
operations, and b) independent evaluation by the
Operations Evaluation Department (OED), now
Independent Evaluation Department (IED) of ADB. Selfevaluation uses a number of instruments, such as:
project/program performance reports; review reports
prepared during the course of project implementation,
usually at mid-term; project/program completion
reports (PCRs), TA completion reports; and country
portfolio performance review (CPPR). For the
independent evaluation, project performance evaluation
reports and program performance evaluation reports
are prepared by the IED. With the exception of project
preparation TA resulting in a loan, ADBs policy is to
conduct PCRs and TA completion reports on all
completed projects, programs and TA.
Responsibility for supervision of a Bank-financed project
rests with a task team (TT) assigned to the project. The
TT includes Regional staff designated by the Region, as
well as a lawyer and finance officer designated by their
43 | P a g e
DP
M&E Processes/Reports/Practices
vice presidential units. The team leader (TL) serves as
the Bank's principal point of contact for the borrower.
Preparation for supervision begins during project
preparation, when the TT and borrower staff agree on
arrangements for project implementation, including a)
monitoring and evaluating of progress and achievement
of development outcomes, with a common set of
criteria to be used for project monitoring and
evaluation; (b) the use of results frameworks,
performance indicators, and associated outcome targets
(the latter reflected in, or derived from project
development objectives and performance indicators);
and (c) the reports -- such as audit reports, Interim
Financial Reporting (IFR) and other reports required for
effective project monitoring, evaluation, and disclosure - to be provided by the borrower, along with their
outlines, content, and format.
The TT ascertains that the borrower has included the
agreed arrangements in the Project Implementation
Plan (PIP), and summarizes the arrangements for
implementation and supervision specified in the PAD.
During project implementation, the TT, among others,
regularly (a) monitors progress in all substantive aspects
of the project against the targets, development
objectives, and performance monitoring indicators set
out in the PAD and PIP; (b) monitors procurement
implementation and disbursement, recommending ways
to ensure that procurement activities and loan
disbursements proceed smoothly in line with the
planned schedule; and (c) assesses risks to successful
implementation, operation, and sustainability of the
project.
As appropriate, the TT visits the project sites and
facilities to review progress, provide advice, meet with
project beneficiaries and stakeholders, perform sample
reviews
of
the
documentation
supporting
disbursement, review IFR, carry out ex post reviews of
procurement, and obtain additional information.
After the completion of a project, the Banks
Independent Evaluation Group (IEG) measures the
outcome against original objectives, and assesses
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DP
JICA
M&E Processes/Reports/Practices
whether or not the projects results can be maintained
over the long-term. A number of projects are further
scrutinized in detailed impact evaluation reports.
The JICA undertakes two types of evaluation classified
into levels: project level evaluation and program level
evaluation. Project level evaluation covers individual
projects and is classified into four types and conducted
at different stages during the project cycle: ex-ante
evaluation, mid-term evaluation, terminal evaluation,
and ex-post evaluation as explained below:
Ex-ante evaluation is conducted when a project is
requested by a recipient country. It first involves a study
of the project to determine its necessity as well as its
conformity with JICA's Country Program, and have been
performed for all ODA loan projects that have been
appraised since FY 2001, and the results have been
released as Ex-Ante Evaluation Reports immediately
after the conclusion of loan agreement.
Mid-term evaluation/review is carried out 5 years after
the conclusion of a loan agreement in principle as a
means of verifying whether or not project plans are
maintaining their relevancy, whether or not the
effectiveness of the project will manifest in line with
initial projections once the project is complete, and so
forth.
Terminal evaluation is performed upon the completion
of a project, focusing on its efficiency, effectiveness and
sustainability. Based on the results of the evaluation,
JICA determines whether it is appropriate to complete
the project or necessary to extend follow-up
cooperation.
Ex-post
evaluation
assesses
the
relevance,
effectiveness, efficiency, impacts and sustainability of
each project on the basis of international evaluation
criteria. It is carried out for all projects two years after
completion in principle so as to ensure full
accountability and to enhance effectiveness and
efficiency of ODA operations.
Program level evaluation is a comprehensive evaluation
of such group of projects which have the same overall
45 | P a g e
DP
KfW
M&E Processes/Reports/Practices
goal and development issues and is classified into
country-program evaluation and thematic evaluation.
Country-program evaluation examines the overall
effects of JICAs cooperation on the development of a
targeted country across projects while thematic
evaluation looks at a number of projects by focusing on
specific sectors, issues or cooperation schemes.
The KfW, a development bank that works for the federal
government, has responsibility towards its partner
countries, the German Government and German
taxpayers. This is why KfW depends on reliable
information on whether the Financial Cooperation
projects it funds on behalf of the federal government
are successful or not. Every single project that is
completed is subjected to an intensive, independent expost evaluation, also called a final evaluation. Three to
five years after the start of operation, all projects are
subjected to an ex-post evaluation. Final evaluation
serves a dual purpose: a) the impacts of each individual
project are recorded, analyzed and compared with the
costs incurred. KfW reports these results to the German
federal government and the general public. This
provides accountability for its work as a development
bank; and b) additionally, KfW wants to learn from past
projects and apply these lessons to future projects. A
uniform, basic methodological approach is applied in
every final evaluation: the actual project impacts are
systematically compared with the target impacts
expected at the time of the project appraisal. In order to
evaluate a project's developmental efficacy, the project
is analyzed against three main criteria: its effectiveness,
relevance/significance, and efficiency.
46 | P a g e
The NEDA Board Resolution No. 3 s. 1999 mandates the ICC and
implementing agencies to report on project outcomes and objectives to
ensure accomplishment of project objectives. Further, NEDA Board
Resolution No. 14 s. 1999 incorporates RME in the ICC Approval Process.
Project proponents shall submit a project framework (PF) containing the
project's objectives at goal, purpose and output levels, their
corresponding performance indicators and targets with relevant baseline
values, the means of verification and key assumptions/risks that may lead
to project failure. Likewise, the implementing agency (IA) shall submit to
NEDA during project implementation, a RME report consistent with the
approved PF. Adjustments from the ICC-approved PF shall reflect changes
in actual/current project conditions, including those in the broader
environment within which the project is situated. Any such deviation shall
be explained clearly.
The PF with its required information is shown in Figure 2 below. In
addition, an M&E Plan shall be prepared by IAs to describe in detail how
data required by the set of indicators will be obtained and by whom, the
specific sources of data (whether primary or secondary), the frequency of
data collection, and how data will be processed, reported, and used in
managing project implementation.
Figure 2. Project Framework
Project Title: ___________
Indicators/Targets
Goal
Purpose
Outputs
Means of
Verification
Key Assumptions/
Risks
47 | P a g e
Framework
Design and Monitoring Framework (DMF)
Logical Framework (LogFrame)
Project Design Matrix (PDM)
Zielorienterte Projektplanung (ZOPP)
The Design and Monitoring Framework (DMF) for ADB funded projects or
Logical Framework for IBRD/WB funded projects is a results-based tool
for analyzing, conceptualizing, designing, implementing, monitoring and
evaluating FAPs. It structures the project planning process and helps
communicate essential information about the project to stakeholders in
an efficient, easy-to-read format. It derives its name from the logical
linkages set out by the planner(s) to connect a projects means with its
ends. The logframe is only one monitoring and evaluation tool and its use
does not pre-empt the use of other evaluation tools.
In ADB, the preparation of the DMF as shown in Figure 3, previously
called project or TA framework, has been mandatory since 1996 and is
included in TA papers and the Report and Recommendation of the
President. The logical framework has been renamed DMF to reflect its
application in all stages of the project cycle. It is the core link between
project design, implementation and evaluation, and the basis for ADBs
project performance management system (PPMS). It also makes
developmental interventions focus on achievable and measurable results
through performance targets and indicators, and draws attention to the
risks that projects may face during implementation. The terminology
Guidelines on the Audit of Foreign-Assisted Projects
48 | P a g e
used in the ADBs DMF is adopted from the OECD as part of the
harmonization effort. It replaces goal with impact, and purpose with
outcome.
At the time of commencing work on the M&E Framework, a key
document that describes the Project, its objectives, outputs, activities,
risks and schedules is the PAD or its equivalent developed by the DPs with
GOP support or at times with consultants.
Figure 3. Design and Monitoring Framework
Performance
Indicators/
Targets
Design Summary
Data Sources/
Reporting
Mechanisms
Assumptions/
Risks
Impact
Outcome
Outputs
Inputs
A look into the logframe for some projects revealed that different formats
were used and elements included vary. NEDAs Project Logframe includes
the same elements as ADBs DMF as shown in Figure 3, except for the
activities with milestones and inputs.
For the Framework to be fully useful in the monitoring and evaluation of
projects and the review of the project design as well, it should ideally
have the following elements and should conform with the manner each
element should be stated/ presented:
a. Impact - also termed goal or longer-term objective, refers to the
sectoral, sub-sectoral or, in some cases, national objectives. The
impact is wide in scope, will accrue at a date - medium to long-term following project completion, and is influenced by many factors other
than the project itself. When determining the impact statement,
ensure that there is a direct means-end relationship between the
outcome and the impact.
b. Outcome - describes what the project intends to accomplish by the
end of project implementation and by doing so makes it clear what
development problem the project will address. The decision on and
phrasing of the outcome statement determines the nature and scope
of the outputs that will be necessary to achieve the outcome. Hence,
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the starting point for preparing the M&E Framework must be the
outcome statement. Specifically, the outcome should be:
(i)
(ii)
(ii)
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(v)
51 | P a g e
List only the activities that represent the main steps in the
transformation process, turning inputs into outputs. They should
not be a restatement of an output as an action;
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Frequency/Schedule
Quarterly for loans;
Semestral for grants
Annually
Annually
Within 3 months upon
project completion
Report
Form
BAR No.
1
Statement
of
Appropriations,
Allotments,
Obligations,
Disbursements
and
Balances
(SAAODB)
Summary
of
Appropriations,
Allotments,
Obligations,
Disbursements and Balances by
Object of Expenditures (SAAODBOE)
List of Allotments and SubAllotments (LASA)
FAR No.
1
FAR No.
3
Deadline of
Submission
Not later than 30
days following the
end
of
each
quarter
Within 30 days
after the end of
each quarter
FAR No.
1-A
Within 30 days
after the end of
each quarter
FAR No.
1-B
Within 30 days
after the end of
each quarter
On or before the
30th day following
the end of the
53 | P a g e
Report
Form
FAR No.
4
Deadline of
Submission
year
On or before the
30th day of the
following month
covered by the
report
In addition to the above reports, FAPs are required to submit once during
the projects implementation (after the loan/grant documents have been
signed) Project Profile Form as required under DBM, COA and DOF Joint
Circular No. 2-97 dated March 1997.
DPs
Requirements by the DPs on project M&E are usually provided in the
project documents or as a schedule to the LA. The office responsible for
M&E, M&E method to be used, reports to be submitted, report coverage
and the reporting frequency or deadline are identified. However, the
requirements vary among the DPs or others may have none. It is thus
necessary for the auditor especially at the lead/head office of
implementing agencies to review the project documents and loan
agreements to check compliance by the implementing agencies with the
requirements. The auditor should also determine whether the PF was
properly formulated and all the necessary elements are present to be
able to assess if the required data are available to facilitate monitoring
and evaluation and result/impact assessment of the project. Due to the
absence of or limited access of auditors in the regional and LGU levels to
the project documents, the loan agreements and M&E framework
should at the least be available to the said auditors for appreciation of the
relevance of activities undertaken at their levels to the overall project
impact.
The identified risks and the corresponding sample APs are presented in
Annex M. However, the auditors are not precluded to include other risks
identified and prepare the corresponding APs to address such risks.
e.
Project Sustainability
Sustainability is the realization of the desired effects of the
projects/programs in its future operation.
Evaluation on sustainability looks into whether the effects are being
realized as planned and whether the effects are likely to continue in the
future.
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compliance with the financial covenants of the LA as well as the use of the
procedures for IMA/SOE.
The IBRD usually requires the audit of a projects financial statements covering a
period of one fiscal year.
In its LAs, JICA requires a certified copy of the auditors report in such scope and
detail as it may request. The audit report is to contain a separate opinion on
whether the SOEs submitted during a given fiscal year, together with the
procedures and internal controls can be relied upon to support the related
disbursements.
Implementation arrangements differ according to, among others, the nature and
scope of projects. There are projects which are implemented by only one agency
or various agencies, at different levels of the organization while others involve
LGUs. Considering that the IAs/EAs have their respective auditors, the following
shall be observed in the preparation and submission of the required reports:
FAPs with LGUs as IA/EA
1. The Supervising Auditors/Audit Team Leaders (SAs/ATLs) of the LGUs
(provincies/cities) shall prepare and submit to the ATL, Municipal Development
Fund Office (MDFO) the audited SSAF and/or SOE, as the case may be, together
with the Independent Auditors Report (IAR), four and seven months after the
end of each fiscal year for Audit Reports (ARs) due to DPs not later than six and
nine months after the end of such period, respectively.
2. The ATL, MDFO shall consolidate the IARs submitted by the SAs/ATLs, LGUs and
prepare an AR with a Consolidated Independent Auditors Report (CIAR).
3. The SA, DOF shall then transmit the required AR together with the CIAR to the
MDFO.
4. In case the project has a lead IA/EA, the SA, DOF shall submit the AR together
with the CIAR to that IA/EA.
FAPs implemented by one agency/corporation only
1. The SA/ATL of the agency/corporation shall prepare and submit the AR on the
audit of the FS, SA/IMA, SSAF and/or SOE, as the case maybe, together with the
IAR, not later than the period stated in the LA for the submission of the AR.
2. The SA/ATL shall transmit the required AR and the corresponding IAR to
Management.
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VI. ANNEXES
Annex A
Annex B
ICC Requirements
Annex C
Illustrative Entries
Annex D-1
(NG) Loans
Annex D-2
Annex D-3
Annex D-4
Annex E
Annex F
Annex G
Annex H-1
Annex H-2
Annex H-3
Annex H-4
Annex I
Annex J
Annex K
Annex L
Annex M
Annex N
Annex O
Annex P
ISSAI 1800
58 | P a g e
Annex A
ADB
IBRD
JICA
KfW
N/A
0.15 % per
annum of the
undrawn
amount
0.25 %
N/A
N/A
0.10 % per
annum of the
undrawn
amount
3 Interest Rate
1.4 % p.a.
and 0.01 %
for
consultancy
services
component
4 Maturity
25 years
(inclusive of 5
years grace
period) or
15 years
(inclusive of 3
years grace
period)
Semi-annual
6-month USD
LIBOR + fixed
spread
(1.15%) or
variable
spread
(0.48%)
25 years
(inclusive of
10 years
grace period)
N/A
0.25% per
annum of
the
undrawn
amount
0.75% per
annum
25 years
(inclusive of 7
years grace
period)
40 years
(inclusive of
10 years
grace
period)
Semi-annual
Semi-annual
Semi-annual
5 Payment Terms
Source: DOF
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Annex B
Historical Background
Sectoral Program Context Recommendation
Regional and Spatial Context Recommendation
Project Objectives
Project Description
Cost and Financing
Institutional Arrangement
Implementation Schedule
Technical/Market/Environmental Analysis
Financial Analysis
Economic Evaluation
Social Analysis
Issues
Recommendations
ICC TB Deliberation
ICC CC Deliberation
No. of Days/Weeks
4-6 weeks
At least 5 working days before ICC meeting
At least 1 day before the ICC-TB meeting
7-10 days after ICC deliberation
nd
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Annex C
Illustrative Entries
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Annex D - 1
Audit Objectives
Debt service payments to development partners (DPs) for NG loans may not
be correctly recorded in the books of the NG.
Debt service payments may not be within the Debt Service Program for the
year under audit and not covered by allotment.
No.
Audit Procedures
W.P.
Ref.
Audit Period
Target
Actual
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Persons
Responsible
No.
Audit Procedures
signed by the responsible personnel
Completeness/adequacy and relevance of
supporting documents
Transactions are properly/accurately
journalized
In case of adjustment, evaluate adequacy
of supporting documents and analyze
prior entries made to ensure necessity and
accuracy/ correctness of adjustment.
W.P.
Ref.
Audit Period
Target
Actual
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Persons
Responsible
No.
Audit Procedures
W.P.
Ref.
Audit Period
Target
Actual
Prepared by:
Reviewed by:
______________________
Printed Name & Position
Date:
______________________
Printed Name & Position
Date:
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Persons
Responsible
Annex D - 2
Audit Objectives
No.
1
Audit Procedures
1.1
1.2
1.3
W.P.
Ref.
Audit Period
Target
Actual
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Persons
Responsible
No.
Audit Procedures
1.4
1.5
1.6
1.7
2
2.1
2.2
2.3
3
3.1
3.2
W.P.
Ref.
Audit Period
Target
Actual
78 | P a g e
Persons
Responsible
No.
Audit Procedures
W.P.
Ref.
correctness of adjustment.
3.3 Check payment due date and principal
repayment per BS with amortization
schedule (AS)/revised AS.
3.4 Verify if the Debt Monitoring and
Analysis Division (DMAD)s payment
instructions to the Fund Transfer
Division (FTD) reconcile with the BS.
3.5 Check if principal repayment, and
interest, commitment fees and other
charges per bank debit advice are as
billed in the BS and correctly taken up
under Loans Payable-Foreign and Other
Payables, respectively.
3.6 For ADB and IBRD loans billed in a
currency other than the currency in
which the loan is payable per AS, check
whether Loans Payable-Foreign is
debited for Philippine Peso equivalent
of the principal repayment per AS and
any difference in the Philippine Peso
equivalent between the AS and actual
principal repayment is taken up under
Gain/Loss on Foreign Exchange.
3.7 Compare actual debt service with
payment received from GFIs/GOCCs
and check if any shortfall in payment is
taken up under Due from GOCCs.
3.8 Trace each accounts month-end/yearend SL balances to the respective
accounts Schedule.
3.9 Compare and trace each accounts
month-end/year-end balance per
Schedule to GL and TB
3.10 Verify and evaluate reasons for errors/
discrepancies, if any.
4. Communicate deficiency/ies noted thru the
issuance of an AOM.
Audit Period
Target
Actual
Prepared by:
Reviewed by:
______________________
Printed Name & Position
______________________
Printed Name & Position
Date:
Date:
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Persons
Responsible
Annex D - 3
1
2
3
Audit Objectives
No.
Audit Procedures
W.P.
Ref.
Audit Period
Target
Actual
Persons
Responsible
Reviewed by:
______________________
Printed Name & Position
Date:
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Annex D 4
Audit Objectives
To determine the actual debt service for the year and whether the amount
and frequency of debt servicing are in accordance with the loan
amortization schedule
2
No.
Audit Procedures
W.P.
Ref.
Audit Period
Target
Actual
Prepared by:
Reviewed by:
______________________
Printed Name & Position
______________________
Printed Name & Position
Date:
Date:
Persons
Responsible
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Annex E
SPECIAL ACCOUNT
Statement of Sources and Application of Funds
As of December 31, 201_
Particulars
USD
0.00
Php
0.00
0.00
0.00
0.00
0.00
0.00
0.00
0.00
0.00
0.00
0.00
0.00
0.00
0.00
0.00
0.00
0.00
0.00
0.00
0.00
0.00
Particulars
0.00
0.00
Certified Correct:
Approved by:
______________________
Printed Name & Position
______________________
Printed Name & Position
Date:
Date:
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Annex F
:
:
:
:
Loan No.
Currency
:
:
___________________________
___________________________
___________________________
________________________________________________
________________________________________________
___________________________
___________________________
Amount
USD
0.00
0.00
USD
Certified Correct:
Approved by:
______________________
Printed Name & Position
______________________
Printed Name & Position
Date:
Date:
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0.00
USD
Php
0.00
0.00
0.00
0.00
0.00
0.00
0.00
0.00
Certified Correct:
Approved by:
______________________
Printed Name & Position
______________________
Printed Name & Position
Date:
Date:
Note:
Format may vary among GFIs.
84 | P a g e
Annex G
Audit Objectives
To determine whether funds are being used for the purpose intended.
To determine whether funds received from DPs are properly accounted for
and recorded in the books of accounts.
No.
Audit Procedures
W.P.
Ref.
Audit Period
Target
Actual
Persons
Responsible
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No.
Audit Procedures
W.P.
Ref.
Audit Period
Target
Actual
Prepared by:
Reviewed by:
______________________
Printed Name & Position
______________________
Printed Name & Position
Date:
Date:
Persons
Responsible
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Annex H - 1
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Annex H - 2
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Annex H - 3
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Annex H 4
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Annex I
AUDIT PROGRAM
(Name of the Agency)
For the Year ____
Audit Area
Risk Statement
Audit Objective
No.
Audit Procedures
W.P.
Ref.
Audit Period
Target
Actual
Persons
Responsible
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No.
Audit Procedures
W.P.
Ref.
Audit Period
Target
Actual
Persons
Responsible
Reviewed by:
______________________
Printed Name & Position
______________________
Printed Name & Position
Date:
Date:
92 | P a g e
Annex J
Risk Statement
Audit Objective
The GOP Counterpart Fund for financing of project start-up activities may not
have been requested by the EA/IA and not released by the DBM within a
reasonable period of time to ensure that those activities are completed prior to
the scheduled loan effectivity.
To determine whether the EA/IA has requested the DBM for funds necessary
for project start-up activities and whether the same were accordingly released
by the DBM in time to complete the activities prior to the scheduled loan
effectivity
Audit Procedures
WP
Ref.
Estimated Man-hour
Target
Actual
Responsible
Person
93 | P a g e
Date
Accomplis
hed
Audit Procedures
WP
Ref.
Estimated Man-hour
Target
Actual
Responsible
Person
1.5
1.6
1.7
1.8
Date
Accomplis
hed
AUDIT PROGRAM
Audit Area
Risk Statements
The PMO structure and composition created by the EA/IA may not be in
accordance with the requirements of the LA.
The personnel constituting the PMO may not be selected in accordance with
the approved/required qualification standards and criteria.
The PMO resources may not be adequate and available when needed to
implement the FAPs.
To determine whether the PMO resources are adequate and available when
needed to implement the FAPs
Audit Objectives
No.
1
Audit Procedures
W.P.
Ref.
Audit Period
Target
Actual
94 | P a g e
Responsible
Person
No.
Audit Procedures
W.P.
Ref.
Audit Period
Target
Actual
95 | P a g e
Responsible
Person
No.
Audit Procedures
W.P.
Ref.
Audit Period
Target
Actual
Responsible
Person
Audit Area
Audit Risk
1.
Audit Objective
1.
No.
Audit Procedures
W.P.
Ref.
Audit Period
Target
Actual
Responsible
Person
Audit Area
Audit Risk
1.
ROW/Site/Location for the project may not have been acquired prior to
loan effectivity/project implementation.
Audit Objective
1.
No.
Audit Procedures
W.P.
Ref.
Audit Period
Target
Actual
96 | P a g e
Responsible
Person
No.
Audit Procedures
1.
W.P.
Ref.
Audit Area
5 Procurement of Consultant/s
Audit Risk
Audit Objective
No.
Audit Period
Target
Actual
Responsible
Person
Audit Procedures
W.P.
Ref.
Audit Period
Target
Actual
97 | P a g e
Responsible
Person
No.
Audit Procedures
W.P.
Ref.
Audit Period
Target
Actual
Prepared by:
Reviewed by:
______________________
Printed Name & Position
______________________
Printed Name & Position
Date:
Date:
98 | P a g e
Responsible
Person
Annex K
Audit Area
Risk Statements
Audit Objectives
WP
Ref.
Audit Period
Target
Actual
99 | P a g e
Responsible
Person
Audit Procedures
(IBRD);
b. Project Administration
Memorandum (PAM) for ADB;
and
c. Minutes of Discussion (MOD) for
JICA (formerly JBIC)
Work and Financial Plan (WFP)
Project Procurement Management
Plan (PPMP)
Procurement contracts
Annual project accomplishment
report
1.2 Check the following if in accordance with
the ProDoc, PPMP and the No Objection
Letter (NOL):
a. mode of procurement
b. nature and type of goods/services
and civil works procured
c. quantity of goods procured
d. cost of goods/services and civil
works procured
1.3 Verify if the procurement process is in
accordance with the LA, DPs
procurement guidelines and/or existing
rules and regulations.
1.4 Take note of discrepancy/ies, if any.
2.1 Compare the actual deliveries indicated
in Delivery Receipts against the POs, to
check the following:
a. quantity of deliveries
b. compliance with specifications
c. delivery date
d. amount of delivery
2.2 Take note of discrepancy/ies, if any
3.1 Verify from accounting records whether
goods and equipment procured are
properly taken up in the books of
accounts.
3.2 Take note of discrepancy/ies, if any
4.1 Check whether there were equipment
subsequently transferred to co-EA/IA.
Verify whether these were properly
documented and recorded in the books
of accounts of the EA/IA and co-EA/IA.
4.2 Take note of discrepancy/ies, if any
5.1 Verify whether the consultancy contract
stipulates that after project completion,
the ownership of procured equipment,
including vehicles, will be transferred to
WP
Ref.
Audit Period
Target
Actual
100 | P a g e
Responsible
Person
Audit Procedures
WP
Ref.
the EA/IA.
5.2 If there is a provision on the turn-over
of goods procured under in the
consulting services contract, verify if the
goods have been turned over to the
intended beneficiaries/end-users.
5.3 Check if the above-mentioned
equipment are existing and properly
recorded in the books of accounts of the
recipient.
Audit Period
Target
Actual
Reviewed by:
______________________
Printed Name & Position
______________________
Printed Name & Position
Date:
Date:
101 | P a g e
Responsible
Person
Annex L
Audit Objectives 1
No.
Audit Procedures
W.P.
Ref.
Audit Period
Target
Actual
Persons
Responsible
102 | P a g e
No.
Audit Procedures
W.P.
Ref.
Audit Period
Target
Actual
Prepared by:
Reviewed by:
______________________
Printed Name & Position
______________________
Printed Name & Position
Date:
Date:
Persons
Responsible
103 | P a g e
Annex M
Audit Objectives
Adequate indicators and baseline data may not be used to monitor and
evaluate the progress and results of the project.
The PMO M&E Units may not have sufficient and competent personnel to
undertake M&E activities.
M&E data/results may not be used for project implementation and policy
formulation/enforcement.
No.
Audit Procedures
W.P.
Ref.
Audit Period
Target
Actual
Responsible
104 | P a g e
No.
Audit Procedures
1.1
1.2
1.3
1.4
1.5
1.6
2
2.4
W.P.
Ref.
Audit Period
Target
Actual
Responsible
Impact
there is a direct means-end
relationship between the outcome
and the impact
Outcome
expressed in change language
instead of action language to
reflect accomplishments
phrased as an improvement over a
baseline situation, which is
105 | P a g e
No.
Audit Procedures
W.P.
Ref.
Audit Period
Target
Actual
Responsible
Output
must be necessary to achieve the
outcome
can be delivered by the project
and is feasible with the resources
available
does not use the infinitive tense
(e.g., To assess, To prepare) at the
beginning of output statement as
this implies activity
Performance targets/indicators
SMART:
specific relate to the results
the project seeks to achieve
measurable stated in
quantifiable terms
achievable realistic in what is
to be achieved
relevant useful for
management information
purposes
time-bound stated with
target dates
CREAM:
clear precise and
unambiguous
relevant appropriate and
timely
economic available at
reasonable cost
adequate sufficient to assess
performance
monitorable can be
independently verified
106 | P a g e
No.
Audit Procedures
W.P.
Ref.
Audit Period
Target
Actual
Responsible
Assumptions
positive statements of conditions,
events, or actions that are
necessary to achieve the results at
each level of the M&E Framework
Data sources
show where information on the
status of each indicator can be
obtained
who provides the information
how the data is collected
Reporting mechanisms
state where the information is
documented
2.5 Analyze/evaluate the effects of
elements which are not stated/
presented as required to the M&E of
the project.
2.6 Analyze if each of the element has a
cause and effect relationship.
2.7 Verify the causes/reasons for the
absence of the necessary elements and
linkages of the elements to one
another as required, if any.
3.1 Check if there are performance
indicators and baseline data and target
values for the projects implementation
period.
3.2 Using the PF, evaluate if the
performance indicators, baseline data
and target values for the projects
implementation period are adequate to
assess the progress of the project
toward the achievement of its expected
impact.
3.2 Evaluate if the baseline data and target
values could be used to determine if
there are significant changes and
improvements to the target
beneficiaries.
3.4 Verify if periodic surveys are conducted
107 | P a g e
No.
Audit Procedures
to determine/update progress from
baseline data.
3.5 Verify if the project has a MIS where the
baseline and target data for the
projects implementation are collected
and how these are used to monitor and
evaluate the projects progress.
3.6 Verify and evaluate reason/s for
absence of /deficiencies in the
performance indicators, baseline and
target data, and MIS, if any.
4.1 Review PMO/M&E Units organizational
structure and functional chart
4.2 Check if the PMO/M&E Units
organizational structure is compliant
with the agreed structure per Project
Appraisal Document or its equivalent or
as approved by the Department of
Budget and Management (DBM).
4.3 Review the Curriculum Vitae of PMO/
M&E Units personnel and evaluate if
they have the necessary experience and
training to undertake M&E.
4.4 Verify if only organic personnel are sent
on training.
4.5 Verify and evaluate reason/s for
deviations/deficiencies, if any.
5.1 Review M&E requirements of DPs in the
PAD or its equivalent and in the LA.
5.2 Verify whether all the M&E activities
were undertaken and within the
required period.
5.3 Verify if the related reports for the
activities undertaken are prepared and
submitted and within the period
required.
5.4 Verify/evaluate reason/s for noncompliance, if any.
6.1 Review M&E reports and verify actions
taken on project implementation
issues.
6.2 Check whether implementation issues
requiring policy issuances have been
addressed and necessary policies are
formulated.
W.P.
Ref.
Audit Period
Target
Actual
Responsible
108 | P a g e
No.
Audit Procedures
W.P.
Ref.
Audit Period
Target
Actual
Prepared by:
Reviewed by:
______________________
Printed Name & Position
______________________
Printed Name & Position
Date:
Date:
Responsible
109 | P a g e
Annex N
Project Sustainability
1 The desired results (outputs, outcome and impact) of the project may not
be sustainable after project completion.
Audit Objective
No.
Audit Procedures
W.P.
Ref.
Audit Period
Target
Actual
Persons
Responsible
reporting requirements
3 Using the project reports, validate the
implementation of the Project Sustainability
Plan, through ocular inspections, focus group
discussions, interviews, etc. Note
deficiency/ies, if any.
4 Communicate the deficiency/ies noted
through an Audit Observation Memorandum
(AOM).
Prepared by:
Reviewed by:
______________________
Printed Name & Position
Date:
Guidelines on the Audit of Foreign-Assisted Projects
______________________
Printed Name & Position
Date:
110 | P a g e
Annex O
111 | P a g e
Opinion
In our opinion, the financial statements present fairly, in all material respects, the financial
position of (Name of Agency) as at December 31, 20XX, and its financial performance and its
cash flows for the year then ended in accordance with International Financial Reporting
Standards. 1, 2
Report on Other Legal and Regulatory Requirements 3
[Form and content of this section of the auditors report will vary depending on the nature of the
auditors other reporting responsibilities]
[Auditors signature]
[Date of the auditors report]
[Auditors address]
B. Qualified Opinion
INDEPENDENT AUDITORS REPORT
[Appropriate Addressee]
Report on the Consolidated Financial Statements 4
We have audited the accompanying consolidated financial statements of (Name of Agency) and
its (subsidiaries/regional offices/attached agencies), which comprise the consolidated statement
of financial position as at December 31, 20XX, and the consolidated statement of comprehensive
income, statement of changes in equity and statement of cash flows for the year then ended,
and a summary of significant accounting policies and other explanatory information.
Managements Responsibility for the Consolidated Financial Statements
Management is responsible for the preparation and fair presentation of these consolidated
financial statements in accordance with International Financial Reporting Standards, 5 and for
such internal control as management determines is necessary to enable the preparation of
consolidated financial statements that are free from material misstatement, whether due to
fraud or error.
Auditors Responsibility
Our responsibility is to express an opinion on these consolidated financial statements based on
our audit. We conducted our audit in accordance with International Standards on Auditing.
1
If the auditee is not adopting IFRS, replace IFRS with State accounting principles
Deleted (or give a true and fair view of) and (of) in the Illustration of ISA 700
3
The sub-title Report on the Financial Statements is unnecessary in circumstances when the second sub-title Report on Other
Legal and Regulatory Requirements is not applicable (see A34 to A36 of ISA 700).
4
The sub-title Report on the Financial Statements is unnecessary in circumstances when the second sub-title Report on Other
Legal and Regulatory Requirements is not applicable (see A34 to A36 of ISA 700).
5
If the auditee is not adopting IFRS, replace International Financial Reporting Standards with State accounting principles.
2
112 | P a g e
Those standards require that we comply with ethical requirements and plan and perform the
audit to obtain reasonable assurance about whether the consolidated financial statements are
free from material misstatement.
An audit involves performing procedures to obtain audit evidence about the amounts and
disclosures in the consolidated financial statements. The procedures selected depend on the
auditors judgment, including the assessment of the risks of material misstatement of the
consolidated financial statements, whether due to fraud or error. In making those risk
assessments, the auditor considers internal control relevant to the entitys preparation and fair
presentation of the consolidated financial statements in order to design audit procedures that
are appropriate in the circumstances, but not for the purpose of expressing an opinion on the
effectiveness of the entitys internal control. An audit also includes evaluating the
appropriateness of accounting policies used and the reasonableness of accounting estimates
made by management, as well as evaluating the overall presentation of the consolidated
financial statements.
We believe that the audit evidence we have obtained is sufficient and appropriate to provide a
basis for our audit opinion.
Bases for Qualified Opinion
We rendered a qualified opinion on the financial statements due to the following:
a. xxx
b. xxx
Opinion
In our opinion, except for the effects of the matter described in the Bases for Qualified Opinion
paragraph, the financial statements present fairly, in all material respects, the financial position
of (Name of Agency) as at December 31, 20XX, and its financial performance and its cash flows
for the year then ended in accordance with International Financial Reporting Standards. 6, 7
Report on Other Legal and Regulatory Requirements 8
[Form and content of this section of the auditors report will vary depending on the nature of the
auditors other reporting responsibilities]
[Auditors signature]
[Date of the auditors report]
[Auditors address]
Deleted (or give a true and fair view of) and (of) in the Illustration of ISA 705
If auditee is not adopting IFRS, replace International Financial Reporting Standards with State accounting principles.
8
The sub-title Report on the Financial Statements is unnecessary in circumstances when the second sub-title Report on Other
Legal and Regulatory Requirements is not applicable (see A34 to A36 of ISA 700).
7
113 | P a g e
C. Adverse Opinion
INDEPENDENT AUDITORS REPORT
[Appropriate Addressee]
Report on the Consolidated Financial Statements 9
We have audited the accompanying consolidated financial statements of (Name of Agency) and
its (subsidiaries/regional offices/attached agencies), which comprise the consolidated statement
of financial position as at December 31, 20XX, and the consolidated statement of comprehensive
income, statement of changes in equity and statement of cash flows for the year then ended,
and a summary of significant accounting policies and other explanatory information.
Managements Responsibility for the Consolidated Financial Statements
Management is responsible for the preparation and fair presentation of these consolidated
financial statements in accordance with International Financial Reporting Standards, 10 and for
such internal control as management determines is necessary to enable the preparation of
consolidated financial statements that are free from material misstatement, whether due to
fraud or error.
Auditors Responsibility
Our responsibility is to express an opinion on these consolidated financial statements based on
our audit. We conducted our audit in accordance with International Standards on Auditing.
Those standards require that we comply with ethical requirements and plan and perform the
audit to obtain reasonable assurance about whether the consolidated financial statements are
free from material misstatement.
An audit involves performing procedures to obtain audit evidence about the amounts and
disclosures in the consolidated financial statements. The procedures selected depend on the
auditors judgment, including the assessment of the risks of material misstatement of the
consolidated financial statements, whether due to fraud or error. In making those risk
assessments, the auditor considers internal control relevant to the entitys preparation and fair
presentation of the consolidated financial statements in order to design audit procedures that
are appropriate in the circumstances, but not for the purpose of expressing an opinion on the
effectiveness of the entitys internal control. An audit also includes evaluating the
appropriateness of accounting policies used and the reasonableness of accounting estimates
made by management, as well as evaluating the overall presentation of the consolidated
financial statements.
We believe that the audit evidence we have obtained is sufficient and appropriate to provide a
basis for our audit opinion.
Bases for Adverse Opinion
We rendered an adverse opinion on the financial statements due to the following:
9
10
The sub-title Report on the Financial Statements is unnecessary in circumstances when the second sub-title Report on Other
Legal and Regulatory Requirements is not applicable (see A34 to A36 of ISA 700).
If the auditee is not adopting IFRS, replace International Financial Reporting Standards with State accounting principles.
114 | P a g e
a. xxx
b. xxx
Opinion
In our opinion, because of the significance of the matters discussed in the Basis of Adverse
Opinion paragraph, the financial statements do not present fairly the financial position of the
(name of project) as the financial statements do not present fairly the financial position of
(Name of Project) as at December 31, 20XX, and its financial performance and its cash flows for
the year then ended in accordance with International Financial Reporting Standards. 11, 12
Report on Other Legal and Regulatory Requirements 13
[Form and content of this section of the auditors report will vary depending on the nature of the
auditors other reporting responsibilities]
[Auditors signature]
[Date of the auditors report]
[Auditors address]
D. Disclaimer of Opinion
INDEPENDENT AUDITORS REPORT
[Appropriate Addressee]
Report on the Consolidated Financial Statements 14
We have audited the accompanying consolidated financial statements of (Name of Agency) and
its (subsidiaries/regional offices/attached agencies), which comprise the consolidated statement
of financial position as at December 31, 20XX, and the consolidated statement of comprehensive
income, statement of changes in equity and statement of cash flows for the year then ended,
and a summary of significant accounting policies and other explanatory information.
Managements Responsibility for the Consolidated Financial Statements
Management is responsible for the preparation and fair presentation of these consolidated
financial statements in accordance with International Financial Reporting Standards, 15 and for
such internal control as management determines is necessary to enable the preparation of
consolidated financial statements that are free from material misstatement, whether due to
fraud or error.
11
Deleted (or give a true and fair view of) and (of) in the Illustration of ISA 705
If auditee is not adopting IFRS, replace International Financial Reporting Standards with State accounting principles.
13
The sub-title Report on the Financial Statements is unnecessary in circumstances when the second sub-title Report on Other
Legal and Regulatory Requirements is not applicable (see A34 to A36 of ISA 700).
12
14
15
The sub-title Report on the Financial Statements is unnecessary in circumstances when the second sub-title Report on Other
Legal and Regulatory Requirements is not applicable (see A34 to A36 of ISA 700).
If the auditee is not adopting IFRS, replace International Financial Reporting Standards with State accounting principles.
115 | P a g e
Auditors Responsibility
Our responsibility is to express an opinion on these consolidated financial statements based on
our audit. We conducted our audit in accordance with International Standards on Auditing.
Those standards require that we comply with ethical requirements and plan and perform the
audit to obtain reasonable assurance about whether the consolidated financial statements are
free from material misstatement.
An audit involves performing procedures to obtain audit evidence about the amounts and
disclosures in the consolidated financial statements. The procedures selected depend on the
auditors judgment, including the assessment of the risks of material misstatement of the
consolidated financial statements, whether due to fraud or error. In making those risk
assessments, the auditor considers internal control relevant to the entitys preparation and fair
presentation of the consolidated financial statements in order to design audit procedures that
are appropriate in the circumstances, but not for the purpose of expressing an opinion on the
effectiveness of the entitys internal control. An audit also includes evaluating the
appropriateness of accounting policies used and the reasonableness of accounting estimates
made by management, as well as evaluating the overall presentation of the consolidated
financial statements.
We believe that the audit evidence we have obtained is sufficient and appropriate to provide a
basis for our audit opinion.
Bases for Disclaimer of Opinion
We do not render an opinion on the financial statements due to the following:
a. xxx
b. xxx
Opinion
Because of the significance of the matters discussed in the Bases for Disclaimer of Opinion
paragraph, we have not been able to obtain sufficient appropriate audit evidence to provide a
basis for an audit opinion. Accordingly, we do not express an opinion on the financial
statements.
Report on Other Legal and Regulatory Requirements 16
[Form and content of this section of the auditors report will vary depending on the nature of the
auditors other reporting responsibilities]
[Auditors signature]
[Date of the auditors report]
[Auditors address]
16
The sub-title Report on the Financial Statements is unnecessary in circumstances when the second sub-title Report on Other
Legal and Regulatory Requirements is not applicable (see A34 to A36 of ISA 700).
116 | P a g e
17
The sub-title Report on the Financial Statements is unnecessary in circumstances when the second sub-title Report on Other
Legal and Regulatory Requirements is not applicable (see A34 to A36 of ISA 700).
117 | P a g e
Qualified Opinion
18
The sub-title Report on the Financial Statements is unnecessary in circumstances when the second sub-title Report on Other
Legal and Regulatory Requirements is not applicable (see A34 to A36 of ISA 700).
118 | P a g e
Auditors Responsibility
Our responsibility is to express an opinion on these financial statements based on our audit. We
conducted our audit in accordance with generally accepted state auditing standards. Those
standards require that we comply with ethical requirements and plan and perform the audit to
obtain reasonable assurance about whether the financial statements are free from material
misstatement.
An audit involves performing procedures to obtain audit evidence about the amounts and
disclosure in the financial statements. The procedures selected depend on the auditors
judgment, including the assessment of the risk of material misstatement of the financial
statements,
whether due to fraud or error. In making those risk assessment, the auditor
considers internal control relevant to the entitys preparation and fair presentation of the
financial statements in order to design audit procedures that are appropriate in the
circumstances, for the purpose of expressing an opinion on the effectiveness of the entitys
internal control. An audit also includes evaluating the appropriateness of accounting policies
used and the reasonableness of accounting estimates made by management, as well as
evaluating the overall presentation of the financial statements.
We believe that the audit evidence we have obtained are sufficient and appropriate to provide
basis for our audit opinion.
Bases for Qualified Opinion
We rendered a qualified opinion on the financial statements due to the following:
a. xxx
b. xxx
Opinion
In our opinion, except for the effects of the matters described in the Bases for Qualified Opinion
paragraph, the financial statements referred to above present fairly, in all material respects, the
financial condition of the (name of the project) as of (December 31, 20XX) and the results of its
financial performance and its cash flow for the year ended December 31, 20XX)/period from (01
January 20XX to 30 June 20XX), in accordance with applicable laws, rules and regulations and in
conformity with the generally accepted accounting principles.
COMMISSION ON AUDIT
By:
_____________________
Printed Name
Supervising Auditor/Audit Team Leader
Date
119 | P a g e
C. Adverse Opinion
INDEPENDENT AUDITORS REPORT
[Appropriate Addressee]
Report on the Financial Statements 19
Pursuant to (specific provision on the audit in the LA) between the (DPs and Borrower), we have
audited the Accompanying statement of financial condition (of the Project) as of (Period) and
the related statements of financial performance and cash flows for the year ended (December
31, 20XX)/period from (01 January 2012 to 30 June 2013), and the summary of significant
accounting policies and other explanatory information.
Managements Responsibility for the Financial Statements
Management is responsible for the preparation and fair presentation of these financial
statements in accordance with generally accepted accounting principles in the Philippines. This
responsibilities includes: designing, implementing, and maintaining internal control relevant to
the preparation and fair presentation of financial statements that are free from material
misstatements, whether due to fraud or error; selecting and applying appropriate accounting
policies; and making accounting estimates that are reasonable in the circumstances.
Auditors Responsibility
Our responsibility is to express an opinion on these financial statements based on our audit. We
conducted our audit in accordance with generally accepted state auditing standards. Those
standards require that we comply with ethical requirements and plan and perform the audit to
obtain reasonable assurance about whether the financial statements are free from material
misstatement.
An audit involves performing procedures to obtain audit evidence about the amounts and
disclosure in the financial statements. The procedures selected depend on the auditors
judgment, including the assessment of the risk of material misstatement of the financial
statements,
whether due to fraud or error. In making those risk assessment, the auditor
considers internal control relevant to the entitys preparation and fair presentation of the
financial statements in order to design audit procedures that are appropriate in the
circumstances, for the purpose of expressing an opinion on the effectiveness of the entitys
internal control. An audit also includes evaluating the appropriateness of accounting policies
used and the reasonableness of accounting estimates made by management, as well as
evaluating the overall presentation of the financial statements.
We believe that the audit evidence we have obtained are sufficient and appropriate to provide
basis for our audit opinion.
19
The sub-title Report on the Financial Statements is unnecessary in circumstances when the second sub-title Report on Other
Legal and Regulatory Requirements is not applicable (see A34 to A36 of ISA 700).
120 | P a g e
The sub-title Report on the Financial Statements is unnecessary in circumstances when the second sub-title Report on Other
Legal and Regulatory Requirements is not applicable (see A34 to A36 of ISA 700).
121 | P a g e
Auditors Responsibility
Our responsibility is to express an opinion on these financial statements based on our audit. We
conducted our audit in accordance with generally accepted state auditing standards. Those
standards require that we comply with ethical requirements and plan and perform the audit to
obtain reasonable assurance about whether the financial statements are free from material
misstatement.
An audit involves performing procedures to obtain audit evidence about the amounts and
disclosure in the financial statements. The procedures selected depend on the auditors
judgment, including the assessment of the risk of material misstatement of the financial
statements,
whether due to fraud or error. In making those risk assessment, the auditor
considers internal control relevant to the entitys preparation and fair presentation of the
financial statements in order to design audit procedures that are appropriate in the
circumstances, for the purpose of expressing an opinion on the effectiveness of the entitys
internal control. An audit also includes evaluating the appropriateness of accounting policies
used and the reasonableness of accounting estimates made by management, as well as
evaluating the overall presentation of the financial statements.
We believe that the audit evidence we have obtained are sufficient and appropriate to provide
basis for our audit opinion.
Bases for Disclaimer of Opinion
We do not render an opinion on the financial statements due to the following:
a. xxx
b. xxx
Opinion
Because of the significance of the matters described in the Bases of Disclaimer of Opinion
paragraph, we have not been able to obtain sufficient appropriate audit evidence to provide
bases for an audit opinion. Accordingly, we do not express an opinion on the financial
statements.
COMMISSION ON AUDIT
By:
_____________________
Printed Name
Supervising Auditor/Audit Team Leader
Date
122 | P a g e
Annex P
ISA 800
Independent Auditors Report SPFS (ISA 800)
Illustrations of Auditors Reports on Special Purpose Financial Statements
Illustration 1: An auditors report on a set of financial report prepared in accordance
with the financial reporting provisions of a contract (for purposes of this illustration, a
compliance framework).
Illustration 2: An auditors report on a set of financial report prepared in accordance
with the financial reporting provisions established by a regulator (for purposes of this
illustration, a fair presentation framework).
Illustration 1:
Circumstances include the following:
o The financial reports have been prepared by management of the entity in
accordance with the financial reporting provisions of a contract (that is, a
special purpose framework) to comply with the provisions of that contract.
Management does not have a choice of financial reporting frameworks.
o The applicable financial reporting framework is a compliance framework.
o The terms of the audit engagement reflect the description of managements
responsibility for the financial statements in ISA 210.
o Distribution and use of the auditors report are restricted.
INDEPENDENT AUDITORS REPORT
[Appropriate Addressee]
We have audited the accompanying (Imprest Account/Special Account Reconciliation
Statement, Statement of Sources and Application of Funds, Statement of Expenditures)
as at December 31, 20XX, of the project entitled (name of the project). The financial
reports have been prepared by management of (agency) based on the financial
reporting provisions of (section) of the Loan Agreement dated (January 1, 20XX)
between (debtor agency) and (creditor).
Managements Responsibility for the Financial Statements
Management is responsible for the preparation of these financial reports in accordance
with the financial reporting provisions of (Section ) of the Loan Agreement, and for such
internal control as management determines is necessary to enable the preparation of
financial reports that are free from material misstatement, whether due to fraud or
error.
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Auditors Responsibility
Our responsibility is to express an opinion on these financial reports based on our audit.
We conducted our audit in accordance with Philippine Standards on Auditing. Those
standards require that we comply with ethical requirements and plan and perform the
audit to obtain reasonable assurance about whether the financial reports are free from
material misstatement.
An audit includes examining, on test basis, evidence supporting the amounts and
disclosures on the above mentioned financial report/s. An audit also includes evaluating
assessing the accounting principles used and estimates made by management, as well as
evaluating the overall presentation of the financial reports. This audit also involved
evaluating (agency) compliance with the applicable Agreement Terms and Conditions for
the Project and which are set out in (list/specify/describe Financial Agreement, or other
documents).
We believe that our audit provide a reasonable basis for our opinion.
Opinion
In our opinion, the financial report/s of the (Project) for the period from (date) to (date)
present in all material respects accurately the expenditures actually incurred and the
cash received for the Project in conformity with the applicable Agreement Terms and
Conditions.
Basis of Accounting and Restriction on Distribution and Use
Our report is intended solely for the information and use of the (Agency creditor) and
(Agency Debtor).
[Auditors signature]
[Date of the auditors report]
[Auditors address]
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multicurrencies. In 2004, all outstanding PMCL were converted to PSCL. After the
conversion loan accounts and amortization schedule are converted to Japanese yen.
Pool-based Single Currency Loan in US dollar (PSCL in USD) is single currency loan and
carries variable interest rate that is based on the average ADBs outstanding US dollar
borrowings to fund PSCLs plus a lending spread.
Withdrawal Application is a written request from the borrower to the DP to pay funds
against the borrowers loan account.
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VIII. REFERENCES
COA- PDC. 2002. Handbook on Understanding Foreign Assisted Projects
PDAO. Unpublished Manual on FAPs
ICC Approval Process. www.neda.gov.ph
DOF-IFG. General Procedures for the Processing of NG Loans.
KALAHI-CIDSS, DSWD.2007. 16th ODA Portfolio Report.
Asian Development Bank. January 2007. Loan Disbursement Handbook
JBIC. 2008. Loan Agreement JBIC PH-P243
JICA. 2010. Loan Agreement JICA PH-C22
JICA. 2004. Guidelines for Project Evaluation.
ADB. 2007. Guidelines for Preparing a Design and Monitoring Framework. 2nd Edition
UNDP. 2002. Handbook on Monitoring and Evaluating for Results.
World Bank. Operations Manual BP13.05-Project Supervision.
Project Management Organizational Structures, Project Management for Development
Organization, PM$DEV 2007 Management Development Series,
www.pm4dev.com/info@pm4dev.com
Hauck, Cynthia, Cornelius and Associates. How to Choose the Right Project Management
Office Structure for Your Organizations Structure
NEDA. 2007. 16th Annual ODA Portfolio Review
DAR. 1998. Creation of Foreign-Assisted Projects Office (FAPsO). Department of Agrarian
Reform Memorandum Circular No. 04, series of 1998
DOH. 2001. Implementation Guidelines of Foreign Assisted Projects (FAPs). Department
of Health Administrative Order No. 10-A, s. 2001
UNDP. 2010. Manual for Nationally Executed Programme and Projects.
DOF. BTr Flowchart of Procedures for Servicing Loans and Foreign Denominated
Securities.
DA. 2008. Annual Progress Report- Infrastructure for Rural Productivity Enhancement
Sector (InFRES) Project
MDFO. Sample of Sub-Project Loan Agreement between the Department of Finance and
the Local Government Unit
Local Government Code of 1991
Agra, Alberto C. Compendium on Local Autonomy and Local Government 1992-1997
PIDS: Policy Lending for LGUs: An Innovative Financing Instrument for Local Governments
2005. IFC Sustainability Report 2005 (The Corporate Citizenship Company) External
Assurance Statement and Commentary
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