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Foreword
1. Introduction to the Guidelines
2. User Instructions
3. Preparing and Appraising Investment Project
4. Financial Management of Executing Agencies
5. Reporting and Auditing
6. Financial Institutions
7. Knowledge Management
7.1. Useful Websites
7.2. Operations Manual (OM)
7.3. Project Administration Instructions (PAIs)
7.4. International Standards
7.5. International Accounting and Auditing Architecture
7.6. Financial Review Checklist for RRPs
7.7. Appraisal Checklist: Nonrevenue-Earning Project
7.8. Appraisal Checklist: Revenue-Earning Project
7.9. Appraisal Checklist: Private Sector Project
7.10. Appraisal Checklist: Financial Institution
7.11. Undertaking Sensitivity and Risk Analyses
7.12. Model Operating Covenants
7.13. Model Capital Structure Covenants
7.14. Model Liquidity Covenants
7.15. Commonly Used Ratios
7.16. Model Financial Statements: Service Organization
7.17. Model Financial Statements: Manufacturing Organization
7.18. Model Terms of Reference for an Auditor
7.19. Audit Report Questionnaire
Addendum
I. Model TOR for PPTA Financial Consultants: Revenue-Earning Project
II. Model TOR for PPTA Financial Consultants: Nonrevenue-Earning Project
III. Financial Management Assessment
IV. Financial Management Internal Control and Risk Assessment (FMICRA)
V. Financial Management Assessment Report Template
VI. Auditor Terms Of Reference: Annual Financial Statements
VII. Auditor Terms Of Reference: Annual Project Accounts
VIII. Auditor Capacity Assessmen: Private Sector Auditor
>>IX. Auditor Capacity Assessment: Supreme Audit Institution
X. Sample Project Monitoring Report (PMR) Formats: Non Revenue-Earning Project
XI. Guidelines' Compliance Assessment
XII. Review of Auditor's Report and Audited Project Accounts
XIII. Review of Auditor's Report and Audited Financial Statements
Financial Management and Analysis of Projects : 7. Knowledge Management

Auditor Capacity Assessment: Supreme Audit Institution

Guidelines for the Preparation of External Auditor Capacity Assessments
Supreme Audit Institution Capability

Background

1.  Standard wording in MDB loan agreements (including ADB) includes a requirement that the auditor appointed by the borrower must be acceptable to the MDB. Determination of the acceptability of an auditor has been decided at a project level with some inconsistency in the criteria used to make the determination. In some cases a private sector firm that has been found acceptable to one MDB has not been acceptable to another. In addition, inconsistencies have been noted in the practice of some audit firms operating in more than one country. Likewise, in several cases, a Supreme Audit Institution (SAI) has been accepted to audit programs/projects of one MDB and not accepted by another MDB.

2.  The MDB Harmonization Technical Working Group (TWG) reached agreement in March 2002 to develop common diagnostic tools to assess the audit capacity of external auditors. In addition, agreement was reached to share information about external auditor's performance. These assessments should be undertaken at the country level, rather than the project level.

Supreme Audit Institution Capabilities

3.  SAI capabilities vary considerably between countries. The International Organization of Supreme Audit Institutions (INTOSAI) has issued international audit standards for public sector audits. INTOSAI also encourages its members to follow its standards but individual SAIs usually have constitutional authority in their respective countries and are not subject to INTOSAI guidance. The level of the development of the SAI in an individual country is covered in diagnostic tools such as Diagnostic Studies of Accounting and Auditing (DSAAs) and Country Financial Accountability Assessments (CFAAs).

4.  The attached Supreme Audit Institution Capacity Assessment Questionnaire (Attachment 1) will be used to gather information regarding SAIs acceptability as auditors for MDB programs/projects in their country. SAI capacity assessments will be summarized in the attached SAI Capacity Assessment form (Attachment 2). The review of an SAI's capacity would be undertaken in conjunction with an MDB's national diagnostic tool such as DSAAs/CFAAs. The review would be undertaken on a regular interval of at least every three years but not more then five years.

5.  Where more than one MDB operates in an individual country the above SAI assessments will be undertaken jointly and the eligibility of the SAI will be agreed jointly.

Attachment 1

Supreme Audit Institution
Capacity Assessment Questionnaire

General Information

1.

Legal name of the Supreme Audit Institution (SAI)

 

 

 

 

 

 

2.

 

Institutional Authority (Please attach a copy of relevant initiating and enabling legislation.)

 

 

 

 

 

 

 

 

3.

 

Date of passage

 

 

4.

 

Date of expiration (if any)

 

 

5.

 

Legal address

 

 

 

 

 

 

 

 

6.

 

Postal address

 

 

 

 

 

 

 

 

7.

 

Email address

 

 

8.

 

Telephone Number (Please include country and area codes)

 

 

9.

 

Fax/Telex Number

 

 

Structure of the SAI

 

10.

Describe fully how the SAI is structured both internally (obtain an organization chart) and in relation to the major components of the Government.

 

 

 

 

 

 

 

 

 

 

 

 

11.

 

List the following regarding regional or local offices (if any).

 

Name of Office

Address/Phone Number

Contact Person/Title

 

 

 

 

12.

 

Describe fully how the above offices are affiliated with the main office and how they are supervised.

 

 

 

 

 

 

Independence and Financial Resources

 

13.

Are written guidelines covering independence standards, rules, and procedures provided to staff and auditees?  (If so, attach a copy.)

 

 

 

 

 

 

 

 

14.

 

Does the SAI station staff in the offices of auditees all year? If so, is there a policy to rotate them to the offices of other auditees and typically how often are they rotated?

 

 

 

 

 

 

 

 

15.

 

Describe fully how the SAI establishes and maintains independence from the Government units it audits and the branch of government supervising them.

 

 

 

 

 

 

 

 

16.

 

Describe how the SAI maintains audit work confidentiality.

 

 

 

 

 

 

 

 

17.

 

What branch of government does the SAI report to and to what branch/unit of government does the SAI address and deliver audit reports?

 

 

 

 

 

 

 

 

18.

 

What branch of government sets/approves the SAI's annual budget and work plan?

 

 

 

 

 

 

 

 

19.

 

How much is the SAI's current year budget, by major category?

 

 

 

 

 

 

 

 

20.

 

Does the SAI charge a fee or recover the cost of the audit from the auditee?

 

 

 

 

 

 

 

 

Staff Resources

 

 

21.

 

How many staff does the SAI employ?

 

(A)

 

 

 

22.

 

How many are considered professional staff?

 

 

 

23.

 

How many are considered clerical/support staff?  

 

(A)

 

 

24.

 

How many professional staff are members of national professional accounting bodies

   

 

25.

 

How many professional staff are members of foreign professional accounting bodies?

   

 

26.

 

Describe the academic and professional qualifications needed to become a member of the national professional accounting/auditing body. Also indicate whether there is a requirement to take a minimum number of continuing education courses to retain membership (indicate how many hours/days required).

 

 

 

 

 

 

 

 

 

 

 

 

27.

 

Describe the minimum qualifications and training the SAI requires for entry level auditors.

 

 

 

 

 

 

 

 

28.

 

Describe the SAI's system to retain and promote staff, indicating at least:

·         whether clear job classifications and descriptions exist,
·         whether individual staff development plans are prepared,
·         whether personnel evaluations are undertaken on a regular basis,
·         whether evaluations are based on established performance targets, and
·         whether permanent personnel files are maintained on each staff member.

 

 

 

 

 

 

 

Management Policies and Procedures

 

29.

 

Describe the process by which the Auditor General is appointed, indicating the branch of government responsibly for his/her appointment and the process and conditions that must prevail to remove an Auditor General from office.

 

 

 

 

 

 

 

 

30.

 

Describe the process by which senior staff are appointed in the Office of the Auditor General, indicate whether they enjoy as much protection as the Auditor General does, indicate whether they are part of a permanent civil service.

 

 

 

 

 

 

 

 

31.

 

Describe who or which branch of government has the authority to set audit policies and establish audit procedures.

 

 

 

 

 

 

 

 

32.

Describe who or what rank within the Auditor General's Office has the authority to represent the SAI in official communications with external funding agencies.

 

 

 

 

 

 

 

 

33.

 

Describe who has authority to sign audit opinions, reports and official letters.

 

 

 

 

 

 

 

 

Audit Procedures and Methodologies

 

34.

Describe whether the Auditor General's Office's uses INTOSAI, ISA or national audit standards. Where national standards are used, how similar/different are they to either INTOSAI or ISA standards. Indicate whether the SAI is a member of INTOSAI.

 

 

 

 

 

 

 

 

35.

 

Describe how the Auditor General's Office documents the audit standards to be used and how is this procedure updated.

 

 

 

 

 

 

 

 

36.

 

Describe the auditing standards used by private sector auditors if they undertake an audit of a State Owned Enterprise (SOE) on behalf of/under contract to the Auditor General.

 

 

 

 

 

 

 

 

37.

 

Describe the auditing standards used by private sector auditors when they audit publicly listed/traded companies (contrast with item 36 above).

 

 

 

 

 

 

 

 

38.

 

Broadly describe the audit standards used for compliance audits and for performance audits.

 

 

 

 

 

 

 

 

Audit Planning, Documentation, and Quality Control

 

39.

Describe the audit planning process and its documentation, including assessments of risk and materiality. Is a proscribed planning document generated for each audit undertaken?

 

 

 

 

 

 

 

 

40.

 

Describe whether an engagement letter or equivalent document is used to clearly establish responsibilities for the audit.

 

 

 

 

 

 

 

 

41.

 

Describe whether internal controls are tested in every financial audit engagement and whether a report is produced that summarizes this testing, the results observed and the conclusions reached.

 

 

 

 

 

 

 

 

42.

 

Describe the procedures used to document audit evidence obtained during audits and to document the conclusions drawn as a result of the audit testing. Indicate whether detailed audit programs are always used.

 

 

 

 

 

 

 

 

43.

 

Describe the steps taken to detect fraud and error, and what procedures are followed if fraud and error are detected.

 

 

 

 

 

 

 

 

44.

 

Describe whether the work of the SAI is subject to peer review, if so describe the arrangements and the results of the most recent peer review.

 

 

 

 

 

 

 

 

45.

 

Describe the process whereby the audit reports issued by the Auditor General are made public. Indicate whether this is through the legislature or whether they are published.

 

 

 

 

 

 

 

 

Recent Audit Experience

 

 46.

 Describe the composition of audit work performed during the last fiscal year, as follows:

 

Nature of Audit Assignments


 
Percentage of Total Audit Time


 
Financial Audit
     In accordance with INTOSAI or ISA standards
     In accordance with national standards




 
%
%


Performance Audit
     In accordance with INTOSAI or ISA standards
     In accordance with national standards




 
%
%


Compliance Audit 


 
%


Other


 
%


Total 



 
100%

 

 47.

 List recent financial audit engagements of the SAI relating to government agencies/units, as follows:

Agency/Unit Name

Address/Contact Name/Phone Number

Period under Audit

 

 

 

 

48.

 

Describe Audit experience on audits of multilateral or bilateral assistance projects, as follows

 

Project name

Identification Number

Period under Audit

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Certification

 

 

 

      To be signed by an appropriate representative of the SAI:

     I certify that the above information is true and correct

     Signed

 

 

     Position

 

 

     Date

 

 

     Please feel free to submit any additional information that further describes the SAI

Attachment 2

Supreme Audit Institution Capacity Assessment

This evaluation is intended to be used to assess the capacity of the National Supreme Audit Institute (SAI) of a country for engagement as auditors on MDB funded projects. Total evaluation points are set at 1,000. The three major categories are:

 

Suggested Weighting

Independence of the SAI

300

Experience    

200

Audit Methodology

200

Personnel and training

300

      Total Points

1,000


These major categories should be broken down to provide guidance to staff in assessing and allocating points. Local conditions may influence the weighting of points across various subcategories.

Independence of the SAI

·          Written guidelines on maintaining independence
·          Established rotation policy for field staff 
·          SAI reports to independent legislature
·          Budget approved by independent legislature
·          Auditor General appointed by independent legislature
·          Aditor General dismissed by independent legislature or judiciary

Total points                                                                               300 pts.

Experience

·          Experience with ISA/INTOSAI standards
·          Experience with IAS accounting standards
·          Experience with audit of MDB/Bilateral funded projects             

Total points                                                                                200 pts.

Audit Methodology

·          Audit standards and procedures are well documented
·          Audit plans including risk assessment process
·          Audit evidence well documented
·          Fraud detection procedures undertaken                       

Total points                                                                                     200 pts.

Personnel and Training

·          SAI is adequately staffed
·          Staff includes sufficient professionally qualified accountants/auditors
·          Well-established staff training program utilized regularly
·          Well established staff retention/promotion policies              

Total points                                                                                300 pts.

Total of all Categories                                                                               1000 pts.

All evaluation processes include an element of subjectivity. Consistency in the evaluation process is important. A minimum of 600 points is suggested for determining eligibility for engagement as the auditor of an MDB project, subject to a minimum of 50% in each category.



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