Municipal Budget & Reporting

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Municipal Budget & Reporting
Regulations


Rollout Presentation




Chief Directorate: Local Government Budget Analysis

INTERGOVERNMENTAL RELATIONS

January 2009

2

Outline


Problem Statement


Underlying Principles


Legal Framework


Background to reform


Objective of reform


Scope of the regulations


Structure and content of regulations


Technical aspects of document formats


Technical aspects of budget tables


Implementation strategy

3

Problem Statement


283 different municipal budgets despite efforts around Circular 28


Makes aggregation of budget and other information very difficult


Quality of municipal information is compromised due to lack of
uniform classifications for revenue and expenditure items


Most municipal budgets do not contain narrative information


Lack of consistent information across the IDP, Budget, SDBIP, IYM
and AFS


Compromises monitoring and oversight by Councils, dplg, treasuries
and legislatures


Compromises government’s ability to formulate coherent policies
affecting local government, and its ability to use the budget as a
redistribution tool to address poverty and inequality


To compensate national departments send supplementary requests for
information



Financial Information
-

15 400 questions



Non
-
financial Information
-

2 300 questions


Municipal Councils probably make uniformed decisions in the
absence of credible information and poor advice from officials

4

Underlying Principals


Guided by the Constitution and the MFMA


Promote transparency and accountability


Strengthens the link between policy priorities,
planning, budgeting, implementation and
reporting;


Forms the basis for the Medium Term Revenue
and Expenditure Framework for municipalities
(MTREF)


Facilitates inter
-
local government comparability
(to demonstrate the effective use of resources
and to inform allocation decisions)


Consistent budget and reporting formats that
will support GFS.


5

Accountability Cycle

IDP
Budget
SDBIP
In
-
year
Reporting
Annual
Financial
Statements
Annual
Report
5 year Strategy
Three year Budget
Annual Plan to Implement
Standard Chart of Accounts (SCOA)
Monitoring
Oversight
Reports
Focus of MBRR
Focus of MBRR
Next Project
IDP
Budget
SDBIP
In
-
year
Reporting
Annual
Financial
Statements
Annual
Report
5 year Strategy
Three year Budget
Annual Plan to Implement
Standard Chart of Accounts (SCOA)
Monitoring
Oversight
Reports
Focus of MBRR
Focus of MBRR
Next Project
Legal Framework

7

7

Constitutional requirements


Section 215 (1) of the Constitution states
that:


national, provincial and municipal budgets and budgetary
processes must promote transparency, accountability and
effective financial management of the economy, debt and
the public sector.




Section 215 (2) of the Constitution states
that:


National legislation must prescribe
-


(a) the form of national, provincial and municipal budgets;


(b) when national and provincial budgets must be tabled; and


(c) that budgets in each sphere of government must show the
sources of revenue and the way in which proposed
expenditure will comply with national legislation.


8

8

Constitutional requirements


Section 216(1) of the Constitution states
that:

national legislation must establish a national treasury
and prescribe measures to ensure both transparency and
expenditure control in each sphere of government, by
introducing
-

(a)

Generally recognised accounting practice


(GAMAP/GRAP


OAG)

(b) Uniform expenditure classifications; and



(Standard Chart of Accounts / General Leger)

(c) Uniform treasury norms and

standards


(MFMA, Regulations, Circulars and Guidelines)

9

9

Legislative requirements


Section 17 of the MFMA:


An annual budget
must be

in a schedule in
the ‘prescribed format’



Sections 121, 122 and 125 of the
MFMA:


Relate to municipal annual reports,
preparation of financial statements and
compulsory disclosures in financial
statements


each section includes a
power for the Minister of Finance to
prescribe the information required

10

Legislative requirements


Section 168 of the MFMA states that:

The Minister (of Finance), acting with the concurrence
of the Cabinet member responsible for local government,
may make regulations for, among other things
-


(a) any matter that may be prescribed … and

(c) a framework for regulating the exercise of municipal

fiscal and tariff
-
fixing powers.

11

Background to reform

12

Early reform


Advance pilot testing began in 2000


Included testing new budget formats


Further worked and consultation done between
2001


2005



Circular 28 released December 2005



Gives further guidance on budget formats


Municipalities encouraged to apply to the
2006/07, 2007/08 and 2008/09 budgets



Circular 42 released March 2007


Gives guidance on funding the budget


Sets out the Funding Compliance Test

13

Latest developments


Budget and Reporting Regulations drafted
and consulted in 2007


Technical reference group consultations


MFMTAP advisors


Selected municipal and entity CFOs


Provincial Treasuries and Office of the Accountant
General


DPLG, SALGA, SARB, Stats SA, ASB and AG


MFMA Joint Meeting


30 August 2007


22 November 2007


13 March 2008


27 written submissions received


3 workshops and several info sessions


Formats released on Treasury website on 28
June 2008


Some feedback received

Objective of reform

15

Objective of reform


Improve LG spheres ability to deliver basic
services to all through


Improved financial sustainability


Facilitation of medium term planning and policy
choices on service delivery




The regulations achieve this through


Formalising norms and standards which will improve


Credibility


Sustainability


Transparency


Accuracy, and


Reliability


of budgets and in year reports of municipalities and
entities

16

Broad Objectives


Forms part of the MFMA financial management reforms


Ensure budgets are funded


Information for determining municipalities financial status


DoRA compliance without duplicated reporting regimes


Achieve ‘best’ practice


Support the issuance of annual budget circular


Achieve a standardised vote approval structure


Promote ease of performance comparison and evaluation


Promote simplicity ahead of complexity


The cost of measurement and compliance is minimised


Standardisation across local government nationally


To promote improved serviced delivery


Strengthen accountability, transparency and
understandability


Achieve, consistency and comparability with other spheres of
government


Meeting the challenge of future accounting reforms

17

Consistency of formats


Between budgets, adjustment budgets, and reporting


All stakeholders can readily compare approved budget with actual
results



Budget formats and Annual Financial Statements alignment



Between municipalities


Municipalities may structure votes according to their needs


Additional reporting by standardised classification allows comparison


Easier aggregation for national accounts



Greater consistency promotes improved councillor and
community understanding



Improved alignment with private sector requirements promotes


Mobility of financial management skills between private and
government sectors


Greater understanding by financial institutions and credit rating
agencies



Scope of regulations

19

Scope of regulations


The Municipal Budget and Reporting Regulations will
apply to all municipalities and municipal entities, and
cover their
-


Annual budgets


Adjustments budgets


In
-
year reports (to the Mayor)



For each of the above the Regulations set out
-


Format (content and structure)


Funding


Process


Non
-
compliance with time provisions.



In addition, the Regulations cover
-


A Framework for unforeseen and unavoidable expenditure


Unauthorised, irregular or fruitless and wasteful expenditure


Structure and content
of regulations

21

Overview

Consists of 6 chapters and 7 schedules


Ch 1


Interpretation, object and application of these regulations


Ch 2


Budget and budget related matters of municipalities


Covering the requirements, process, content and structure of budgets and
reports of municipalities


Ch 3
-

Budget and budget related matters of municipal entities


Covering the requirements, process, content and structure of budgets and
reports of municipal entities


Ch 4


Non compliance with time provisions for budgets and reports


Ch 5


Framework for unforeseen and unavoidable expenditure


Ch 6


Unauthorised, irregular or fruitless and wasteful expenditure



22

Ch 2


Budgets and budget related matters
of municipalities


General provisions



Budget related policies of municipalities



Annual budgets of municipalities


Schedule A


Format, funding, process



Adjustments budgets of municipalities


Schedule B


Format, funding, process



In
-
year reports of municipalities


Schedule C


Format & process


Monthly budget statements


Quarterly report


Mid
-
year budget and performance assessment

23

Ch 3


Budgets & Budget related matters of
municipal entities


General provisions



Funding and reserves policies of municipal entities



Annual budgets of municipal entities


Schedule D


Format, funding, process



Adjustments budgets of municipal entities


Schedule E


Format, funding, process



In
-
year reports of municipal entities


Schedule F


Format & process


Monthly budget statement


Mid
-
year budget and performance assessment

24

24

Ch 4


Non compliance with time provisions


Processes and formats for: application or
notification, consideration and response
related to:


Impending non
-
compliance by municipalities with time lines
and deadlines concerning annual budgets



Actual non
-
compliance by municipalities with time
provisions concerning annual budgets and adjustments
budgets



Non
-
compliance by municipalities with time provisions
concerning in
-
year reports



Non
-
compliance by municipal entities with time provisions


25

Ch 5


Framework for unforeseen &
unavoidable expenditure


Unforeseen and unavoidable expenditure by
municipalities


Types of expenditure that may be authorised as unforeseen or
unavoidable


Monetary limits allowed to be authorised



Unforeseen and unavoidable expenditure by municipal
entities


Approval of unforeseen and unavoidable expenditure



26


Ch 6


Unauthorized, irregular or fruitless
and wasteful expenditure



Unauthorized, irregular or fruitless and wasteful
expenditure by municipalities


Issues to be considered by council committee




Irregular or fruitless and wasteful expenditure by
municipal entities



Recovery of irregular or fruitless and wasteful expenditure


Board may not delegate authority to certify expenditure as
irrecoverable

27



Schedules to the municipal budget and
reporting regulations



Schedule A

Annual Budget and Supporting Documentation of
Municipalities

Schedule B

Adjustments Budget and Supporting Documentation of
Municipalities

Schedule C

In
-
year Reports of Municipalities

Schedule D

Annual Budget and Supporting Documentation of
Municipal Entities

Schedule E

Adjustments Budget and Supporting Documentation of
Municipal Entities

Schedule F

In
-
year Reports of Municipal Entities

Schedule G

Extensions and Non
-
compliance with Time Provisions

Technical aspects of
document formats

29



Overview




Schedules A, B and C provide


Structure and content for annual budget, adjustments budget
and in
-
year reports for municipalities


Prescribe the main tables


Schedules D, E and F provide


Structure and content for annual budget, adjustments budget
and in
-
year reports for municipal entities


Prescribe the main tables


Documentation must present the content described in
the exact sequence shown in the schedules to
improve


Credibility;


Sustainability;


Transparency;


Accuracy; and


Reliability.

30



Overview


cont’d




The format and content of documentation as described
in the regulations and schedules must be the same for


Tabling to council


Submission to National Treasury and provincial treasuries


Making public at municipal offices and on the municipal website


Distribution to other stakeholders


Council may distribute additional information in other
summary formats for enhanced consultation including
summaries in alternate languages


The annual budget documentation tabled to council for
consultation purposes must be in the same format as
the final approved budget. And must be funded
according to the requirements of the regulations

31



Annual budget documentation


Part 1




Schedule A can be viewed as two parts


Part 1 covers


Mayor’s report


Resolutions


Executive summary


Annual budget tables (top level formats)


Part 1 provides an overall summary of the affect of the
budget


The mayor’s report introduces the documentation to
council and is politically orientated


The executive summary covers the entire budget and
summarises the content of part 2


The annual budget tables contain the amounts to be
approved by resolution

32



Annual budget documentation


Part 2




Part 2 provides more detail and covers


Overview of annual budget process


Overview of alignment of annual budget with Integrated Development Plan


Measurable performance objectives and indicators


Overview of budget related policies


Overview of budget Assumptions


Overview of budget funding


Expenditure on allocations and grant
programmes


Allocations and grants made by the municipality


Councillor

and board member allowances and employee benefits


Monthly targets for revenue, expenditure and cash flow


Annual budgets and SDBIPs


internal departments


Annual budgets and SDAs


entities and external mechanisms


Contracts having future budgetary implications


Capital expenditure details


Legislation compliance status


Other supporting documentation


Annual budgets of municipal entities attached


Municipal manager’s quality certification


33



Tables, charts and explanatory notes




Key tables must be represented by charts for
ease of understanding of trends, anomalies and
components


Each table and chart must be accompanied by
an explanation of the trends and anomalies
depicted


Formats for tables will be issued for strict
compliance


Formats for charts will be issued as guidance


However, charts must demonstrate component
breakdown, total trend and trend of components

34



Schedules B
-

F




Schedules B


F each have two parts


Part 1 is always the same


Mayor’s report


Resolutions


Executive summary


Tables (incl. charts and explanatory notes)



Part 2 differs for each schedule based on need for
supporting information

Tables for



Annual Budgets

Adjustments Budgets

In
-
year Reports

36



Overview




Main tables are prescribed as part of the Schedules


Supporting tables are issued by way of guidance


All tables comply with the provisions in the regulations


Main tables are prescribed and so cannot be changed


Supporting tables can be amended while still complying with the
regulations


Specimen tables have been prepared to demonstrate actual
completion


Working excel models with links have been prepared for
municipalities to enter their details and to promote comparability


7 years view, aligned to National and Provincial formats


37



Simultaneous standardisation & flexibility




Standardisation and flexibility is achieved concurrently


Key, high level tables are standard


Generic items and labels are used


Generic items are further explained in supporting tables


Supporting tables are partly standardised and can be
expanded to suit local circumstances


Future changes in disclosure requirements (due to
accounting standard changes for example) can be met
within generic items on the key tables or the supporting
tables


Should supporting tables need to be modified, National
Treasury will re
-
issue them

38


Annual Budget Tables

Table A1

Budget Summary

Table A2

Budgeted Financial Performance (revenue and
expenditure by standard classification)

Table A3

Budgeted Financial Performance (revenue and
expenditure by municipal vote)

Table A4

Budgeted Financial Performance (revenue and
expenditure)

Table A5

Budgeted Capital Expenditure by vote, standard
classification and funding

Table A6

Budgeted Financial Position

Table A7

Budgeted Cash Flows

Table A8

Cash backed reserves/accumulated surplus
reconciliation

Table A9

Asset Management

Table A10

Basic service delivery measurement



39

Annual budget columns


Consistent with national and provincial requirements


3 years of audited outcome (an addition of 2 years)


Main amendment to circular 28 & will improve forecasting


1 yr of audited history not sufficient for performance comparison


3 Columns required for yr currently being implemented


Recent trend info vital for strategic decisions on the new budget


Original budget is critical as it represents promises made and
consulted on when setting the budget


Significant differences between original budget, adjusted budget
and full yr forecast indicate poor planning and unrealistic
budgets.


The MTREF is now a standard feature for municipalities

2004/05
2005/06
2006/07
Audited
Outcome
Audited
Outcome
Audited
Outcome
Original
Budget
Adjusted
Budget
Full Year
Forecast
Budget Year
2008/09
Budget Year
+1 2009/10
Budget Year
+2 2010/11
2008/09 Medium Term Revenue &
Expenditure Framework
Current Year 2007/08
40


Adjustments Budget Tables

Table B1

Adjustments Budget Summary

Table B2

Adjustments Budget Financial Performance (revenue
and expenditure by municipal vote)

Table B3

Adjustments Budget Financial Performance (standard
classification)

Table B4

Adjustments Budget Financial Performance (revenue
and expenditure)

Table B5

Adjustments Capital Expenditure Budget by vote and
funding

Table B6

Adjustments Budget Financial Position

Table B7

Adjustments Budget Cash Flows

Table B8

Cash backed reserves/accumulated surplus
reconciliation

Table B9

Asset Management

Table B10

Basic service delivery measurement


41



Adjustments budget columns







First 2 columns show original budget and prior adjusted
budget


Next 4 columns show specific adjustments


Total adjustments represents columns 4


8


The adjusted budget represents columns 3 & 9


The 2 outer year adjusted budget columns allow for
shifting of funds between multi
-
year appropriations for
capital as per section 33 of the MFMA

Budget Year
+1 YYYY/YY
Budget Year
+2 YYYY/YY
Original
Budget
Prior
Adjusted
Accum.
Funds
Multi-year
capital
Unfore.
Unavoid.
Nat. or Prov.
Govt
Other
Adjusts.
Total Adjusts.
Adjusted
Budget
Adjusted
Budget
Adjusted
Budget
3
4
5
6
7
8
9
10
A
A1
B
C
D
E
F
G
H
Current Year - Adjustments Budget - Month YYYY
42


In
-
year Reports

Table C1

s71 Monthly Budget Statement Summary

Table C2

Monthly Budget Statement
-

Financial
Performance (revenue and expenditure by
municipal vote)

Table C3

Monthly Budget Statement
-

Financial
Performance (standard classification)

Table C4

Monthly Budget Statement
-

Financial
Performance (revenue and expenditure)

Table C5

Monthly Budget Statement
-

Capital
Expenditure (municipal vote, standard
classification and funding)

Table C6

Monthly Budget Statement
-

Financial
Position

Table C7

Monthly Budget Statement
-

Cash Flow

43



In
-
year reporting columns




The preceding year audited outcome is provided for
comparison with the original budget, adjusted budget
and full year forecast columns


Provision of year to date budget requires budgets to
be timed, establishes monthly performance targets
and encourages a more advanced approach to
forecasting than is generally currently employed


Year to date variance percentage is a more
appropriate measurement of performance than a
percentage of full year budget as takes into account
seasonality and actual targets set

Preceding
year
Current Year
Audited
Outcome
Original
Budget
Adjusted
Budget
Monthly
actual
YearTD actual
YearTD
budget
YTD variance
YTD variance
Full Year
Forecast
%
44



Consolidation of municipality and entities




37 municipalities currently have entities


Table formats provide for consolidation where required


Municipalities must convey to readers of the
documentation, information on the total service delivery
package being provided through internal and external
mechanisms


Consolidated information must therefore be provided


Parent information must be provided separately to
facilitate approval of the parent municipality budget


The Council must monitor consolidated in
-
year reports
as well as for the parent municipality


Adjustments budget documentation will be presented for
the parent municipality only but be tabled to council
along with the latest consolidated in
-
year report

Technical aspects

of tables for the

Annual Budget

46

Table A1 Budget Summary


Provides a 7
-
year view of the key aspects
of the budget at a glance


Key summary of revenue, expenditure,
capital expenditure and funds sources,
financial position, cash flows, cash
backing, asset management and basic
services


Table does not need to be completed as it
is linked to other budget tables.

47

Table A2 Budgeted Financial Performance


(revenue and expenditure by standard classification)


The

standard classification’

refers to a modified
Government Finance Statistics (GFS) reporting
structure.



Modifications include


Separation of the ‘Budget and Treasury Office’


Separation of ‘Corporate Services’ that were previously grouped
with ‘Finance’.


The aim of the standard classification approach is that
all municipalities will approve a budget in one common
format.


The information must be read in conjunction with the
other financial performance views


The category of ‘other’ has not been included, as its
inclusion reduces the value of the information and
prevents comparability between municipalities.
Municipalities with ‘other’ categories should display
these items separately.



48

Table A3 Budgeted Financial Performance


(revenue and expenditure by municipal vote)


Enables Council to enforce a vote in
accordance with the municipality’s
organisational structure and to assign
responsibility for the revenue and expenditure
recorded against these votes


Table A3 is protected and is not to be
completed directly. Revenue and expenditure
data should be entered at sub
-
vote level using
Table A3A


Table A3A is a working sheet only, and should
not be included in a budget document


49

Table A4 Budgeted Financial Performance


(revenue and expenditure)


A key aim for this view is to facilitate
comparison between the annual results and the
original budget to assess performance


The purpose is to provide for generic items in
the main table

that will not need to be amended
when accounting practices change.


Supported by additional detail in Supporting
Table SA1


This view ensures consistency with annual
reporting format requirements


More detailed technical information in
Budget
Formats Guide

50

Table A5 Budgeted Capital Expenditure

(by vote, standard classification and funding )


Table A5 brings together in one table a range of
information that should be considered concurrently
when approving the capital budget, namely:


capital expenditure by municipal vote


capital expenditure by standard classification


the funding sources necessary to fund the capital budget



The MFMA provides that a municipality may approve
multi
-
year capital budget appropriations.


The format provides for the capital budget to be approved as a
multi
-
year appropriation, as a single year appropriation (with two
additional years of indicative estimates), or as a combination


Total Capital Funding must balance with Total Capital
Expenditure



51

Table A6 Budgeted Financial Position


Aligned to GRAP1, which is generally aligned to
the international convention which presents
Assets less Liabilities as ‘accounting’
Community Wealth


Note that the municipal equivalent of ‘equity’ is
now described as Community Wealth/Equity.



The order of items is aligned to the convention
of showing items in order of liquidity


Supported notes in Supporting Table SA3 which
provides a detailed analysis of the major
components


52

Table A7 Budgeted Cash Flows


Table provides for


Clear separation of receipts and payments
within each cash flow category


Clear separation of capital and operating
receipts from Government, which enables
cash from ‘Ratepayers and other’ being used
in the imputed collection rate calculation
(refer Supporting Table SA10)


Separation of borrowing and loan repayments
(no set
-
off), to assist with MFMA compliance
assessment regarding the use of long term
borrowing (debt)

53

Table A8 Cash backed reserves/accumulated
surplus reconciliation


This table meets the requirements of
MFMA Circular 42



Answers the question:


What are the predicted cash and investments
that are available at the end of the budget
years and how are those funds used?


Budget Formats Guide
outlines the steps
the municipalities must complete to
finalise this table


54

Table A9 Asset management


Key elements on asset management brought
together in one view


capital expenditure, new asset expenditure, renewal
expenditure asset value & repairs/maintenance


The format is specifically intended to highlight:


The level of resources being deployed for the
renewal and maintenance of assets, relative to the
resources being deployed for the acquisition and
construction of new assets.


The level of asset renewal relative to the level of
depreciation.


Adds clarity to the interrelationships between
new expenditure and ongoing maintenance
obligations and the need to maintain R&M
standards

55

Table 10 Basic service delivery measurement


Transparent view of achievement of basic
service targets


Alignment to national imperatives


Service standards, backlogs and free
basic service levels identified


Cost of free basic services declared
allowing alignment to equitable share


Progressive achievement of national
targets encouraged

56

Role of Supporting Tables


Provide background detail to the main tables


main tables often just provide summaries of
the supporting tables


Supporting tables are not regulated and so
can be more readily changed in response to
changing accounting practice


Some of the supporting tables provide for
critical developments in the management of
municipal finances:


MFMA funding compliance


Supporting the Municipal Property Rates Act


Supporting conditional grant control

57

Supporting Table SA10 MFMA funding compliance



Funding compliance methodology i.t.o. Section
18 & 19(1)(d) of the MFMA developed


Follow up to Circular 42 (Funding the Budget)
issued March 2007


Methodology used to determine whether budget
is sufficiently funded as opposed to “balanced”


Methodology is a self
-
test component
incorporated within budget formats


Most of the calculations have been automated in the
formats, so municipalities only have to interpret the
results


See
MFMA Funding Compliance Guideline

for
detailed guidance

58


Supporting the Municipal Property Rates Act



SA11 Property rates summary


Transparent reflection of tax increases, their
impact on revenue, valuation trends and the
treatment of ‘reductions’, rebates and
exemptions


SA12
-
A13 Property rates by category


Both the current year and the budget year
data is required to ensure that the budget
clearly illustrates trends and changes.


SA14 Household bills


a comparison of various municipal bills,
indicating the cost implication on households
of proposed rates and tariff changes

59

Supporting conditional grant control


SA18 Transfers and grant receipts


Ensures all transfer ‘receipts’ are disclosed


SA 19 Expenditure on transfers and grants
programme


Monitor timing of expenditure on individual grants


Encourages better ‘on time’ spending


SA 20 Reconciliation of transfers, grant
receipts and unspent funds



Unspent grants reconciled between balances
carried forward, amounts received and
expenditure as shown in

the Budgeted Financial
Position


60

Implementation

Strategy

61

Reform too difficult?


During the reform processes there have been complaints that
the requirements are too difficult


This position is not accepted by National Treasury


MM, CFO's and their teams are required to attain a particular
level of competency to carry out their duties. There has been
ample opportunity for municipalities to progressively implement
the reforms


National Treasury will continue to support municipalities by


strict enforcement of sanctions for non
-
compliance with
competency levels and requirements of the legislation and
regulations


significant support mechanisms that empower municipal
councillors and officials to fulfil their responsibilities

62

Implementation Strategy


Formats represent ‘end states’


Critical that implementation be staged to
meet capacity to deliver


National Treasury to support Provincial
Treasuries


NT and PTs to support municipalities


Advanced implementation to be
encouraged

63


Budget and Reporting Regulations finally past legal scrutiny
during early November 2008


Regulations approved by the Minister of Finance on 4
december 2008


Gazetted on 16 January 2009


Public consultation processes and the Parliamentary scrutiny process
will run concurrently


Public comment period extended to 90 days


Following the conclusion of both these processes, a final version of
the Regulations and formats will be prepared and submitted to the
Minister for final approval before promulgation towards the end of
March 2009


Implementation Strategy


target date for implementation:


1 July 2009 (2009 Budget) for the 27 high capacity municipalities
(six metros and 21 secondary cities); and


1

July 2010 (2010 Budget) for all other municipalities.


Message already communicated to all municipalities on 27
June 2008

Status of Budget and Reporting
Regulations