The Republic of Uganda

Ministry of Local Government

The Local Governments

Internal Audit Manual, 2007
[C1]

August 2007
 The Local Governments Internal Audit Manual, 2007

TABLE OF CONTENTS[C2]

FOREWORD........................................................................................................................... 1
INTRODUCTION ..................................................................................................................... 3
i. Background ..................................................................................................... 3
ii. Statutory Responsibilities ................................................................................ 3
1. PART I: INTERNAL AUDIT MANAGEMENT ............................................................... 5
1.1 MANAGING THE INTERNAL AUDIT UNIT ..................................................... 5
71.2................................................................. RELATIONSHIP MANAGEMENT
........................................................................................................................ 9
1.3 THE RISK BASED APPROACH TO PLANNING AND AUDIT EXECUTION. 11
1.4 PLANNING AND BUDGETING ..................................................................... 16
1.5 AUDIT EXECUTION...................................................................................... 20
1.6 REPORTING ................................................................................................. 23
2. PART II: INTERNAL AUDIT PROCEDURES AND POLICIES ................................... 26
2.1 INTRODUCTION ........................................................................................... 27
2.2 OVERVIEW OF THE AUDIT PROCESS ....................................................... 30
2.3 AUDIT PLANNING AND AUDIT RISK ........................................................... 32
2.4 AUDIT EXECUTION...................................................................................... 39
2.5 OBSERVATION AND INTERVIEW................................................................ 46
2.6 AUDIT TICKS AND MARKS .......................................................................... 50
2.7 AUDIT REVIEW............................................................................................. 53
2.8 SPECIMEN AUDIT WORKING PAPERS ...................................................... 55
2.9 AUDIT REPORTING ..................................................................................... 65
3. PART III: LOCAL GOVERNMENTS INTERNAL AUDIT PROGRAMMES – ROUTINE
AUDITS ..................................................................................................................... 69
3.1 INTRODUCTION ........................................................................................... 70
3.2 INDEX OF AUDIT PROGRAMMES............................................................... 71
3.3 AUDIT PROGRAMMES ................................................................................. 74
A1 Budget .........................................................................................................74
A2 Vote Book ....................................................................................................76
A.3 Analytical Review.........................................................................................78
B.1 Local Services Tax [LST] .............................................................................81
B.2 Property Rates .............................................................................................84
B.3 Business Levies ...........................................................................................86
B.4 Donor Funds ................................................................................................88
B.5 Central Government Grants .........................................................................90

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B.6 Capital Receipts...........................................................................................92

B.7 Contracted Revenue Collection....................................................................94
B.8 Other Income Sources .................................................................................96
B.9 Revenue Collection, Receipting and Banking..............................................98
B.10 Revenue Sharing Audit ..............................................................................100
C1 Salaries, Pensions and Gratuities ..............................................................101
C2 Non-Wage Payments .................................................................................103
C3 Procurement Audit for Goods, Works and Services ...................................106
C4 Advances and Allowances .........................................................................108
C5 Imprests .....................................................................................................110
D1 Fixed and Non Produced Assets................................................................112
D2 Investments................................................................................................115
D3 Stores ........................................................................................................117
D4 Debtors, Prepayments and Advances ........................................................119
D5 Cash and Bank Balances...........................................................................121
E1 Trade Creditors and Accruals.....................................................................123
E2 Loans / Borrowings ....................................................................................125
F1 Reserves....................................................................................................127
G1 Review of Financial Statements .................................................................128
4. PART IV: LOCAL GOVERNMENTS SPECIALISED AUDITS.................................. 130
4.1 INTRODUCTION ......................................................................................... 131
4.2 COMPUTER AUDIT .................................................................................... 132
4.3 VALUE FOR MONEY (VFM) AUDIT............................................................ 142
4.4 HUMAN RESOURCE AUDIT ...................................................................... 150

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LIST OF ABBREVIATIONS

ABS Abstract
Admin Administration
B/d Brought Down
C.B Cashbook
C/d Carried Down
CAAT Computer Assisted Audit Techniques
CE Chief Executive
HOF Head of Finance
CPD Continuous Professional Development
Dept. Department
DHMCS District Health Management Committees
ESAAG East and Southern Africa Association of Accountants Generals
FFS Fees for Services
FIFO First In First Out
GoU Government of Uganda
GRN Goods Received Note
HIA Head of Internal Audit
HQ Headquarters
ICQ Internal Control Questionnaire
IFMS Integrated Financial Management Systems
IGG Inspector General of Government
IIA Institute of Internal Auditors
JV Journal Voucher
LG Local Governments
LGFAR Local Government (Financial and Accounting) Regulations, 2007
LGPAC Local Government Public Accounts Committee
LIFO Last In First Out
LPO Local Purchase Order
No. Number
NSSF National Social Security Fund
P.a Per Annum
PAC Public Accounts Committee
PAYE Pay As You Earn
PV Payment Voucher
QS Quality Surveyor
REC Receipt
Sch. Schedule
Shs Shillings
TB Treasury Bills
TNA Training Needs Assessment
TR Treasury Receipt
UC User Charges
URA Uganda Revenue Authority
VFM Value for Money
VR Voucher

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GLOSSARY OF DEFINITIONS

Act – refers to the Local Government Act, Chapter 243 of the Laws of Uganda

Added Value - Value is provided by identifying operational improvement, and /or

reducing risk exposure through both assurance and consulting services, thereby
improving the likelihood of achieving organizational objectives,

Adequate Control – is present if management has planned and organized

(designed) in a manner that provides reasonable assurance that the organization’s
risks have been managed effectively and that the organization’s goals and objectives
will be achieved efficiently and economically.

Audit Entity- comprises a legal entity, organisation, project, accounting unit,

department, local government, government unit such as a school or hospital, that is
a subject of an audit activity.

Audit Objectives are broad statements developed by internal auditors and define
intended audit accomplishments.

Audit Procedures are the tasks the internal auditor undertakes for collecting,
analyzing, interpreting, and documenting information during an audit. Audit
procedures are the means to attain audit objectives.

Audit Program is a document which lists the audit procedures to be followed during
an audit. The audit program also states the objectives of the audit.

Audit Report is a signed, written document which presents the purpose, scope, and
results of the audit. Results of the audit may include findings, conclusions (opinions),
and recommendations.

Audit Scope refers to the activities covered by an internal audit. Audit scope
includes, where appropriate:

• Audit objectives
• Nature and extent of auditing procedures performed
• Time period audited
• Related activities not audited in order to delineate the boundaries of the
audit

Audit Working Papers record the information obtained, the analyses made, and
conclusions reached during an audit. Audit working papers support the bases for the
findings and recommendations to be reported.

Code of Ethics - The Code of Ethics of The Institute of Internal Auditors (IIA) are
Principles relevant to the profession and practice of internal auditing, and Rules of
Conduct that describe behaviour expected of internal auditors. The Code of Ethics
applies to both parties and entities that provide internal audit services. The purpose
of the Code of Ethics is to promote an ethical culture in the global profession of
internal auditing.

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Compliance - Conformity and adherence to policies, plans, procedures, laws,

regulations, contracts, or other requirements.

Conflict of Interest - Any relationship that is or appears to be not in the best interest
of the organization. A conflict of interest would prejudice an individual’s ability to
perform his or her duties and responsibilities objectively.

Control - Any action taken by management, the Council, and other parties to
manage risk and increase the likelihood that established objectives and goals will be
achieved. Management plans, organizes and directs the performance of sufficient
actions to provide reasonable assurance that objectives and goals will be achieved.

Control Environment - The attitude and actions of the Council and management
regarding the significance of control within the organization. The control environment
provides the discipline and structure for the achievement of the primary objectives of
the system of internal control. The control environment includes the following
elements:
• Integrity and ethical values
• Management’s philosophy and operating style
• Organizational structure
• Assignment of authority and responsibility
• Human resource policies and practices
• Competence of personnel

Control Processes - The policies, procedures, and activities that are part of a
control framework, designed to ensure that risks are contained within the risk
tolerances established by the risk management process.

Continuous Professional Development - The Continuous Professional

Development can be described as a scheme under which participants can access
information for the betterment of their professional services. It refers to learning
activities that develop and maintain capabilities to enable professional accountants
to perform competently within their professional environments.

Due Professional Care calls for the application of the care and skill expected of a
reasonably prudent and competent internal auditor in the same or similar
circumstances. Due professional care is exercised when internal audits are
performed in accordance with the Standards for the Professional Practice of Internal
Auditing. The exercise of due professional care requires that.

• Internal auditors be independent of the activities they audit

• Internal audits be performed by those persons who collectively possess
the necessary knowledge, skills, and disciplines to conduct the audit
properly
• Audit work be planned and supervised
• Audit reports be objective, clear, concise, constructive, and timely

Internal auditors follow up on reported audit findings to ascertain that appropriate

action was taken
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Error as it relates to internal audit reports is an unintentional misstatement or

omission of significant information in a final audit report.

External Auditors refers to those audit professionals who perform independent

annual audits of an organization's financial statements.

External Reviews of the internal auditing department are performed to appraise the
quality of the department's operations. External reviews should be performed by
qualified persons who are independent of the organizations and who do not have
either a real or apparent conflict of interest.

Engagement - A specific internal audit assignment, task, or review activity, such as

an internal audit, control self-assessment review, fraud examination, or consultancy.
An engagement may include multiple tasks or activities designed to accomplish a
specific set of related objectives.

Engagement Objectives - Broad statements developed by internal auditors that

define intended engagement accomplishments.

Engagement Work Programme - A document that lists the procedures to be

followed during an engagement, designed to achieve the engagement plan.

Follow-up by internal auditors is defined as a process by which they determine the

adequacy, effectiveness, and timeliness of actions take by management on reported
audit findings. Such findings also include relevant findings made by external auditors
and others.

Fraud - Any illegal acts characterized by deceit, concealment, or violation of trust.

These acts are not dependent upon the application of threat of violence or of
physical force. Frauds are perpetrated by parties and organizations to obtain
money, property, or services; to avoid payment or loss of services; or to secure
personal or business advantage.

Governance - The combination of processes and structures implemented by the

Council and/or Management in order to inform, direct, manage and monitor the
activities of the organization toward the achievement of its objectives.

Head of Internal Audit - Top position within the local government responsible for
internal audit activities.

Impairments - Impairments to individual objectivity and organizational independence

may include personal conflicts of interest, scope limitations, restrictions on access to
records, personnel, properties and resource limitations (funding).

Illegal Acts refers to violations of laws and governmental regulations.

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Independence allows internal auditors to carry out their work freely and objectively.
This concept requires that internal auditors be independent of the activities they
audit. Independence is achieved through organizational status and objectivity.

Information is data the internal auditor obtains during an audit to provide a sound
basis for audit findings and recommendations. Information should be sufficient,
competent, relevant, and useful.

Internal Auditing is an independent appraisal function established within an

organization to examine and evaluate its activities as a service to the organization.
The objective of internal auditing is to assist members of the organization in the
effective discharge of their responsibilities. To this end, internal auditing furnishes
them with analyses, appraisals, recommendations, counsel, and information
concerning the activities reviewed. The audit objective includes promoting effective
control at reasonable cost.

Internal Auditing Department includes any unit or activity within an organization

which performs internal auditing functions.

Internal Auditor is an individual within an organization's internal auditing department

who is assigned the responsibility of performing internal auditing functions.

Internal Control is a process within an organization designed to provide reasonable

assurance regarding the achievement of the following primary objectives:

• The reliability and integrity of information

• Compliance with policies, plans, procedures, laws, and regulations
• The safeguarding of assets
• The economical and efficient use of resources
• The accomplishment of established objectives and goals for operations
or programs

Irregularity refers to the intentional misstatement or omission of significant

information in accounting records, financial statements, other reports, documents or
records. Irregularities include (a) fraudulent financial reporting which renders
financial statements misleading and (b) misappropriation of assets. Irregularities
involve:

• Falsification or alteration of accounting or other records and supporting

documents
• Intentional misapplication of accounting principles
• Misrepresentation or intentional omission of events, transactions, or
other significant information

Internal Audit Activity - an independent, objective assurance and consulting

services designed to add value and improve an organization’s operations. The
internal audit activity helps an organization accomplish its objectives by bringing a
systematic, disciplined approach to evaluate and improve the effectiveness of risk
management, control and governance processes.

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Key Audit Findings are those conditions which, in the judgment of the director of
internal auditing, could adversely affect the organization. Significant audit findings
may include conditions dealing with irregularities, illegal acts, errors, inefficiency,
waste, ineffectiveness, conflicts of interest, and control weaknesses.

Objectives are the broadest statements of what the organization chooses to

accomplish.

Objectivity is an independent mental attitude which requires internal auditors to

perform audits in such a manner that they have an honest belief in their work product
and that no significant quality compromises are made. Objectivity requires internal
auditors not to subordinate their judgment on audit matters to that of others.

Quality Assurance is a program by which the director of internal auditing evaluates

the operations of the internal auditing department. The purpose of the quality
assurance program is to provide reasonable assurance that internal auditing work
conforms with the Standards for the Professional Practice of Internal Auditing, the
internal auditing department's charter, and other applicable standards. The quality
assurance program should include the following elements:

• Supervision
• Internal reviews
• External reviews

Recommendations are actions the internal auditor believes necessary to correct

existing conditions or improve operations.

Residual Risk - The risk remaining after management takes action to reduce the
impact and likelihood of an adverse event, including control activities in responding
to a risk.

Risk is the probability that an event or action may adversely affect the organization
or activity under audit.

Risk Assessment is a systematic process for assessing and integrating

professional judgments about probable adverse conditions and/or events. The risk
assessment process should provide a means of organizing and integrating
professional judgments for development of the audit work schedule.

Risk Management - A process to identify, assess, manage and control potential

events or situations in order to provide reasonable assurance regarding the
achievement of the organization’s objectives.

Shall - The use of the word “shall” in the standards represents a mandatory
obligation.

Standards for the Professional Practice of Internal Auditing (the Standards) are
the criteria by which the operations of an internal auditing department are evaluated
and measured. They are intended to represent the practice of internal auditing as it
should be.

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Supervision is a continuing process, beginning with planning and ending with the
conclusion of the audit assignment. Supervision includes:

• Providing suitable instructions to subordinates at the outset of the audit

and approving the audit program
• Seeing that the approved audit program is carried out unless deviations
are both justified and authorized
• Determining that audit working papers adequately support the audit
findings, conclusions, and reports
• Making sure that audit reports are accurate, objective, clear, concise,
constructive, and timely
• Determining that audit objectives are being met

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FOREWORD
Regulation 104 of the Local Governments (Financial and Accounting) Regulations,
2007 provides that every district, city, municipal or town council shall have an
internal audit unit whose responsibilities are set out in section 90 of the Local
Governments Act Cap 243 and detailed in the Internal Audit Manual and that all
internal audits shall be carried out in accordance with the requirements of the Local
Governments Act and the Internal Audit Manual and shall be considered as Statutory
Audits required by law. This Internal Audit Manual, 2007 has been developed in
conformity with the above requirements and to provide for the detailed
responsibilities of the internal audit units in local governments.
The Manual provides procedural guidelines, illustrations and supporting audit
programmes which the internal audit staff of local governments should follow in
carrying out their day to day internal audit work.
The manual is structured as follows:
Part I Internal Audit Management: which is designed for use by Heads of
Internal Audit Department in the Annual Planning, Resource Allocation and
Management of their department, and the management of audit
assignments.
Part II Local Governments Internal Audit Procedures and Policies: which is
designed for use by internal audit staff in conducting audit assignments and
for the audit reporting process.
Part III Local Governments Internal Audit Programmes: which contains all the
detailed audit programmes and checklists for carrying out all the routine
audits
Part IV Local Government Specialised Audits: this includes specialised audits
such as Computer Systems Audits, Value for Money, and Human Resource
Audits.
If the Manual is strictly followed, I hope that each Head of Internal Audit should be
able to produce timely quarterly reports which frankly and concisely comment on the
adequacy of the financial control and accounting systems, and provide observations
and recommendations on the efficiency, effectiveness and economy of the
administrative and departmental systems examined every quarter.
I would like to point out that Internal Audit is an important appraisal function that
should offer a continuous internal evaluation and advisory service to the Local
Government Councils. It should entail constant review of the internal controls to
ensure that they are effective and reliable to guarantee safety of local council assets
and reliability of financial statements. In this regard, the internal audit reports are
supposed to be regular, to guide Councils on the general management of finances in
order to ascertain whether value for money is received and to sound a signal where
things are going wrong.
In the process of developing this Manual, close consultations were made with
several institutions, agencies and local governments themselves. The contributions
made by the stakeholders were very useful at all stages of developing the Manual.
I hope that this Internal Audit Manual will be easy to use and will serve to improve
the standard of auditing within the Local Governments.

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I would like to express my sincere gratitude to all the stakeholders who have
contributed in one way or another to the development of this manual. We are
especially grateful to our development partners, particularly the Department for
International Development (DFID) and the World Bank, for their financial and
material support towards the development of the manual.
I sincerely hope and trust that the users of the manual will find it quite useful in
carrying out their duties.

Kahinda Otafire
Maj Gen
MINISTER OF LOCAL GOVERNMENT

August 2007

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INTRODUCTION

i. Background
(1) This Manual is intended for use by Local Government Internal Audit staff in
Uganda. It is tailored to meet their demands in adequately discharging
statutory and professional responsibilities towards those Local Governments
being audited and the people of Uganda.

(2) The Manual reflects international best practice in internal auditing and is
tailored to the local environment and legislation in Uganda.

(3) The complete Local Government Internal Audit Manual comprises a total of
four Parts as follows:

Part I - Internal Audit Management, designed for use by Heads of Internal

Audit Department, in the Annual Planning, Resource Allocation and
Management of their department, and the management of audit assignments.

Part II - Local Governments Internal Audit Procedures and Policies,

designed for use by audit staff in conducting an audit assignment, and for the
audit reporting process.

Part III - Local Governments Internal Audit Routine Programmes,

containing all the detailed programmes and checklists for carrying out all the
routine audits

Part IV - Local Government Specialised Audits– These include specialised

audits such as Computer Systems Audits, Value for Money, and Human
Resource Audits.

ii. Statutory Responsibilities

(1) The duties and statutory responsibilities of the Head of Internal Audit are set
out in Regulation 12 of the LGFAR. For ease of reference the appropriate
sections are repeated below:

(a) to maintain an efficient and effective internal audit unit able to carry out the
functions of the unit;

(b) to implement all relevant aspects of the internal audit manual and ensure
that the prescribed standards and work programmes are adhered to where
applicable;

(c) to prepare annual and quarterly work plans for the internal audit unit to
ensure optimal deployment of resources to priority audit areas, and to
submit the plans to the chief executive for approval;

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(d) to supervise the conduct of audits, and review the draft audit reports and
working papers of the unit staff to ensure that:

all audits have been carried out to an acceptable standard following

prescribed programs;

all matters arising have been properly dealt with and reported in the
correct manner;

(e) to prepare internal audit quarterly reports for submission to the council
within one month at the end of each quarter;

(f) to review the financial and accounting systems of operation in each

department and establishment of the administration to ensure that they are
adequate, effective and conform to the provisions of these Regulations
and the internal audit manual;

(g) to audit revenue collection to ensure that all monies due to the
administration are collected and banked, or otherwise accounted for in
terms of these Regulations and the internal audit manual;

(h) to audit procurement procedures and payments to ensure that all goods,
services and works are properly ordered, received, examined and paid for
in terms of these Regulations and the internal audit manual and that value
for money as an objective of procurement has been achieved;

(i) to conduct manpower audits embracing all employees of the

administration including staff records, remuneration levels, allowances,
and payments to ensure conformity with the budget, approved
establishment, these Regulations and the internal audit manual;

(j) to audit all stores, cash, assets and other property owned or in the care of
the administration to ensure their safe custody, efficient and economic
usage and disposal.

(2) The Head of Internal Audit shall extend services to the sub-county and
division councils, schools, health units and administrative units in his or her
area of jurisdiction and submit quarterly reports.) The Head of Internal Audit
shall work in harmony with Auditor General’s representatives in all audits of
local governments’ accounts.

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1. PART I: INTERNAL AUDIT MANAGEMENT

1.1 MANAGING THE INTERNAL AUDIT UNIT

1.1.1 Introduction

(1) The Head Internal Audit is responsible for the efficient and effective functioning of a
critical Institution within the Local Government, and one which is a key element of
Good Governance. It is therefore important that the Head Internal Audit takes
his/her responsibility very seriously.

(2) Good management of the Internal Audit Department relies on

(a) thorough planning, as provided for in Section 1.4
(b) effective execution of the plan via the good allocation, and efficient use, of
resources,
(c) effective staff monitoring, mentoring and appraisal
(d) technical development and capacity building of professional staff

1.1.2 Resource Management and Allocation

(1) The optimum allocation and deployment of Audit staff to priority Audit Entities,
is a key element in the efficient management of the Internal Audit
Department. By completing the planning processes described under Section
1.4, the Head of Internal Audit will have a clear record of which audits are
scheduled, and where each member of audit staff is to be deployed.

(2) The Head of Internal Audit should hold regular meetings of his staff for
effective deployment and operations of the department/unit staff. Such
meetings should be held at least monthly.

(3) If there are frequent amendments/ deferments to the planned schedule the
Head of Internal Audit must take steps to identify the issues and resolve them.
At the end of the quarter, the manager will have to account for reasons for
major slippages in the execution schedule.

(4) The Manager should organise a monthly staff meeting with a flexible agenda,
which is scheduled to take approximately one hour. Several matters should be
‘standard’ items for the agenda, for example:

(a) Progress on overall execution of the Annual Work Plan – degree of

slippage
(b) Technical issues – and lessons learnt
(c) Logistical issues
(d) Staff matters

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1.1.3 Staff Monitoring, Mentoring and Appraisal

(1) Performance of the Internal Audit Department will be enhanced if all staff
members are effectively monitored, mentored and appraised, on an ongoing
basis. The nature of internal audit makes monitoring and mentoring quite
straight forward. The ‘deployment meeting’ will keep the Manager appraised
of whether staff are completing their work on time, and the detailed review of
staff audit working papers will enable the manager to monitor audit standards
and quality.

(2) It is important that whenever ‘performance issues’ arise with a member of

staff, the matter is raised, discussed, and resolved on an immediate basis.
Mentoring therefore becomes an ongoing process. This mentoring should
apply equally to both good performance and substandard performance. The
manager should also keep a record to keep track of such instances. This
record of performance monitoring should then be brought into the annual
performance appraisal. The appraisal process should follow normal GOU
procedures.

1.1.4 Technical Development and Capacity Building

Objectives

(1) The overall aim of the training and development programme should be to develop a
wide range of audit skills in the following areas:

(a) Basic Technical Skills: these include , analytical skills, use of audit programmes
and internal control questionnaires, production of satisfactory working papers and
audit report writing;

(b) Professional Skills: a knowledge of accountancy and auditing, relevant

legislation, ethics of the Institute of Internal Auditors

(c) Specialist Technical Skills: these include computer and contract audit skills;

(d) Investigatory Skills: how to conduct a value-for-money study and how to

investigate fraud and corruption;

(e) Interpersonal and Communication Skills: interviewing techniques, how to deal

with uncooperative auditees and how to persuade management to accept audit
recommendations;

(f) Management and Organisational Skills: how to conduct an audit, how to lead an
audit team and audit planning and control; and

(g) Knowledge of an Organisation: knowing the protocol, regulations, procedures

and decision making processes of an organisation and knowing how it is
structured.

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Training Records

(1) It is vital that adequate training records are kept for all members of staff. This should
include details of the skills requirements for all audit posts and those held by the
individual as a result of education, training or practical experience. These should be
competency-based.

(2) These records are essential for assessing further training needs and in comparing
development between individuals.

(3) They can also be used for purposes of selecting short lists for promotion.

The Training Programme

(1) The development of a training programme is no easy task and clearly not all members
of staff will require the whole range of skills.

(2) A useful starting point, therefore, is to identify the skill requirements of each member of
staff and, hence, their training needs. There are distinct advantages of involving staff in
this process as frequently their perceptions of their own training needs differs markedly
from that perceived by management.

(3) Training can be divided into four broad categories:

(a) Practical Experience: staff should be given as wide an experience as possible as

much can be learned by working under the supervision of an experienced auditor
and observing how an experienced auditor operates;

(b) Professional Training: this is restricted to any members of staff undertaking

studies towards professional qualifications. The audit manager can expect
auditing to be covered in reasonable depth as part of the professional syllabus;

(c) In-Service Training: an essential part of in-service training is an induction course

for new entrants aimed at providing basic audit skills and a broad appreciation of
the organisation. Many audit managers find it useful to designate a specific day
each month for in-service training. Another possibility, especially where auditors
are geographically spread, is the annual conference at which staff can come
together in a relaxed way to share problems and participate in a programme of
concentrated training; and

(d) External Training: this is more costly than in-service training and care has to be
taken to select the right courses. However, if this is done, staff can be thoroughly
trained in topics which could not be adequately covered by in-service courses.
They will also be exposed to a wider range of expertise and other view points.
Other possibilities include seconding staff to other bodies for periods of time. If
need for such are identified, this should be integrated in the Local Government’s
Capacity Building Plan.

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(4) The table below indicates the range of training courses which should be made available
to internal auditors.

Possible Training Courses for Internal Audit Staff

Course Level Objective Content

Induction Introductory Understanding of Local (1) Local Government
Government and - Structure
Internal Audit function; - Key Legislation
explains structure and
operations. (2) Internal Audit Department
- Legislation
- Manual
- Independence
- Ethics
- Structure
- Clients
- Reporting
- LGPAC
(3) Basic audit programmes
Public Sector Intermediate Overview of the legal - Legislative Framework
Finance and ethical reasons for - Accountability
Accountability, - Budgeting
Budgeting and - Financial Control
Financial Control in the - Final Accounts
Public Sector.
General Audit Intermediate To give all audit staff - Materiality
Techniques the range of general - Evidence
skills required to - Systems Based Auditing
undertake their tasks - Interviewing
effectively. - Sampling and Testing
- Audit Programmes
- Internal Control Questionnaires
- Analytical Review
- Analysis of Financial Systems and
Accounts
- Flow Charting
Audit Advanced To provide Audit - Audit Planning
Management Management with the - Audit Control
skills required to Plan, - Risk Assessment
Control and Report on - Audit Review
audits. - Audit Reporting
- Audit Standards
- Audit Documentation
- Audit Filing and Working Papers
Specialist Advanced To give specialist audit - Contract Audit
Audit skills to those staff - Fraud and Corruption
Techniques requiring them. - Value-for-Money Audit
- Operational or Management Audit
- Computer Audit
- Special Investigations
- Donor Audit
- Internal Audit Evaluation
Professional -Certified Internal Auditor
Auditing -Certified Information Systems Auditor
Skills

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1.2 RELATIONSHIP MANAGEMENT

(1) The areas in which the auditor should have good relationships include:

(a) Chief Executive: The Chief Executive, Head of Finance and Head of Internal
Audit should co-operate as an efficient and harmonious team, firstly to restore
and then maintain the traditional high standards expected from Local
Governments;

(b) Central Government Monitoring/Advisory Teams: The quarterly reports of

the Head of Internal Audit will be filed for inspection. This will often represent
the first intimation of the state of the Council’s affairs. On visits by Monitoring
Teams, the Head of Internal Audit has the obligation to disclose all facts and
information known by him in respect of the authority’s financial affairs;

(c) Finance Department: The Heads of Finance and Internal Audit must
encourage full exchange of ideas and information to secure optimum internal
financial control benefits for the council;

(d) External Auditors: External audit will need to be satisfied that the quality and
planning of the internal audit coverage is satisfactory. Conversely, internal audit
should be satisfied as to the ability and efficiency of external audit since the
success of co-operation must depend on the experience and expertise of both
parties. Information should be exchanged by making available audit plans,
statements of systems and procedures, flow charts and audit reports. Regular
meetings should be held between external and internal audit at which audit
priorities, coverage generally, financial irregularities, fraud and other matters are
discussed. The participation of both internal and external auditors in training
assessments and the formulation of joint training programmes should help to
improve working relationships;

(e) Departments: Good working relationships with client departments are essential
for the smooth running of audit business, if only because of the help the auditor
requires in such daily matters as locating files and examining papers in regular
use. In practice, more extensive benefits may be expected by both parties
where there is a spirit of positive co-operation;

(f) Local Government Public Accounts Committee: LGPAC receives copies of

quarterly Internal Audit report and examines the Quarterly IA report (including
reports from Auditor General and Commission of enquiry). While examining
the reports, the author of the report (CIA or OAG) shall be present to guide
the LGPAC, since they are authors of the report. The LGPAC shall submit
their report to the Chairperson of the Council, the Committee and to the
Minister responsible for Local Government. Other copies are submitted as per
LGA

(g) Council: The council receives report from executive committee on action
taken/not taken on LGPAC recommendations. These are referred to the
committee responsible for finance for scrutiny for debate and make
resolutions.

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(h) General Public: In dealings with the public, ethical and professional
considerations are of prime importance. The general rule will be for the auditors
to refer any approach by the public to senior officers. Where legislation provides
the public with powers to inspect the accounts, the auditor must be careful to
operate within the terms of the relevant statute and of any departmental
guidelines, particularly as regards the need to keep the audited body informed
and the limitations on the type of information which may be disclosed. Ideally,
LGPAC proceedings will be open to the public and their reports published.

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1.3 THE RISK BASED APPROACH TO PLANNING AND AUDIT

EXECUTION

1.3.1 Introduction
(1) Internal Audit has been defined as: “an independent, objective assurance and
consulting activity designed to add value and improve an organisation’s
operations. It helps an organisation accomplish its objectives by bringing a
systematic, disciplined approach to evaluate and improve the effectiveness of risk
management, control and governance processes.” (Institute of Internal Auditors,
1999).

(2) Management has the responsibility to establish internal control and overall
arrangements for good governance so that its activities are conducted in an
efficient and orderly manner. Internal control comprises the whole system of
controls and methods, both financial and otherwise, which are established by
management to:
(a) safeguard its assets;
(b) ensure reliability of records;
(c) promote operational efficiency; and
(d) Monitor adherence to policies and directives.

1.3.2 The Risk Based Approach to Internal Audit

(1) Managers often expect internal auditors to identify breaches in financial
regulations and to inform them when staff are not following established
practice (the compliance audit approach). Wider benefits can be achieved
when internal auditors take on the more important role of assessing the whole
control environment and its adequacy and reliability in managing risk.

(2) Under this latter approach (the risk-based approach), internal auditors have to
determine whether compliance with financial regulations and other
instructions will be sufficient to adequately mitigate the risks which the
organisation faces to the achievement of the organisation's objectives. If not,
internal audit may make recommendations to management to improve on
internal controls or adopt additional risk mitigation measures.

(3) Furthermore a LG Internal Audit unit does not have adequate resources to do
a 100% audit of every transaction. Therefore the HIA has to decide how best
to determine audit priorities, and where to allocate his relatively scarce
resources.

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(4) The method of determining audit priorities is to carry out an assessment of

relative risk of loss or error in each audit area, of each audit entity, and to
assess the possible value and impact of the loss/error. Those areas which are
considered high risk / high value must receive high priority and an appropriate
allocation of the department’s resources. This is called the risk based
approach to the internal audit of financial transactions.

(5) The steps involved in the risk based approach to auditing can be summarised
as follows:[C4]
(a) Identify key risks and controls – what could go wrong
(b) Prioritise the risks and controls by assessing the importance of each risk
focussing on their likelihood
(c) Assess the effectiveness of the identified controls in addressing risks –
assess control coverage
(6) Risk analysis – evaluate the vulnerability of the existing processes to risk.
This is detailed below.

1.3.3 Risk Analysis

(1) Risk analysis enables the auditor to evaluate the vulnerability of a particular
system or group of systems. It is based on subjective judgment but various
techniques can be used to make the analysis more systematic and, in part,
more objective. Use of them will strongly support the auditor’s judgment on the
priority and frequency of audit. They can also help identify areas of high
exposure which might not have otherwise been identified. The auditor should
document fully all the stages of the risk assessment exercise.

(2) In planning an audit the Head of Internal Audit will carry out an assessment of
Audit Risk that exists in the Local Government being audited. High risk areas
will be subject to audit at least quarterly, whilst low risk areas may be subject
to audit annually. The main factors which increase risk in any single area of
an audit include:

(a) The Volume of transactions - the higher the volume, the higher the risk

(b) The value of sums of money involved -the higher the value, the higher the
risk

(c) The relative complexity [and strength or weakness] of the Systems,

Internal Controls, and Segregation of Duties. Complex or weaker systems
give rise to higher risk

(d) The sensitivity of systems which includes:

i. Systems that are particularly susceptible to maladministration such
as Salaries, Allowances etc. These are high risk
ii. The likelihood of collusion amongst employees. This raises risk
iii. Systems where the capacity of staff is known to be weak [ or there
has been high incidence of new key staff,]. This raises risk

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(e) The relative strength or weakness of the overall control environment within
the Audit Entity particularly with regard to financial management and
analysis of financial performance. A weak control environment raises risk.

(3) The Head of Internal Audit will assess the risk attached to each audit area or
accounting system, in accordance with the table below:

Element Scale of Measurement Risk Weighting Risk Score

(ii) Rating Factor* v=(iii)X(iv)
(i) (iii) (iv)
a) Volume of 0 - 300 1
Transactions 301 - 1000 2 1, 2 or 3
Over 1000 3
b) Value of 0 – 10million 1
Transactions [ 10 – 100 million 2 1, 2 or 3
UGS] Over 100 million 3
c) Complexity of Degree of Complexity 1
Systems Low=1 Medium=2 High=3 2 1, 2 or 3
3
d) Sensitivity of Degree of Sensitivity 1
Systems Low=1 Medium=2 High=3 2 1, 2 or 3
3
e) Control Quality of Control 1
Environment Environment 2 1, 2 or 3
Low=3, Medium=2, High=1 3

Total Risk (R)

Notes:

(a) Risk rating represents the possible impact an element will have on the risk
assessment process.

(b) Weighting factor represents the importance the Auditor attaches to the
particular element of risk. The low risk element being assigned 1 while the
high risk area is assigned

(c) The Auditor will be expected to use his/her professional judgement in the
process of assigning the weighting factor to the elements of risk.

(d) Weighting – After giving a risk rating for each factor, it is necessary to
determine an appropriate weighting for each of the factors. The weighting
given indicates the relative importance/potential impact of each of the risk
factors. For example Sensitivity of Systems(d) may be given a weighting of
3, while Volume of Transactions (a) may be given 1. This indicates that
the factor of Sensitivity is considered to be 3 times more important than
the factor of Volume.

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(4) The auditor should calculate the risk inherent in each audit area by applying the
following formulae:

Risk Index (R) = Ra +Rb + Rc + Rd + Re

Where a - e are the elements of risk

Ra (Risk of element a) = Risk rating of element a X Weighting

Factor of element a
.
.
.
Re(Risk of element n) = Risk rating of e X Weighting Factor of e

(5) Applying the above formula to each system/audit area will result in a ranking of
risks, i.e. the higher the resulting number, the higher the relative risk. In
allocating scarce resources to each audit area [and in deciding on sample sizes
or coverage in each area] priority and emphasis should be given to the high risk
areas.

Example:

The Auditor has been assigned to carry out an audit of a Local Government.
Aware that she is required to use a risk based approach to the audit she
evaluated a number of risk elements and below are her findings regarding the
expenditure area of the audit entity:

(a) There were 250 payment transactions during the audit period.

(b) The total value of all the transactions during the period is UShs. 50 million.

(c) The payment system being used is semi-automated and is not very complex.
She considers it to be of medium complexity. The Auditor is of the view that
a complex system would increase the risk tremendously and has decided to
attach the highest weight to this element.

(d) The Auditor considers that the payments area is a highly sensitive area. She
is also of the view that sensitivity of the system would increase the risk
tremendously and has decided to attach the highest weight to this element.

(e) The auditor’s assessment is that the Control Environment is weak. This
would imply that the audit risk is likely to be high. From her experience,
however, she knows that the Accounting Officer and the Head of Accounts
are very reliable and honest Officers who have served the Local Government
for over two decades without any mismanagement of public funds. She
therefore considers that this element is not likely to have a big impact on the
overall risk of this audit area.

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The risk assessment for the expenditure audit area would result in a score as shown in
the table below:

Element Scale of Risk Weighting Risk Score

Measurement Rating Factor v=(iii)X(iv)
(i) (ii) (iii) (iv)

a) Volume of 0 - 300 1 1 1
Transactions 301 - 1000
Over 1000

b) Value of 0 – 10million 2 2 4
Transactions [ 10 – 100 million
UGS] Over 100 million

c) Complexity of Degree of 2 3 6
Systems Complexity
Low=1
Medium=2
High=3

d) Sensitivity of Degree of 3 3 9
Systems Sensitivity
Low=1
Medium=2 High=3
e) Control Quality Control 3 1 3
Environment Environment
Low=3,
Medium=2
High=1
Risk Index (R) 23

The Risk score of 23 obtained for the Expenditure audit area in the above table is then
compared with that of other audit areas. These Risks are then ranked with the highest
risk being assigned ranking 1, the next highest as 2, etc. Emphasis in the Risk Based
Approach will then be on those areas with the higher scores that have been ranked as
1, 2, 3, etc.

This section has described the process of carrying out a risk assessment to
determine priorities on the audit of a single audit entity. The next section will look at
i. How the same principles will be used to conduct the annual and quarterly
planning, and resource allocation for the IA unit as a whole
ii. How the risk assessment carried out above feeds directly into the detailed planning
of each audit engagement.

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1.4 PLANNING AND BUDGETING

1.4.1 Introduction

(1) Planning is comprised of two distinct elements. The first is Departmental

planning, resulting in the preparation of Annual and Quarterly Work plans and
the Department’s budget. The second is the detailed planning for the audit of
each Audit Entity. The HIA is responsible for both, and the respective
procedures are described below.

1.4.2 Departmental Planning Methodology

(1) Every Internal Audit Unit has a portfolio of Entities to audit. Each of these
Entities has to be audited in accordance with a series of separate audit
programmes.

(2) Part III of the manual sets out all the detailed audit programmes covering the
various classes of revenue, expenditure, assets and liabilities etc. Of course not
all audit programmes are applicable to every audit entity, especially where
cash accounting is applied.

(3) The main planning to be completed at the beginning of the year is to carry out
a comprehensive systematic exercise to determine
(a) Which of the programmes are applicable in which Entities
(b) How frequently each audit programme will be carried out.
(c) The frequency will depend on the risk assessment to be performed on
each entity for each audit area, - as described in the previous section.
Some programmes may need to be completed quarterly, some annually,
some only bi annually.

(4) Having completed the above analysis, the HIA now has the information to
determine audit priorities, allocate staff resources to audits, and schedule the
multiplicity of audits.

(5) This is a demanding exercise and the HIA will need to determine what tools
s/he will need to assist the process. S/he can opt to use an electronic
spreadsheet, or alternatively a large manual planning board, which hangs on
the wall in the office.

(6) Once this planning is complete the HIA will have a clear picture of which audit
jobs are going to be completed when, and by whom. The HIA must also
consider, and if possible book time, for staff training, annual leave etc. If there is
any staff time remaining “unbooked”, the Manager can consider what “special
audits” could be carried out, or what additional training could be useful.

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(7) Based on the above, the HIA can then determine transport and subsistence
allowances for each audit, and any other resources required, and prepare
budgets accordingly. The budgets will also need to cater for the planned training
mentioned in paragraph (6) above

1.4.3 The Annual Work Plan

(1) The annual plan is a document submitted to the Council for approval. Its
purpose is to communicate
(a) The portfolio of Audits within the jurisdiction,
(b) The level of resources required to service the portfolio
(c) The staff resources, and the logistical resources available, and the present
or expected budget
(d) The resource gap if any, including proposals on how this gap could be dealt
with, and the risks /consequences arising if the proposals are not able to be
implemented
(e) A summary of the actual audit jobs that are planned for execution and the
allocation of audit staff thereto
(f) A summary of capacity building that is planned to take place noting any
unmet needs

(2) The Work plan should contain a major appendix comprising the Risk
Assessment of the entire audit portfolio, as described in Section 1.3.3.

1.4.4 Budgeting
(1) The HIA is required to produce the budget for the department. This should
be compiled from four components as follows:

(a) The salaries for the Department’s staff,

(b) Direct costs of executing each audit,
(c) Staff capacity building
(d) Capital/development expenditure

(2) The HIA will prepare the budgets in the format prescribed by the LG Financial
and Accounting Manual.

1.4.5 Quarterly Planning

(1) The Annual Planning exercise described above is a “best estimate” carried
out prior to the commencement of the year. Situations can and do change in
the course of the year, and therefore an updated quarterly plan is produced
prior to the commencement of each quarter, in the same format as the annual
plan. Justification must be provided for any significant changes from the
original annual plan.

(2) The Quarterly plan is submitted to CE for authorisation.

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1.4.6 Planning the Audit for each Entity

(1) An audit engagement refers to the entire audit of an Audit Entity and comprises
all the various audit jobs that need to be carried out to complete the audit.

(2) The risk assessment carried out in section 1.3.3 above needs to feed directly
into the detailed planning of each audit engagement.

(3) The Planning of an Audit Engagement comprises two broad levels:

i. Strategic Planning;
ii. Operational Planning

Strategic Plan

(1) A long term, strategic or cyclical plan is necessary because it is impossible to

audit every aspect of every entity each year.

(2) It is important to have a plan which will ensure that nothing obvious is
overlooked over the long-term cycle of the audit.

(3) Such plans will need to be flexible because, as the audit progresses, fresh or
better information will come to light which will result in a review of the priorities
given to each area of work. This review needs to be a continuous exercise
throughout the audit and the strategic plan altered accordingly.

(4) Comprehensive review of all possible audit requirements can be assured by

preparing a list of all separate audit jobs that exist in the particular entity.

(5) The strategic plan will, thus, contain jobs which must be audited every year and
jobs which will be looked only once or twice over the audit cycle, unless
circumstances dictate that a more frequent review is required.

(6) For most organisations a five year cycle is appropriate. It is likely that the
Strategic Plan will be of a rolling nature and be updated every two or three years
to run for a further five years rather than being a series of discrete five-year
plans.

Operational Plan

(1) When conducting this detailed planning the HIA must take the following
considerations into account :
(a) risk, materiality and priorities on each audit job [ covered in section 5 above]
(b) areas of audit that are significant because of past or anticipated problems;
(c) details of any abnormal circumstances or economic factors that are
expected to affect the LGs performance;
(d) new or changed computer systems and the involvement of the computer
auditor;
(e) changes in accounting requirements (new Accounting Standards) or
legislation;
(f) staffing requirements and availability.

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(2) To be effective the planning and control of any function must follow a cycle, and
audit planning is no exception to this rule. Figure 1 below illustrates the various
and distinct stages in the cycle.

(3) First the Head of Internal Audit must plan the audit work, and the individual audit
jobs, and then conduct it along the planned lines. S/he must then monitor the
success in achieving the planned objectives and, in the light of this, review the
plan in order to begin the cycle again.

Figure 1: The Planning Cycle

Plan

Review
Execute

Monitor

(4) After completing the Risk Assessment for each job, and taking any applicable
factors mentioned above into account, the HIA will prepare an operational
audit plan for the Audit Entity . This will entail:
(a) Deciding which programmes/ jobs are to be carried out
(b) Deciding the number/value of items to be selected for each job. This will
depend mainly on the risk attached to the job,
(c) Determining how much staff time is to be allocated to the job
(d) Completing a standard Audit Job Control Record for each audit
programme to be executed
(e) Recording any other matters that need to be brought to the attention of the
senior audit assistant.

(5) The Operational Plan will comprise the following headings :

A- Name of Entity – Period to be covered
B- The Current Operating Environment [including extraordinary issues that
may impact the conduct of the audit]
C- Summary of all the Risk Ratings [for each audit job]
D- Mandatory Jobs [from the Strategic / Cycle Plan]
E- List of Jobs for Execution this year including Time allocated to each, and
Staff assigned.

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1.5 AUDIT EXECUTION

1.5.1 Introduction

(1) The term Audit Execution refers to the process of carrying out an audit in
terms of the audit plan prepared by the Head of Internal Audit and the briefing
received from him/her. It basically entails carrying out all audit programmes
specified in the Audit Plan. Audit execution is dealt with extensively in the
Part II and Part III, including all audit programmes to be carried out. The text
below is confined to the relevant text relating to the managers responsibilities
for Supervision, Monitoring and Review.

1.5.2 Supervision, Monitoring and Review

(1) The primary objectives of audit review are to ensure that:

(a) the work has provided a proper support for the audit findings and that no
necessary procedures have been omitted nor important conclusions
overlooked;

(b) the work has been conducted, properly documented and the audit report
prepared in accordance with approved Audit Standards, any applicable
statutory or other regulatory requirements and the policies of the Internal
Audit Department; and

(c) Important matters have been or are being reported to the audit entity,
including any significant frauds, irregularities or suspicious circumstances
encountered and any recommendations on internal control, systems
efficiency and accounting methods.

(2) The secondary objectives of audit review are:

(a) to assess the performance and progress from previous reviews of individual
members of the audit team; and

(b) to update the reviewer's knowledge of the client's operations.

(3) In conducting a review, the reviewer should be on the alert for incomplete
verification, inadequate documentation and faulty conclusions.

(4) Review is an essential feature of professional audit approaches and the reviews
performed by all levels of staff must be properly documented in the audit
working papers.

(5) Review points should be drafted so as to provide space for a clearance

comment to be added. All review points must be cleared before the audit report
is signed.

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The nature, timing and participants in the review process will vary from audit to audit
and will be influenced by the following:
(a) The compte the competence and size of the audit team;
(b) the complexity of the client's operations;
(c) the results of audit planning; and
(d) nature of the points arising from the audit.

(7) Reviews should be performed as a continuous process at each critical stage of

the audit to ensure that inefficiencies are minimised.

(8) The nature and depth of reviews will depend upon the seniority of the reviewer.
Generally, the Senior Auditor will review the work of assistants and the Head of
Internal Audit will review the work of the Senior Auditor with a less detailed
review of the work of the assistants.

(9) The Head of Internal Audit should be presented with audit files completed to an
advanced stage in which all significant points are highlighted and outstanding
points listed. In this way he will be able to concentrate his review on the key
issues.

The Head of Internal Audit have the discretion to carry out a more detailed
review, depending on the circumstances.

1.5.3 External Quality Assurance

(1) An external review of quality control and the performance of the Internal Audit
Function will be periodically conducted through the Ministry of Local
Government.

(2) The objectives are:

(a) To provide an independent review of the work performed upon which an

opinion can be expressed;
(b) To monitor compliance with standards and procedures as defined in the
audit manual;
(c) To recognise areas of weakness which require additional procedures;
(d) To develop new procedures; and
(e) To report where inefficient work is being carried out.

(3) Reviews are performed to the level of detail to permit the reviewer to answer:

(a) Am I satisfied that the audit was satisfactorily carried out,

(b) Is there adequate documentary evidence to support the opinion expressed
or did the auditor rely on subjective assurances?; and
(c) Did the reviewer perform a rigorous review or merely read the file?

(4) In addition the review will encompass assessing the quality of planning,
resource allocation, execution and staff management within the department as a
whole.

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1.5.4 Standards of Control Review

(1) The Institute of Internal Auditors have produced Standards for any Quality
Assurance and Improvement Programme. These comprise:
• 1300: Quality Assurance and Improvement Programme;
• 1310: Quality Programme Assessments;
• 1311: Internal Assessments;
• 1312: External Assessments;
• 1320: Reporting on the Quality Programme;
• 1330: Use of “Conducted in Accordance with the Standards”; and
• 1340: Disclosure of Non-compliance.

(2) The Government will take the above standards into account when conducting
their Quality Assurance and Review Procedures.

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1.6 REPORTING

1.6.1 Introduction
(1) Internal Auditors are required under Section 90 to the Local Governments Act to
produce internal audit reports on a quarterly basis. Apart from these statutory
reports, internal auditors should produce reports at the end of each audit
exercise.

(2) The objectives of reporting are to notify management of the councils of the
results of the audit and to make recommendations, where appropriate. These
reports will identify the audits carried out, recommendations resulting from the
audits undertaken, follow up actions on previous audit reports and the audits
planned for the next period.

1.6.2 Stages of Audit Reporting

(1) The Quarterly Report of the Head of Internal Audit is a mandatory requirement
under the Local Governments Act, which must be produced by local governments
mandated to have internal audit units. This Quarterly Internal Audit report is
produced using a three stage process

(a) Audit Findings

(b) Draft Internal Audit Report

(c) The Quarterly Report

1.6.3 Reporting Structure

The diagram below shows the reporting structure and flow of the internal audit
reports. The detailed processes and sample report contents are provided under Part
II of this Manual, Section 2.9.

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KEY ORGANS ACTION TEAMS NOTES

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1. INTERNAL AUDIT DEPARTMENT 4. HEADS OF DEPARTMENTS 1. Discussion of audit findings is to give opportunity
Step1: Prepare audit findings for each head of Step 1: Discuss audit findings with team to affected HODs to explain and defend themselves
department/unit audited. leaders from IA department 2. The Draft report to the CE is meant to give the CE
Step2: Discussion of audit findings with HoDs and Step 2: Where issues are not addressed independent insights into the affairs of the
Head of Finance during discussions of audit findings, ensure department being audited
Step 3: Prepare a draft Internal Audit Report that they are addressed when the CIA is 3. The CE may refer a particular report to the
addressed to Chief Executive in line with the format in discussing the draft report with the CE. There committee on finance or order for special
this Manual. will be no more queries for your department. investigation
Step 4: Discuss the draft report with CE and involve Step 3: For those whose queries are 4. Quarterly reports are prepared in a standard
the CFO and HoD concerned where necessary contained in the quarterly report to council format provided in the manual.
Step 5: A reminder may be written to the CE to address issues raised as soon as you receive 5. Quarterly reports raises only important issues for
address the trivial issues raised in the draft report or the audit reports. Don’t wait for the summon the purposes of overall internal and external control.
they are in included in the quarterly report to council letters from LGPAC to answer queries. Go to Trivial issues are dealt with at draft/administrative
Step 6: Quarterly reports are submitted to Council LGPAC when you are ready with answers. report level
and addressed to Chairperson

2. COUNCIL EXECUTIVE COMMITTEE 5. LG PUBLIC ACCOUNTS COMMITTEE 1. The IA report provides the executive with
Step 1: Receives quarterly internal audit report from Step 1: LGPAC receives copies of quarterly Internal Audit comments on adequacy on financial control and
CIA addressed to the Chairperson report. accounting system in the LG
Step 2: The Executive Committee takes action on Step 2: Examines the Quarterly IA report (including 2. The report of CIA is presented to Council by the
report of CIA after being examined by the LGPAC. reports from Auditor General and Commission of Chairperson not CIA after examination by the
Step 3: The Executive Committee after taking action enquiry) LGPAC
on recommendations of the LGPAC with assistance Step 3: While examining the reports, the author of the 3. The LGPAC report contains recommendations
of the CE reports to Council. report (CIA or OAG) shall be present to guide the arising from the examination of documents and
Step 4: The executive Committee monitors the LGPAC, since they are authors of the report. interviewing of officials concerned
implementation of the resolutions on LGPAC/CIA Step 4: The LGPAC shall submit their report to the 4. Special investigations may be directed by the CE
reports by the CE and reports back on action taken. Chairperson of the Council, the Committee and to the following a request by the Chairperson of Council or
Step 5: The Executive committee may propose Minister responsible for Local Government. Other the Standing Committees
policies and strategies to address re-occurrence of copies are submitted as per LGA Note: The Chairperson does not present quarterly
issues raised in the quarterly reports. report to council before examination byLGPAC.

3. COUNCIL 6. COMMITTEE RESPONSIBLE FOR FINANCE 1. Council receives actions taken on the LGPAC
Step 1: Receive copies of quarterly reports from CIA and recommendations arising from CIA report from
Step 1: Receives report from executive committee on
LGPAC to provide a check to the executive DEC
action taken/not taken on LGPAC recommendations;
Step 2: Receive referred reports to them by Council. May 2. Council shall direct the Chief Executive to take
Step2: Refer the report to committee responsible for
request for special investigation action where it is deemed necessary.
finance for scrutiny
Step3: Prepare recommendations for consideration by 3. the executive shall report back to council actions
Step 3: Receive recommendations from Committee
Council. This may include issues which are not taken on the LGPAC and CIA report.
on Finance after scrutiny
addressed by the executive committee. 4. The committee on finance shall report on
Step 4: Debate and make resolutions
actions not taken

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2. PART II: INTERNAL AUDIT PROCEDURES AND POLICIES

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2.1 INTRODUCTION

2.1.1 Definition of Internal Audit

(1) Internal Audit has been defined as: “an independent, objective assurance and
consulting activity designed to add value and improve an organisation’s operations.
It helps an organisation accomplish its objectives by bringing a systematic,
disciplined approach to evaluate and improve the effectiveness of risk management,
control and governance processes.” (Institute of Internal Auditors, 1999)

2.1.2 Objectives of Internal Audit

(1) Internal audit offers a continuous internal evaluation and advisory service to all
Council’s establishments and Departments. It is specifically charged with reviewing,
appraising and reporting on:

(a) the effectiveness and adequacy of internal controls;

(b) the reliability of financial and other management information;
(c) the effectiveness of the accounting procedures;
(d) the extent to which the Council's assets are safeguarded from losses
(e) arising from fraud, waste, extravagance and mal-administration, poor value for
money and other causes.
(f) The optimal use of Council’s resources.
(g) Compliance with the Local Governments Act and the Local Governments
Financial and Accounting Regulations.

2.1.3 Legal Requirements

(1) Section 90 of the Local Governments Act provides that;
(a) Every District, City and Municipal Council Town Council shall provide for an
Internal Audit Department.

(b) The Head of Internal Audit shall prepare quarterly audit reports and shall
submit them to the Council giving a copy to the Local Government Public
Accounts Committee.

(2) Regulation 104 of Local Governments Financial and Accounting Regulations,

2007, provides that:

(a) Every district, city, municipal or town council shall have an internal audit
unit whose responsibilities are set out in section 90 of the Act and
detailed in the Audit Manual.
(b) All internal audits shall be carried out in accordance with the
requirements of the Act and the Internal Audit Manual shall be
considered as statutory audits required by law.
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2.1.4 The Independence of the Internal Audit Department

(1) Independence is a must in auditing and it is particularly important that the
Internal Auditor has the freedom to select the areas of audit he/she wishes to
investigate and to report thereon to all levels of the Council.

(2) In order to operate effectively the following principal elements of independence

should be present:

(a) The Internal Auditor should at all times have direct access to all departmental
heads, the Accounting Officer and the Council and the organisation’s records
and information.

(b) The Head of Internal Audit should have the right of reporting, without editing,
under his name.

(c) Internal audit should be completely independent of all financial systems

operating within the Council. Involvement in routine Departmental
procedures will inevitably impair the work of the Internal Audit Department

(d) The Head of Internal Audit should have the right of reporting on any aspect
of the financial work including that of the Finance Department

2.1.5 Ethics and Professional Code of Conduct

(1) Internal Auditors like all other professional accountants are required to observe
rules governing ethical behaviour. To this end the Internal Auditors should:

(a) Behave with integrity and honesty

(b) Strive for objectivity with regard to all considerations relevant to the task at
hand.
(c) Not accept or perform work which he/she is not competent to undertake
unless he/she obtains such advice and assistance as will enable him/her.
(d) Carry out his/her audit work with due skill, care, diligence and expedition and
with proper regard to the technical and professional standards
expected of him/her.
(e) Conduct him/herself with courtesy and consideration towards all with I whom
he/she comes into contact during the course of performing his/her work.
(f) Confidentiality shall be upheld.

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2.1.6 Qualities of the Internal Auditor

(1) Internal Auditors should have the following qualities:

(a) Relevant accounting qualifications to be able to grasp the financial information

provided.
(b) Adequate relevant experience to be able to independently and competently carry
out her/his duties.
(c) High integrity and credibility.
(d) Innovation and tact to ensure that he/she copes with any unique situation
that may arise.

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2.2 OVERVIEW OF THE AUDIT PROCESS

The following diagram outlines the process for undertaking an internal audit of a Local Government. At this
overview level, there are 10 steps in the process. For each step, a brief description is given of the related
techniques, information sources and documents used in the audit.
Audit Task Audit Technique/ Information source/ Documents etc.

1. Head of Internal Audit directs audit to be

Internal Audit Strategic and Annual Plans
undertaken in accordance with Internal Audit Plan

2. Selected Auditor advised on the audit

requirements including the type of testing to be
undertaken and the and test volumes. (NB this Management direction and supervision
information may exist in the Audit Control Files
P per previous Audits, or in the Audit Programme).
L
A 3. Auditor reviews related Permanent, Control
N and previous Audit Working Papers Files for Main Audit Permanent and Control Files and
N background, points carried forward from previous previous Audit Working Papers File
audits etc.
I
N
4. Auditor collects blank Audit Programme for the
G audit to be undertaken together with appropriate
Working Paper templates (Job Control Record, Audit Manager/ Stationery / Computer
Audit Report Index, Points for Head of Internal
Audits Attention, Points for Next Audit)

5. Auditor arranges necessary appointments with

Relevant Departmental Head, and subsequently
with relevant officers in order to commence the Auditee
audit and obtain necessary information,
documents etc.

6. Auditor carries out the planned audit and Observation, Interview, Inspection, Audit
completes relevant Audit Programme, undertakes Programme, Audit Sampling , Audit Testing,
and documents tests and reviews undertaken Supporting working Papers/ Schedules
E
X
E
C 7. Auditor completes the Audit and prepares the
Summary of Findings, Audit Conclusions ,
U Audit Working Papers file, including various
Audit Recommendations, Points for Head of
Working Paper Templates, all of which should be
T Audit, Points for Next Audit , Supporting
cross referenced to supporting working papers
Working Papers
I and schedules.

O
N
8. Audit Review by Senior/ Principal Auditor and/
or Head of Internal Audit

R
E 9. Auditor drafts Audit Report in conjunction with
Senior/ Principal Auditor and/or Head of Internal Discuss and Agree with Auditee
P Audit
O
R
T
I 10. Head of Internal Audit reports to PAC /
Audit Report, Points for Next Audit
N Executive Committee/ Council

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The following Sections of this Manual describe the related audit processes, techniques,
and documents. The detailed audit programmes / checklists that are required to be
completed are contained in Part III.

Further clarification may be obtained directly from the Head of Internal Audit.

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2.3 AUDIT PLANNING AND AUDIT RISK

2.3.1 Audit Planning

(1) The Head of Internal Audit is responsible for all planning relating to audit activities.
This will include the preparation of strategic long term plans and annual plans which
identify essential tasks to be performed annually and cyclical work, or areas which fall
due for audit during the year. These plans will be given to Audit Staff and fully
explained prior to the commencement of the audit

(2) Essential tasks comprise matters of such fundamental importance that they require audit
attention every year. The audit plan will provide for completing all the essential tasks
each quarter.

(3) Decisions about the range of matters to be reviewed annually and the nature and extent
of the review are of critical importance in the effective application of audit resources.
Extensive annual checking of systems and transactions either to prove ledger figures or
to guard against relatively small loss by fraud must seriously reduce the resources
available for other important aspects of the audit.

(4) A list of essential tasks will be prepared for each department of the Council taking into
account local circumstances, and will be completed at every audit. Essential tasks will
include, as a minimum, the following aspects of the audit:

Income:

(a) Test check the accuracy of the records in respect of the main areas of income to
ensure all income received or due has been recorded. Make use of various sampling
techniques as appropriate as indicated in the respective checklists;

(b) Review substantial items written off; and

(c) Review arrears and ensure that appropriate recovery action has been taken.

Expenditure:

(d) Test check the accuracy of the records in respect of the areas of expenditure being
examined this year. Make use of various sampling techniques as indicated in the
respective checklists, and always be on the look out for unusual or large payments.

Cash and Bank

(e) Conduct cash counts, and reconcile cashbooks with bank statements.

Assets and Liabilities

(f) Verify all assets and liabilities.

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General:

(g) Conduct an analytical review of income and expenditure in relation to last years
figures and the current year budgets, and obtain reasonable explanations for
unusually large variations.
(h) Check that the financial statements have been properly drawn up from the trial
balance, and that the trial balance has been correctly extracted from the books of
account.

(i) examine and clear all notes arising from the overall review which must be dealt with at
the audit

(j)Ensure that items marked for attention this year contained in last years working papers
are examined.

(5) It may be necessary to add to the essential task list at certain Audit Entities. If so you will
be advised by Audit Management. Additions will be kept to a minimum and it will often be
preferable to review problem aspects of the audit annually.

2.3.2 Audit Risk

(1) In planning an audit the Head of Internal Audit will carry out an assessment of Audit
Risk that exists in the Local Government being audited. High risk areas will be subject
to audit at least quarterly, whilst low risk areas may be subject to audit every year. The
main factors which increase risk in any single area of an audit include:

(a) The value of sums of money involved. Generally the higher the value, the higher the
risk
(b) The relative strength or weakness of Systems, Internal Controls, and Division of
Duties. Weaker systems give rise to higher risk

Subsidiary risk factors are:

(a) Systems that are particularly susceptible to maladministration such as Salaries,

Allowances etc, are high risk
(b) The likelihood of collusion amongst employees raises risk
(c) Systems where the capacity of staff is known to be weak [ or there has been high
incidence of new key staff,] raises risk
(d) The relative strength or weakness of the ‘oversight function’ – particularly with
regard to financial management and analysis of financial performance – exercised
by Council. Weak oversight capability raises risk
(e) Management’s commitment to ethics and integrity. Low commitment raises the risk
environment.

(2) The Head of Internal Audit will assess the Risk attached to each audit area /
accounting system, and allocate his audit resources accordingly, so that the highest
risk areas receive the most extensive coverage

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2.3.3 Audit Planning Outputs

(1) After completing the Risk Assessment, the Head of Internal Audit will prepare an audit
plan for the Local Government. This will comprise considering all the standard audit
programmes in the manual [ see Part III ], deciding :

(a) which programmes are to be carried out

(b) the number/value of items to be selected
(c) completing a standard Audit Job Control Record – [W/P – I] for each audit
programme to be executed [ See Annexes for the standard format ]
(d) Any other matters that need to be brought to the attention of the auditor in charge.

2.3.4 Audit Files

(1) Introduction

(a) A sound system of filing and of working papers is essential for an efficient Internal Audit
Section.

(b) An auditor must be able to produce audit evidence to support his report. Unless care is
taken when filing documentation this may be difficult.

(c) Examples of all the key forms identified in this section are provided as annexes to this
manual.

(d) The following minimum required Internal Audit files must be maintained:

i) Permanent File;
ii) Control File; and
iii) Current Audit (Working Paper) File.

(2) Permanent File

(a) As the name suggests, this contains all permanent, background data on the Audit Entity.
Sections should include:

i) Audited Accounts: a complete set of audited accounts in date order for each
department;
ii) Reports: copies of all audit reports, any responses, etc.;
iii) Correspondence: all correspondence with the Audit Entity on matters other than
the management letter;
iv) Structure and Systems: details of the operational structure of the Audit Entity,
names of key personnel, systems specifications, etc. These should be updated
as required;
v) Constitution: a copy of the legislation setting up the Audit Entity, any joint-
venture agreements, etc. (i.e. the legal framework within which the Audit Entity
operates); and
vi) Minutes: where copies of minutes are routinely circulated to the auditor they can
be filed here.

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(3) Control File

(a) The Control File should contain the Head of Internal Audits control records and audit
plans, audit job allocations and Audit Job Control Records. Please refer to the Annexes
for samples of appropriate forms.

(b) This file fulfils a number of uses:

i) Summary: of the five year audit plan;

ii) Before the audit: it details what has been planned;
iii) During the audit: it acts as a control on progress and can give early warning of
potential delays; and
iv) After the audit: it is a permanent record of who did which job, when and how
long they spent on it.

(4) Current Audit (Working Papers) File

(a) There will be one of these files for each year of audit.

(b) As each audit programme [audit job] is completed the relevant working papers will be
placed on the file. A set of five standard working paper forms [ WP/I – WP/IV] are
contained in the annexes, and they should all be completed to guide every individual job
assigned

(c) When the audit is completed, the file will be handed to the senior manager responsible for
the review [ usually the Head of Internal Audit ]

(d) At this stage, the file will consist of the following Working Papers, except for schedules 1,
2, and 3, which are prepared later.

Index of a set of Working Papers:

Ref. CONTENTS
1 Findings Summary – Entire Audit
2 Head of IA Review - and Subsequent Work
3 Points for Head of Internal Audit’s Attention
4 Points for Next Audit
5 Audit Plan, including all the relevant job control schedules [WP/1]
6 Audit Administration

A-G [Note 1] Job 1 – Working Papers [ Note 1]

A-G Job 2– Working Papers
A-G Job 3 - Etc
Each job will contain the following standard working papers [Note 2]
WP/I Audit Job Control Schedule / Audit Programme
WP/II Audit Test Schedule
WP/III Exception/Error Analysis
WP/IV Findings Summary – each Audit Programme
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Note 1
Definition: each “Job” comprises the planning and execution of ONE audit
programme [eg Procurement audit for goods, works and services – C3] the index of
all the audit programmes is provided in the table at Section 3.2. They are numbered
between A – G. . Each job must be given the same number as its related audit
programme number

Note 2
Standardised templates have been developed for all working papers WP/I – W/P IV.
Specimens are provided in the Section 2.8.

(e) The audit team leader will complete all working papers, except for No. 1, 2, and 3. The
Head of Internal Audit then will complete the review of the Audit File and return it to the
audit team leader of the audit with his review points. The audit team leader will follow up
and clear all the review points, conducting further work if required. It is often expedient for
the two individuals to sit together to clear the points.

(f) Once all work is completed / queries cleared, the Head of Internal Audit will prepare the
Findings Summary for the entire audit [WP/F] and then draft out the audit report. This will
be discussed with the auditor before being discussed with the Council officer(s) in draft
format before its formal issue.

(g) A copy of the audit report will be added to the front of the file which is then complete. The
Head of Internal Audit has thus been responsible for the completion of sections I, 2, and 3
of the Working Papers

(h) The file shows the depth of audit work and audit evidence on each job. It shows that this
has been reviewed by senior management and forms the basis on which the
management letter is based.

(5) Techniques of Preparation

(a) Audit working papers must be maintained on a standard basis using standardised
stationery. The following techniques should be observed in preparing audit working
papers:

i) Each working paper must have a heading, comprising;

• the name of the audit entity ;
• title or purpose of the working paper; and
• the period covered by the audit.

ii) Each working paper must be initialled and dated by the auditor concerned;

iii) Each working paper must contain an index or reference number;

iv) Each working paper must bear the initials of the reviewer and the date of review;

v) Standardised tick marks must be used throughout. Where additional tick marks
be necessary, there should be a note of explanation of their meanings. Standard
ticks and marks are documented in Section 2.6.5; and
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vi) All sources of data must be clearly identified.

(b) Although the individual audit working papers are important in themselves, they must be
analysed, interrelated and presented in summary form to facilitate audit review,
decision-making and audit reporting, as well as future reference.

(6) Indexing of Working Papers

(a) All individual working papers must be indexed as soon as possible and maintained at
all times in the working paper files, except when actually being used for audit work.

(b) The first working paper in each area must be indexed in the upper right corner with the
index. The mandatory standard indexing system for all the audit programmes is shown
in Part III of this Manual (Standard Working Papers Index).

(7) Cross Referencing of Working Papers

(a) All working papers developed on the audit engagement must be cross-referenced as
this is vital to the documentation of the audit work done and significantly aids in
reviewing the audit work. To the extent practicable, all financial data included in an
audit working paper should also be cross-referenced to all other working papers where
the same information is shown.

(b) The most common cross-referencing situation should occur when a specific figure on a
working paper is supported by a detailed analysis of the amount on another working
paper.

(c) For example, assume lead schedule B-2/1 shows total rates income of 5,000,000
shillings for the year, and working paper B2/17 lists rates income by month for the
period under audit and totals 5,000,000 shillings. A cross-reference reflected on B2/1
should be made in red to the left of the 5,000,000 shillings. The corresponding cross
reference on figure B2/17 should be made to the right of the 5,000,000 shillings.

(8) Security of Documents

(a) Ensure that papers in the files of the auditee are copied and placed in the audit files. All
documents with a privacy or security classification, whether generated within or outside of
the audit office, should be controlled in strict accordance with the standing procedures for
such items.

(b) Auditor's should regard copies of the Audit Entity's documents as private, whatever their
security classification, and they should not be released or discussed outside of the audit
office, except with the express prior permission of the responsible officer. Similarly,
unpublished information relating to the Audit Entity requested by third parties should not
be disclosed by the auditor. Such a request should be referred to the Audit Entity to deal
with directly.

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(9) Retention and Disposal of Accounting Records

(a) Keeping documentation for longer than needed is inefficient and expensive. It is normally
reasonable to destroy audit files six years after closing. Other audit documents can be
destroyed in accordance with Section 67 of Local Governments (Financial and
Accounting) Regulations, 2007.

(b) Auditors should always be on the alert to the need for longer retention of documents in
these and similar circumstances.

(c) In unique circumstances it may be necessary for the Internal Audit office to arrange that
vouchers or other accounting documents be kept by the Audit Entity for longer than their
normal policy. This situation might arise, for example:

i) Where there is a risk of a belated claim; or

ii) Where the voucher relates to a long running contract. The period of retention would
depend largely on whether contract ledgers were kept in sufficient detail to enable
the clearance of final accounts in the absence of earlier claims and interim
payments.

(d) The Head of Internal Audit will be responsible for reviewing the retention and disposal
requirements for audit documents, and advising on special safeguards needed for the
destruction of security classified documents.

(e) Special consideration may have to be given to arrangements for the retention of computer
documents, including error and other control reports and console logs, and of data held
on magnetic media.

(f) The work of the auditor is based on accounting records and since the audit files are a
result of such work, then their destruction should be in conformity with the existing laws
relating to destruction of records.

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2.4 AUDIT EXECUTION

2.4.1 Audit Testing and Sampling

(1) Introduction

(a) The objective of an internal audit engagement is to provide an independent and objective
level of assurance to assist the Local Government to achieve its objective.

(b) The techniques employed are based on an assumption that examination of a portion of
the accounting entries or other data will reveal the same characteristics as would an
examination of all items.

(c) Testing is broadly divided into three areas: (a) compliance testing and (b) substantive
testing, for which various sampling methods may be applied, and which are discussed in
this section. Specific sampling guidance for each audit is also provided in the Audit
Programmes Manual Annex, and also (c) analytical reviews.

(2) Compliance Testing

(a) Compliance tests are tests to determine whether the prescribed accounting systems and
internal controls actually exist and are being complied with. An agreed number of
transactions are selected for checking / testing to ensure that all prescribed systems,
procedures and processes have been adhered to. The method of selecting the
transactions for checking can be by systematic sampling, random sampling, statistical
sampling, and stratified sampling. These techniques are described below.

(b) Conclusions will be drawn from this on the reliability or otherwise of the system. This will
in turn lead to decisions with regard to the level of substantive tests required.

(3) Substantive Testing

(a) Substantive tests are tests to obtain evidence as to the validity and propriety of the
accounting treatment of transactions and the correctness of balances shown in the
accounting records; in addition the legality and prudence of the financial operations or,
conversely, the nature and extent or errors and irregularities are examined. Substantive
tests mainly comprise the detailed verification of particular transactions and balances. ..

(b) A number of different forms of sampling can be used for both substantive and compliance
testing: random sampling, stratified sampling and statistical sampling (Discovery and
Monetary Unit).

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(4) Random Sampling

(a) Items selected are drawn at random from the entire population so that each item has an
equal chance of selection. Random sampling works best when each of the items in the
population bears some sort of serial number. A table of random numbers, or a random
number computer program, should be used to select the items. Alternatively select a
Uganda Shillings note, take the last digit of the serial number to establish the starting
point, and select every “nth” item thereafter. [ Most tests in the IA programme manual
stipulate every 10th item ] In rare occasions where this is not stipulated, calculate the “Nth”
item interval by taking the total field size - by specified sample size.

(5) Stratified Sampling

(a) Where transactions or records vary in materiality or relative risk, they may be grouped
and each group sampled separately.

(b) Thus, items could be grouped: below USh100,000, USh100,000 to USh1,0000,000 and
over USh1,000,000 with differing sampling methods used for each.

(6) Statistical Sampling

(a) Where the Council has large transaction populations, statistical sampling may be used
and advice will be given to the auditor in such circumstances by the Head of Internal Audit
or Principal or Senior Auditor.

(b) Sampling to be applied

i. Within the standard Audit Programmes contained in Part III sampling is mainly based
on transactions representing up to 80% of the value of, for example, expenditure. This
is known as the Pareto principle of distribution, such that in this case approximately
20% of the number of transactions will represent 80% of the value of all transactions.
This is commonly called the “80/20 rule or principle”. Where this can be achieved, i.e.
there are not a large number of transactions; the auditor should follow the sampling
levels as directed in the specific audit programme.

ii. However, in cases where (a) there are potentially a large number of transactions, (b)
the transactions are low risk/low value, the Head of Audit shall advise on the test
sample volume and method of selection. In case (a) statistical sampling may be
appropriate, whilst in case (b) tests may, for example, be limited to an analytical
review for reasonableness.

(c) Analytical Review

i. Analytical review procedures are substantive tests of financial information made by a

study and comparison of relationships among data.

ii. Analytical Reviews should be undertaken under the direction of Internal Audit
Management, usually at the commencement of an audit. They are usually undertaken
as part of the audit planning processor and/ or in conjunction with ongoing audits.

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iii. The objectives of analytical reviews may be several fold, but in essence an analytical
review compares data (which may be financial or non financial) between periods, for
example the value of debtors values, manpower figures, collection statistics,
stockholding periods etc. As such there is no definitive procedure in undertaking such
a review; however, general guidance is given in the Audit Programmes Manual
Annex.

2.4.2 Audit Evidence

(1) Introduction

(a) Audit evidence comprises a combination of documentation and information obtained, or

inspected, in executing audit programmes and in arriving at the conclusions on which the
audit report is based.
(b) Sources of audit evidence include the accounting systems and underlying documentation
of the audit entity, the tangible assets, management and employees, customers, suppliers
and other third parties who have dealings with, or knowledge of, the entity’s business.

(c) Relevant audit evidence must relate to the general and specific audit objectives.
Evidence which is not related to the audit objectives should not be collected.

(2) Obtaining Audit Evidence

(a) Audit evidence is obtained by carrying out audit tests which should be classified
according to their primary purpose.

(b) Evidence can either be substantive or compliance in nature – as outlined in section 2.4.1
above.

(c) Substantive evidence is that which provides direct assurance about completeness,
existence, etc. and which the auditor gathers to form his opinion.

(d) Compliance evidence is used to enable the auditor to make assessment of the
effectiveness of internal controls and, thus, reduce the extent of his substantive testing.
Substantive testing must always be carried out.

(e) The weight attached to the two types of evidence depends on which audit approach is
selected for each area of audit work. There are two recognised approaches:

i) Direct Substantive Testing: under this approach the auditor reaches his
opinion on the accounts by obtaining evidence direct from his substantive tests.
Two examples [of many] are verifying the bank reconciliation with the bank
statement, or physically inspecting an asset that has been purchased ; and

ii) Systems Based Compliance Audit: under this approach the auditor seeks to
obtain the required level of assurance by first establishing that an effective
system of internal control is operating, by evaluating and compliance testing
relevant internal controls. Two examples are testing the system of
receipting/banking, and the system of purchasing and payment of
goods/services. Once satisfactorily completed the amount of substantive testing
can be appropriately reduced
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(f) Generic techniques of audit testing fall into the following broad categories:

i) Inspection: reviewing or examining records, documents or tangible assets.

Inspection of records and documents provides evidence of varying degrees or
reliability, depending upon their nature and source. Inspection of tangible assets
provides reliable evidence as to their existence, but not to their ownership, cost
or value;

ii) Observation: looking at an operation or procedure being performed by others

with a view to determining the manner of its performance. Observation provides
reliable evidence as to the manner of performance at the time of the observation
but not at any other time

iii) Enquiry: seeking relevant information from knowledgeable persons inside or

outside the audit entity, whether formally or informally, orally or in writing. The
degree of reliability that the auditor attaches to evidence obtained in this manner
is dependent on his opinion of the competence, experience, independence and
integrity of the respondent; and

iv) Computation: checking the arithmetical accuracy of accounting records or

performing independent calculations.

(3) Appropriateness of Audit Evidence

(a) Appropriateness of evidence depends on the source of the evidence and the
circumstances under which it was obtained. The following general presumptions are
applied:

i) Documentary evidence is more reliable than oral evidence;

ii) Evidence obtain from independent sources is more reliable than that from the
Audit Entity; and

iii) Evidence originated by the auditor by such means as analysis, testing and
physical inspection is more reliable than evidence obtained from others.

(4) Sufficiency of Audit Evidence

(a) The auditor is required to obtain sufficient relevant and reliable evidence. In all
circumstances it will be a matter of judgment as to what constitutes sufficient relevant and
reliable audit evidence.
(b) Further influencing factors are:
i) Knowledge of audit entity;
ii) The degree of risk of misstatement through errors or irregularities;
iii) The nature and materiality of items in the financial statements;
iv) Experience as to the reliability of the management, staff and accounting records;
v) The financial position of the audit entity;
vi) Possible management bias; and
vii) Persuasiveness of the evidence.
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(5) Techniques for Obtaining Substantive Evidence

(a) The major sources of substantive audit evidence are:

i) Direct Personal Knowledge;

ii) Physical evidence
iii) Re-performance
iv) External Evidence;
v) Internal Evidence;

(b) Direct Personal Knowledge should be used as it is the most reliable source of
substantive evidence, however in some occasions the auditor may use less reliable
sources in the interest of economy and efficiency.

(c) Use Physical evidence to achieve or contribute to the substantive objectives for balance
sheet items on accounts prepared on an accruals basis:

(d) For physical inspection to be effective, the auditor requires sufficient knowledge of the
Audit Entity to tell if the item under examination is what it is said to be.

(e) Re-performance of accounting routines contributes to the substantive objectives of

verifying the measurement of receipts and payments and valuing assets and liabilities on
a balance sheet.

(f) In some cases, re-performance may also provide evidence to contribute to the existence
and completeness of balance sheet items. For example, checking a list of debtor
balances will help to verify that no items have been omitted or counted twice in arriving at
the balance sheet figure for debtors.

(g) External evidence

i. External evidence originates from outside of the audit entity and includes
statements made to the auditors by third parties.

ii. External evidence is generally less reliable than direct personal knowledge but
evidence obtained directly from third parties is more reliable than that obtained
from within the body.

(h) Internal Evidence

Internal evidence originates from within the audit entity. It is less reliable than direct
personal knowledge or external evidence, but is the most plentiful evidence available and
can be obtained with relatively little effort. This evidence consists of documentary
evidence such as accounting records, sales invoices and statement's by the Audit Entity's
staff.

(i) Techniques for Gathering External and Internal Evidence

i. The techniques applicable for obtaining both external and internal documentary
evidence are: vouching and scrutiny. Confirmation and enquiry are used for obtaining
statements from third parties and the Audit Entity's staff.

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ii. Vouching: Vouching consists of validation by means of examination of supporting
documentary evidence. Vouching can contribute to any of the substantive objectives
for transactions.

iii. Scrutiny: Scrutiny consists of a detailed review of information or financial data in

order to discover significant or unusual items. This includes the examination of a
ledger to identify high vale items or items which originate from an unusual source,
scrutiny of invoices for high value items, scrutiny of stock listings for either slow
moving items or items with a high cost per unit.

iv. Confirmation and enquiry: Confirmation and enquiry are the basic techniques for
obtaining evidence:

i) Direct from Third Parties: Such evidence is used to establish the

existence and ownership of either assets or amounts due from third parties
shown on balance sheets. For example: cash at bank (by obtaining a bank
certificate) or debtors (by a debtor’s circulation);

ii) From Staff of the Audit Entity: Statements or representations from

staff of the Audit Entity represent the least reliable source of substantive
evidence and must be corroborated by other types of evidence.

(6) Techniques for Obtaining Compliance Evidence

(a) Compliance tests are those tests directed at obtaining evidence that control procedures
have operated adequately throughout the period of audit.

(b) Observation: Observation should be used together with a different technique since it
only gives evidence about the activity observed at the time of observation. Staff that are
under observation tend to perform more effectively when they know that they are being
watched. Observation can only be used to obtain compliance evidence. It is not
appropriate for substantive testing.

(c) Interview: Interviewing the management and employees of the Audit Entity should be
used in compliance testing with care as it does not provide particularly reliable evidence.

(d) Re-performance: Use this technique in circumstances where it is possible to re-perform

the original control. For example, reworking a bank reconciliation to make sure that it
was done properly.

(e) Vouching: Vouching consists of validation by the examination of supporting

documentary evidence.

(f) Conclusion

In conclusion, only limited assurance can be obtained from compliance testing, which
often provides negative evidence; for example the auditor can usually prove that a control
did not operate but cannot prove that it did.

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(7) Regulatory Audit

(a) Regulatory audit is the part of the audit which tests whether the rules of the Audit Entity
have been followed and to confirm that a Audit Entity is acting within its statutory powers.

(b) Regulatory audit uses sampling and other techniques to test whether there is/ are a large
number of errors and/ or fraud within the Audit Entity

(c) The extent of Regulatory audit is based on the results of systems audits. Where
systems are strong and are followed the level of regularity audit can be reduced. Where
procedures are weak and little confidence can be placed in the controls more extensive
regularity audit will be necessary.

(d) Regulatory audits are usually based on audit programmes which do the following:

i) Test whether the rules of the (standing orders, financial regulations, stores
instructions, etc.) have been followed and, thus, whether income, expenditure
and the assets of the Audit Entity have been dealt with properly. Such testing is
normally carried out through:

Vouching: ensuring that each voucher complies with a set of standard criteria;
Extension: ensuring that multiplications are correct;
Casting: ensuring that summations are correct; and
Comparisons: with norms.

ii) Test that no significant level of errors have occurred;

iii) Test that there are no significant frauds or other irregularities; and
iv) Test whether all activities of the Audit Entity fall within its powers.

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2.5 OBSERVATION AND INTERVIEW

2.5.1 Introduction

(1) This section addresses techniques for observation, interviewing and inspections. It also
covers steps that an auditor must take when some form of irregularity is suspected or
identified as having taken or is taking place.

(2) The auditor must take care when observing or interviewing suspects, and ensure that any
evidence obtained is admissible in court and that the police's chances of gathering
evidence by premature action are not compromised.

(3) In such circumstances the Head of Internal Audit or Audit Management must be alerted,
and direction will be given to the auditor in such circumstances relating to the necessary
actions to be taken, including notifying the appropriate authorities.

2.5.2 Observation

(1) Observation takes two forms: passive and active.

(a) Passive Observation means remaining in one place whilst observing an individual's
activities. For example, this could be observing a revenue collector. To be successful
the auditor must have a valid reason for being where he is and, preferably, be
unknown to the individual. It is possible to ask people to assist in observation where it
is felt that the auditor cannot do it himself; and

(b) Active Observation is where the auditor follows a person suspected of malpractice.
This will usually be removing some of the Audit Entity's property or claim wages,
bonus or overtime for periods not actually worked.

(2) The general rules for observation are:

(a) Where possible observation should be done in pairs;

(b) A record of the observation should be kept all the time, if at all possible;
(c) This record must have the time it covers, dates, mileage readings (if appropriate), etc.
It must be signed by the auditors immediately each page is completed. There should
be no gaps on the paper. The original record should be retained, no matter how
rough it is, as it is this, not a fair copy, which will be required in evidence; and
(d) If spotted by the person being observed try to avoid explanations and leave at once or
conduct an interview.

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2.5.3 Interview
(1) Introduction:

Interviewing is a key skill required of every auditor. Interviews where fraud is

suspected require especially careful handling and should always be referred to the
Head of Internal Audit for advice before any action is taken.

(2) Before Interview:

(a) Familiarise yourself with the topic of the interview and the interviewee. This
includes finding out about the interviewee's post, and his or her responsibilities,
previous relations with Internal Audit and attitude towards Internal Audit.

(b) Agree the time, place and estimated duration of the interview with the interviewee.

(c) Prepare your questions, after first having clarified your objective in proposing the
interview. This requires writing them down, or at least writing down some indication
of what you want to say.

(d) You should not normally read the questions out verbatim at the interview, so it is not
worthwhile drafting out carefully worded questions. It is much more important to
have an understanding if what information you need to acquire, and of how it
relates to the problem that you are working on.

(e) Apart from any other considerations, this comprehension of background data will
allow you to recognise the need for supplementary questions, and to frame them
during the interview.

(f) It is helpful to anticipate answers or sets of possible answers, so that you are
forearmed with the necessary supplementary questions. But be careful not to
spend too long in developing these supplementary questions as the interviewee
may not give the answers you expect.

(3) Opening the Interview

(a) Establish a rapport as soon as possible. This is largely a matter of personal style
and experience. The best guidance is to act naturally and politely, and proceed as
promptly as is appropriate to business. Unless you already know each other, you
will need to introduce yourself and confirm the identity of the person you are
interviewing.

(b) It may be appropriate to indulge in preliminary informal conversation, especially if

the interviewee is someone you know, or is relatively junior. This may be less likely
to be appreciated if the interviewee is a Senior Manager for example.

(c) In order to get the maximum information from the interviewee, sit so that you can
see his or her face and expressions easily. For example, avoid sitting so that the
interviewee is between you and the window or other strong light.

(d) Start the interview by making its purpose explicit, and explain how you intend to
conduct the interview.
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(e) Set an appropriate tone. Be courteous yet businesslike, be friendly yet firm, and
give the interviewee the opportunity to voice any uncertainties. For example, you
could ask "is that alright?" after outlining the purpose of the interview.

(4) During the Interview

(a) Listen. A good interviewer should be spending close to 90% of the time listening,
not speaking. At the same time, do not distract the interviewee by, for example,
fidgeting, fumbling with papers or looking out of the window.

(b) In addition, the auditor should remember it is their interview. They should be in
charge and they should ensure that the interview remains on the topics that need to
be covered for the audit in progress.

(c) Sympathise with and encourage the interviewee. Whenever possible indicate that
you agree or at least understand the interviewee's point of view, using brief
comments ("I can understand that", "that’s right" or "yes" for example) or body
language (nod or smile, for example).

(d) Likewise give credit where you can, for example by saying "that is a good idea" or
"that is what I should have done, too".

(e) Another powerful way of getting people to say more than they already have is to
employ silence. When the interviewee stops speaking, do not rush in with your own
comments. Just smile or nod and wait for him or her to continue.

(f) You will normally need to take notes. And you will often need to be analyzing the
interviewee's answers as they are given, in order to see whether any
supplementary questions are necessary.

(g) If you find (or know in advance) that you are taking a long time doing these things,
and generating what may appear to be interviewee to be awkward silences, tell the
interviewee what is happening, and ask him or her not to worry, but to bear with
you.

(h) When taking notes, do it openly, and keep them to be bare minimum necessary for
your purposes. Do not try to take notes verbatim in the normal course of things.

(i) Your questions should be open in the sense that the form of the questions should
not restrict or prejudge the answers which the interviewee may consider. Avoid
questions which limit answers to yes or no ("do you record the exact time of your
arrival?")

(j) Avoid questions which impose a choice between two options ("do you sign before
or after you check?") And avoid leading questions ("presumably you record the
exact time you arrive?"). The best way to phrase questions is to start them with
words like how, why, when, what.

(k) When asking questions, do not have a suspicious, accusatory or apologetic tone or
attitude. Be neutral.

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(l) If the interviewee gives an answer which does not fit the question you were trying to
ask, the best way forward is to say that you must have asked the question
unclearly. Do not say "you have answered the wrong question" or "you were not
listening to the question".

(m)It is often beneficial to summarise the information obtained on one topic before
moving on to the next. Recap in your own words what you think you have been
told. This serves to reassure the interviewee that his or her message is getting
across, and it confirms that you have understood properly.

(n) If it turns out that you have taken the wrong meaning, the preference is to accept
the blame, rather than to blame the interviewee for not being clear.

(5) Ending the Interview

(a) Make it clear that the interview is at an end, and make the way forward explicit.
This includes summarising the ground covered, checking to see whether the
interviewee has anything further to add and agreeing what you will do and what,
if anything, the interview has agreed to do. Finally, thank the interviewee for his
or her time and help.

(6) After the Interview

(a) It is necessary to go over your notes to make sure they are adequate. Are there
any parts which you can read now, but may not be able to decipher in a few
days time, or which other file reviewers will not be able to read? If so, clarify
them.

(b) Similarly, clarify any abbreviations which may cause puzzlement in the future.
You should not normally need to type up notes, or to rewrite them. If this turns
out to be necessary, it will be using up valuable time, and you need in the future
to take a little longer time taking the notes more legibly in the first place, so that
only minor amendments are necessary.

(7) General

Where the person is functionally illiterate, the interviewer should have an independent
third party present who can read any record, statement, etc. and agree them as
accurate records of the proceedings.

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2.6 AUDIT TICKS AND MARKS

2.6.1 Introduction
(1) During the course of an audit, the Auditor collects a lot of information. The information
collected is the basis for the opinion the Auditor will express.

(2) The information collected will, however, not help the Auditor to form an opinion unless they
are verified. The fact that the data collected has been verified should be carefully described
on the audit working papers. This should be done by the use of specific symbols which in
audit language is called “ticks and marks”.

(3) These “ticks and marks” are odd and distinctive characters which have special meanings to
the Auditor using them. The purpose of this chapter is to standardize the “ticks and marks”
used by the internal auditors in an Audit Entity so that they are commonly used and
understood by them.

(4) Accordingly, a simplified regime of “ticks and marks” is introduced in this manual.

2.6.2 Marking Records

(1) In marking books and records the Internal Auditor should make every effort to avoid untidiness.
Ticks and marks should be neat and legible. On no account should a tick cover or partly cover
a figure, nor should it be placed in such way as to confuse a figure.

(2) If an amount is ticked in error, the incorrect tick should be neatly circled and when accuracy of
the entry is finally ascertained, a second tick should be made. A fine – point ball pen is the
best instrument to use for audit ticking.

2.6.3 Additions, Corrections and Erasures

(1) Internal Audit staff should not make any additions, corrections or erasures in the accounting
records they examine. If a correction is required, the matter must be brought to the notice of
the Officer responsible for the account or record who should make the correction in accordance
with the Financial and Accounting Regulations.

(2) A possible exception to this rule concerns discovery of an incorrect cast (total) where, if no
responsible Officer is available to carry out a correction, the Auditor may insert the correct cast
(in purple/violet) above or near the incorrect total.

2.6.4 Significance of Audit Ticks and Marks

(1) As stated in the introduction, audit ticks and marks are of significance for the Auditor only and
mean that the item against which it is placed has been verified.

(2) It also specifies the type of verification that has been made and the findings as each type of
verification has a different tick or mark. At the foot of a work paper the Auditor should put a key
which explains the significance of the ticks and marks he/she has used so that in case, for
some reason, he is unable to continue with the Audit, another Auditor can continue with the
audit, or an audit review can be done even if he/she is not available.

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2.6.5 Audit Ticks and Marks Specifications
The ticks and marks listed below are recommended for various types of audit verifications so that the Internal
Audit Departments in the Local Councils operate a standard system.

Tick / Mark Significance Position Illustration

(a) Operation
1. / Down cast found correct Below the total 7,836
/
2. X Down cast found wrong Below the total 7,836
X
3. Λ Sub- Total carried forward Below the figure 7,836
Λ
4. V Subtotal brought forward Above the figure V
7836
5. / Sub-total column cast and Below the sub-total 2,631
found correct 1,923 4,554
/
(b) Postings
6. Y Vouched and found properly
authorised with all supporting On left of figure Y 1,248
documents attached
7. ¥ Vouched and found On left figure ¥ 1,248
something wrong (specify)
either not authorised or
supporting documents
missing
8. ‫ו‬ Clearance – verified and On left of figure ‫ ו‬763
found correct
9. ‫װ‬ Clearance i.e . all postings On left of figure ‫ ו‬601 ‫װ‬687
making up total have been ‫ ו‬86
checked
10. Z Transfer tick i.e. traced On left of figure being Z 763
transfer from one book to traced forward and on
another or one account to right of the figure that 763 Z
another and found correct has been traced
11. Zx Non-transfer tick – i.e. traced On left of figure not
transfer from one book to transferred
another or one account to Zx 763
another and found not
transferred
12. ¢ Contra i.e. transfer within the On left of figure
same account ¢ 763
13. β Balance carried/brought On left of figure for
forward carried forward and right β 763
of figure for brought 763 β
forward
14. Ø Nil tick – to indicate an item On left of figure Ø763
which had been cancelled or
deleted at the time of
examination
15. O/S Outstanding – to indicate an On left of figure
item which is outstanding by O/S 763
the time of examination
16. ≠ Empty space – to prevent At centre of empty space Y 594
subsequent wrongful use Y 623
≠
156
786
17. (-) Altered figure – brackets To left of previous figure

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Tick / Mark Significance Position Illustration
around altered figure (763) 786
underlined
(c) Comparison of audit
balances on stock records,
inventories, etc.
18. Audit count agrees with Stock of items 67AB67
record
19. Audit count disagrees with
record N.B. In both cases the Stock of items 67AB69
actual count is shown
(otherwise, ordinary
vouching ticks are used in
stock records)
(d) Information regarding
receipt books (e.g. in
receipt Book Registers,
Cash Books, Revenue
Registers, etc.
20. Receipt Books in use (last RU(714)
receipt number used is
shown)
21. Receipt Book in stock RU(801.900)
(unused) (i.e. Seen and
checked)
(e) Other symbols that may be
needed
22. P/C Paid cheque
23. D/N Debit Note
24. GRN Goods Received Note
25. C/N Credit Note
26. R Receipt
27. I Invoice

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2.7 AUDIT REVIEW

(1) The primary objectives of audit review are to ensure that:

(a) All the instructions per the Audit Plan have all been executed.

(b) for each audit programme the work as specified in the Audit Job Control Record [W/P
1] and elaborated in the relevant Audit has been conducted, and properly
documented, and all queries have been either cleared, or ‘logged’ for inclusion in the
report.

(c) a complete working papers file for the audit has been presented, and that the
specified audit working paper templates have been properly completed, such that the
auditor’s “scoring” of the system concerned has been completed, and reflects the
result achieved.

(d) and the audit report prepared in accordance with approved Audit Standards, any
applicable statutory or other regulatory requirements and the policies of the Internal
Audit Department; and,

(e) important matters have been or are being reported to the Audit Entity, including any
significant frauds, irregularities or suspicious circumstances encountered and any
recommendations on internal control, systems efficiency and accounting methods
have been included in the report.

(2) Audit reviews should be undertaken by

(a) The senior auditor reviewing the work of his assistant auditors in detail.

(b) The Head of Internal Audit reviewing the work of the senior auditor in detail to
ensure the adequacy of the audit work performed in support of the audit findings
and recommendations to be made in the Audit Report. The Head should also briefly
review all the assistants’ working papers to ensure that they have been reviewed
and cleared by the senior, and that they are in order, in accordance with the
manual.

(3) The reviewing party must review all the working papers on the file, ensuring that

(a) all the work required by the audit programme has been diligently carried out,

(b) all errors or exceptions discovered have been properly recorded and investigated,

(c) additional tests have been undertaken where necessary,

(d) all standard working papers have been completed properly, and accurately capture
and record the findings and conclusions,

(e) the working papers have been properly documented and duly cross referenced, and

(f) the reviewing party must initial /sign each working paper as evidence of his/her
review.

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(4) The reviewing party must prepare a schedule setting out the full text of all the review
queries. All the points on this schedule must be discussed with the auditor performing
the work, and the point must be cleared accordingly by:

(a) providing satisfactory answers to the query

(b) by filling in any gaps or shortcomings in the working papers

(c) by carrying out any additional work needed.

(d) Recording any points for attention at the next audit

(5) The manner in which each query has been cleared must be clearly indicated against
the query itself, with cross references given to any additional evidence gathered, or the
additional work done Management comments regarding the significant findings should
be properly captured

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2.8 SPECIMEN AUDIT WORKING PAPERS

Set out below is the standard Working Paper Contents. The working papers for which
standard formats have been provided are indicated in the left column.

Standard
Ref CONTENTS Working Paper
Yes / No
Schedule
Sch 1 Findings Summary – Entire Audit Yes
Sch 2 Head of IA Review - and Subsequent Work Yes
Sch 3 Points for Head of Internal Audit’s Attention Yes
Sch 4 Points for Next Audit Yes
Sch 5 Audit Plan, including all the relevant job control schedules Job control
[WP/1] schedules - Yes
Sch 6 Audit Administration No

Section
A-G Job 1 – Working Papers n/a

A-G Job 2– Working Papers n/a

A-G Job 3 - Etc n/a

Working Each job will contain the following standard working papers
Papers
WP/I Audit Job Control Record and Audit Programme Yes
WP/II Audit Test Schedule Yes
WP/III Exception/Error Analysis Yes
WP/IV Findings Summary – each Audit Programme Yes

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SCHEDULE 1 - OVERALL FINDINGS SUMMARY – ALL AUDIT

PROGRAMMES
Purpose: To provide an overall summary of all the errors and exceptions found during the audit - in
all the work programmes. The data for each audit programme is picked from schedule W/P IV.

I - Values of Errors - II -Values of

Involving actual or potential Errors- Non
loss of money or assets compliance only
- No loss likely
Audit Programme. Actual Extrapolated Report Actual Report Ref Overall Overall
Value Score: Score:
Value Ref Value
This Year Last Year

Total Value Av. Score: Av. Score:

Overall Conclusion on the Audit as a Whole : [ plus comment on change in average score ]

Auditor Head of Internal Audit

Signature:................. Date:................. Signature:....................... Date:.............

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SCHEDULE 2 - HEAD OF INTERNAL AUDIT REVIEW

AUDIT ENTITY: _______________________Prepared By:_________Date___________

PERIOD: ____________________________Reviewed By:_________Date___________

# W/P Review Notes Clearance Initials

Ref

Note: This Schedule may also be used for the team leader to review the working papers of
the audit assistants.

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SCHEDULE 3 - POINTS FOR HEAD OF INTERNAL AUDIT’S ATTENTION

AUDIT ENTITY: _______________________Prepared By:_________Date___________

PERIOD: ____________________________Reviewed By:_________Date___________

# W/P Point Head IA Comment,

Ref [dispensing with concern
raised]

NB The audit team leader will summarise the key points he/she wishes the Head of
Internal Audit to pay special attention to.
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SCHEDULE 4 - POINTS FOR NEXT AUDIT

AUDIT ENTITY: _______________________Prepared By:_________Date___________

PERIOD: ____________________________Reviewed By:_________Date___________

Head of Internal
# Point Audit to tick and
Initial when
cleared

NB: the audit team leader will summarise the main points he/she thinks needs specific
attention at the next audit and can wait until then. The Head of Internal Audit will clear
these to next year’s audit plan.

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W/P 0 - AUDIT WORKING PAPERS INDEX

AUDIT ENTITY: _____________________________________

AUDITORS: ___________________________________________________________

DATES OF AUDIT: ______________________________________________________

AUDIT ENTITY STAFF SEEN:

Ref CONTENTS Tick and Initial

when attached
Schedule
Sch 1 Findings Summary – Entire Audit
Sch 2 Head of IA Review - and Subsequent Work
Sch 3 Points for Head of Internal Audit’s Attention
Sch 4 Points for Next Audit
Sch 5 Audit Plan, including all the relevant job control schedules
[WP/1]
Sch 6 Audit Administration

Section
A-G Job 1 – Working Papers

A-G Job 2– Working Papers

A-G Job 3 - Etc

Working Each job will contain the following standard working papers
Papers
WP/I Audit Job Control Record and Audit Programme
WP/II Audit Test Schedule
WP/III Exception/Error Analysis
WP/IV Findings Summary – each Audit Programme

Note 1– Definition: each “Job” comprises the planning and execution of ONE audit
programme [eg Procurement audit for goods, works and services – C3] the index of all
the audit programmes is provided in the table at Section 3.2. They are numbered between A
– G. Each job must be given the same number as its related audit programme number

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W/P I - AUDIT JOB CONTROL SCHEDULE

AUDIT JOB NUMBER: [Enter job number from Job Allocation form]:_____________________

AUDIT Year: __________________________________________________________

AUDITOR: ___________________________________________________________

TIME ALLOCATED: [Enter time allocated from Job Allocation form];_____________________

TIME TAKEN: [Enter when job completed]:______________________________________

PREPARED BY:____________________DATE ____________________________

DETAILED JOB INSTRUCTIONS

This section is prepared by the Head of Internal Audit and will contain:

1. the control objectives of the audit, and the risks

2. the sample size to be selected , and the source of selection
3. the audit programme to be followed
4. any specific instructions which augment the standard audit programme.

Detailed guidance on points 1-3 above is given in the detailed audit working programmes
set out in Part III. In most cases it will be possible to “cut and paste” the required
instructions from the manual.

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W/P II - AUDIT TEST SCHEDULE

Purpose : To record all the tests carried out on the sample of items selected for testing, and arrive
at an overall scoring for this particular programme.

Audit Entity: ____________________________Prepared By: ________Date____________

Audit Programme Reference: ______________Reviewed By: ________Date____________

Total Field Size – No. Items: __________ Value: _________

Sample Size: - No. Items_____________ %_________Value ___________%____________

Items Selected for Checking Tests Carried Out – As per Audit

Programme Numbering
Item Ref. Date Brief Description Value 1 2 3 4 5 6 7 8 9 10
Sh
#
1
2
3
4
5
6
Etc
Total Value - of the
Sample
Total Exceptions/ Errors
Number.

Value.
Error %
Number

Value %
Exception Report Reference No.

Exception Report Score **

Overall Average Score Achieved [ +4 to – (1) ] ……

** Picked from Exception/ Error Analysis – W/P III
* This working paper may need to be expanded in cases where there are more than 10 tens and/or
7 items to be tested.

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WP/III - EXCEPTION/ ERROR ANALYSIS

Purpose: To summarise each type of exception or error discovered, to identify the likely cause, determine
the remedial action and draw an appropriate conclusion.

Audit Entity: ______________________________Prepared By: ________Date____________

Exception Report Ref No: ___________________Reviewed By: ________Date____________

1) Brief Description of Exception, Error, or Omission

2) What was the %’age error rate within the sample – by No ______________ by Value_________________
3) Has the infraction caused actual loss to the Local Government? – Yes / No
4) If Yes, quantify the loss - Actual loss – Sh _______________Extrapolated’ loss Sh _______________
5) If No, what is the potential consequence?
6) What is the likely cause(s) of the “Infraction” [ Briefly justify ]
a) Lack of Knowledge or Training b) Carelessness
c) Gross Negligence d) Possible Deliberate Intention/Fraud e) Lack of Supervision f) Other
7) Conclusion – [Circle One option] SCORE* *Take to scoring
summary
No Errors 4 Excellent
Minor Exceptions /errors 3 Good
Not considered material/ significant [ exclude from formal report]
Significant / Material issues 2 Adequate
Not considered very serious [nevertheless include in formal report]
Substantial exceptions/errors 0 Weak
Overall cause for concern
Major issues of a serious nature -1 Not Acceptable
Recommendation of Auditor [including corrective action]

Recommendation of Head of Internal Audit:

Results & Recommendations included in report dated: _______________________________

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W/P IV - FINDINGS SUMMARY – INDIVIDUAL PROGRAMME LEVEL

Purpose: To summarise the losses incurred [or other impacts] from the individual errors discovered while
auditing the following named programme, and to provide an overall conclusion on the area being audited.

Audit Entity: ____________________________Prepared By: ________Date____________

Period:________________________________ Reviewed By: ________Date____________

I - Values of Errors involving potential loss of money or assets

W/P Ref Summary Description Of Error/ Loss Actual Extrapolated

Loss

Total Value of Losses [Note – Individual Losses should not be

double counted]
II - Non-compliance with regulations where no loss is likely to have occurred (include
potential impact of error)

III – Overall Score Achieved [per WP/II] and Overall Conclusion:

IV - Head of Internal Audit Comment:

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2.9 AUDIT REPORTING

2.9.1 Introduction
(1) Internal Auditors are required under section 90 to the Local Governments Act to
produce internal audit reports on a quarterly basis. Apart from these statutory reports,
internal auditors should produce reports at the end of each audit exercise.

(2) The objectives of reporting are to notify management of the councils of the results of
the audit and to make recommendations, where appropriate. These reports will identify
the audits carried out, recommendations resulting from the audits undertaken, follow up
actions on previous audit reports and the audits planned for the next period.

2.9.2 Stages of Audit Reporting

(1) The Quarterly Report of the Head of Internal Audit is a mandatory requirement under
the Local Governments Act, which must be produced by local governments mandated
to have internal audit units. This Quarterly Internal Audit report is produced using a
three stage process namely:

(a) Audit Findings

(b) Draft Internal Audit Report

(c) The Quarterly Report

(2) Audit Findings are preliminary reports from audit units/departments being audited. The
head of internal audit or the team leader of the audit team will arrange to discuss the
audit findings with the relevant Heads of Departments, Head of Finance and where
necessary at this stage the Chief Executive. The purpose of this discussion is to give
the affected heads of departments an opportunity to explain or defend themselves and
where necessary the Chief executive to authorise further investigations.

(3) Draft Internal Audit Reports are administrative reports prepared by the Head of Internal
Audit after discussion of preliminary audit findings with the affected heads of
departments and where necessary the Chief Executive.

The draft Internal Audit report will be prepared by the Head of Internal Audit in line with
the format shown in schedule 1 (A), and will be addressed to the Chief Executive and
copied to the Head of Finance and the heads of departments.

Routine internal reports give independent insights into the affairs of the Departments,
so the Chief Executive should pay considerable attention to these administrative
reports. He/She may refer a particular report to the relevant standing committee of
council or ask the Head of Internal Audit to send copies to the Resident District
Commissioner, the Ministry of Local Government or the Auditor General.

(4) Finally a Quarterly Report is prepared. This is a Statutory Report by the Head of Audit.
The report is addressed to the Chairperson of the Council and in conformity with
section 90(2) of the Local Governments Act, copied to the Local Governments Public
Accounts Committee.
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Copies of the report should also be sent to the Resident District Commissioner, the
Ministry of Local Government, the Auditor General, the Council Committee responsible
for Finance and the Chief Executive, and also placed on file for central monitoring
purposes. The Content of the Quarterly Audit Report is specified in Schedule I (B).

2.9.3 Purpose and Effect of the Quarterly Internal Audit report

(1) The Quarterly Reports is meant to report on the internal audit work carried out in the
preceding quarter. A well prepared report will frankly and concisely comment on the
adequacy of the financial control and accounting systems of the entity and will provide
observations and recommendations on the efficiency, effectiveness and economy of
the administrative and departmental systems examined during the quarter.

(2) Effects

(a) It will brief the Chairperson of the Council (and the Executive Committee), the standing
committee responsible for finance, the RDC, the Auditor General and the Central
Monitoring teams on the adequacy of the financial and administrative systems of the
authority, and enable action to be taken on such matters together with corrective
measures as may appear necessary

(b) It will assist the Auditor General in his work of reporting on the accounts and
expenditure of the Council

(c) It will provide information to the Central monitoring teams on the adequacy of the
financial and administrative arrangements of the authority and guide them in
formulating their inspection plans and arrangements.

(d) The correct completion of the audit of an entity will enable the appropriate conclusions
to be drawn. These may include findings resulting from system weaknesses, test
results, and audit observations., which will be recorded in the Working Papers.

(e) It is recommended that the audit reports clearly identify to management:

i. the importance of the control or transaction tested;

ii. the nature and purpose of the test conducted;
iii. the results of the test, in a standard form such as percentage compliance;
iv. a firm conclusion, on whether the control was in place or the transactions valid;
v. the implication of findings for the effective operation of the Audit Entity; and
vi. recommendations to management on action to address weaknesses found.

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2.9.4 Specimen Internal Audit Reports

Specimen 1: The Draft Internal Audit Report For Departments/Entities
To: The Chief Executive
Heading: Internal Audit report for ……….Department/Entity for the period……………..
1. INTRODUCTION:
a. Nature of Assignment (routine, special assignment (refer to TOR)
b. Period under review
c. Timing of visit (from….to…..)
d. Composition of the Audit team
e. Representatives from the Auditee (Places visited & persons met)
2. SCOPE OF AUDIT:
a. Systems audit (Checklists/Audit Programme areas)
b. Other Specific areas (eg project/special areas audited)
c. Follow up of previous audit recommendations
d. Documents and Books examined
3. MAJOR FINDINGS AND RECOMMENDATIONS
a. Systems Audit(According Audit check lists/programmes)
b. Other specific areas ( eg projects audited)
c. Actions required
d. Recommendations
4. FOLLOW UP OF PREVIOUS AUDITS
5. GUIDANCE AND TRAINING REQUIRED
6. CONCLUSION BY HEAD OF AUDIT
7. DATE AND SIGNATURE
• The detailed report of the specific findings of each programme carried out are included in
a sequence of attachments.
• Attach summary scores for each department/entity as appendices.
• Copy the draft report to the Head of Finance and Head(s) of Department(s) concerned
Specimen 2: –The Quarterly Report
The quarterly report summarises the silent points arising from audit of all entities undertaken during the
quarter. It should not be too voluminous. The main report should be supplemented by annexes which
explain the salient issues raised in the report. For example the details of advances should be annex to
the report.
The Contents
To The Chairperson/Mayor
The Quarterly Internal Audit Report for (Insert name of LG) for the period……..to……………
1. MANDATE
a) The authority and mandate of Internal Audit
2. PREAMBLE
a) Introduction-matters brought forward for previous audit and action taken
b) Summary of current financial and administrative control situations
3. WORKS UNDER TAKEN IN THE QUARTER
a) List of all entities that were audited in quarter
b) Note variances in coverage in comparision to entities approved in work plan, give
explanations for variances
c) Provide, in general, the overall performance rating for the quarter compared to the
rating ascribed at the last quarter/audit
d) Provide summary of main findings according to thematic areas (Check
lists/Programmes)
e) Provide a synthesis of the most common major issues arising, and any trend
emerging
f) Acton required and recommendations on findings
g) Summary of special investigations undertaken
h) Report on Special Investigations will appear as appendices
4. RECOMMENDATIONS AND CONCLUSIONS
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Recommendations on action to be taken and matters carried forward
5. SIGNATURE AND DATE
Note : A summary of audits scores of entities audited in that quarter is then included as appendices to the
quarterly report

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3. PART III: LOCAL GOVERNMENTS INTERNAL AUDIT
PROGRAMMES – ROUTINE AUDITS

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3.1 INTRODUCTION
(1) Part III of the Manual contains standard audit programmes that have been developed
for auditing;
(a) Significant sources of Revenue
(b) Significant items of Expenditure
(c) Significant Assets, Liabilities and Reserves
(d) Review of Budgets and Financial Statements

(2) It provides the tools for Internal Audit staff to perform their day-to-day internal audit
activities, and comprises the detailed audit procedures and audit programmes to be
used in undertaking specific internal audit reviews.

(3) The main purpose of this introduction is to show the linkage of the Chart of Accounts
with the main audit programmes, and to provide the working paper index. These are
as set out on the following table:

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3.2 INDEX OF AUDIT PROGRAMMES

(1) The table below shows the index of audit programmes detailed in this Manual. The
classification of the audit programmes is as follows:
A – Budget
B – Revenue
C – Expenditure
D – Assets
E – Liabilities
F - Reserves
G – Financial Statements

CHART MAIN CLASSIFICATION AUDIT PROGRAMME AUDIT

OF &
ACCOUNT PROG. PAGE
SUB CLASSIFICATIONS
CODE NO. NO.

N/A BUDGET Budgeting A1 72

Vote Book A2 74
Analytical Review A3 76
CLASS I REVENUE, RECEIPTING AND
BANKING
111 Taxes On Income
xxxxx Local Services Tax Local Services Tax ** B1 79

113 Taxes On Property

113102 Property Rates Property Rates ** B2 82
114 Taxes On Goods & Services
114505 Business Licences Business levies **
114506 Liquor Licences B3 84
xxxxx Hotel Tax
131 Grants – Donor Funds
131101 Foreign Governments – Current Donor Funds B4 86
Foreign Governments – Capital
Multilateral Dev Ptnrs – Current
Multilateral Dev Ptnrs - Capital
133 Grants From Government
133103 LG Conditional Grants Central Government
133104 LG Unconditional Grants Grants B5 88
133105 LG Equalisation Grants
141 Property Income
141601 Sale of Government Assets/Property Capital Receipts B6 90
142 Administrative Fees & Licenses
Revenue From Outsourced Contracts Contracted Revenue B7 92
142201 – Collection
142203 Parking Fees [Street, Taxi, Lorry,
142205 Boda]
142214 Public Convenience/ Refuse Collection
Advertising / Bill Boards
Market Charges
Business Licences
Liquor Licences

N/A Other Income Sources

Various Application Fees Other Income Sources B8 94
Codes Registration Fees
Inspection Fees
Court Filing Fees
Animal / Crop Husbandry Levies

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CHART MAIN CLASSIFICATION AUDIT PROGRAMME AUDIT
OF &
ACCOUNT PROG. PAGE
SUB CLASSIFICATIONS
CODE NO. NO.

Festivals, Plays
Letting of Halls
Hire of Equipment
Royalties
Gate Charges
N/A RECEIPTING AND BANKING OF Revenue Collection, B9 96
REVENUE: Receipting & Banking
CASH AND CHEQUES
N/A REVENUE SHARING Revenue Sharing Audit B10 98
CLASS EXPENDITURE AND PAYMENTS
2
Wage Expenditure -
211 Wages & Salaries Salaries, Pensions & C1 99
212 Social Contributions Gratuities

Non Wage Expenditure

221 General Expenses Non Wage Payments C2 101
222 Communications
223 Utility and Property Procurement Audit for C3 104
224 General Supplies of Goods and Goods, Works, and
225 Services
226 Professional Services
Services
227 Insurances & Licenses
228 Transport & Travel Advances & Allowances C4 106
229 Maintenance
213 Inventories Imprests C5 108
Other Employee Costs
CLASS ASSETS
3
Non-Current Assets
311101 Non Produced Assets [ Land] Fixed and Non Produced DI 110
312101 Buildings [ Residential / Non Assets
312103 Residential ]
312201 Roads & Bridges D2 113
312202 Transport Equipment
Investments
312203 Machinery & Equipment
321201- Furniture & Fixtures
205 Investments
Current Assets
314201 Materials & Supplies Stores D3 115
321601 Taxes Receivable Debtors, Prepayments & D4 117
321602 Trade Debtors Advances
321603 Sundry Debtors
321501 Staff Advances
321502 Departmental Advances

321103 Cash at Bank Cash & Bank Balances D5 119

CLASS LIABILITIES
4
Creditors And Accruals
415001 Trade Creditors Trade Creditors & E1 121
415002 Sundry Creditors Accruals
415003 Accruals
413003 Loans Loans / Borrowings E2 123
Class 5 RESERVES Reserves F1 125
N/A FINANCIAL STATEMENTS Review of Financial G1 126
Statements
** These programmes are only applicable where the Entity has not contracted out the
collection of the related revenue. If the revenue collection has been contracted out, then
programme B7 should be used.
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(2) The Standard Internal Audit Programmes are the minimum tests that should be
performed in the audit of any system or area. The Head of Internal Audit may specify
additional tests wherever deemed necessary.

(3) The fundamental set of audit principles are as follows:

(a) When auditing assets or expenditure (i.e. the “debit” transactions), the auditor is
primarily looking for overstatement. In this case the auditor needs to verify the
transactions and balances that are reflected inside the books, so the source of
selection of the sample must start inside the books of account. So for example
when auditing payments, the auditor starts his selection from the payments
recorded inside the cash books

(b) When auditing liabilities and income (i.e. the “credit” transactions), the auditor is
primarily looking for understatement. In this case the auditor needs to ensure that
all credits have been brought into the books, and that none are omitted. The auditor
must look “outside” the books of account for what may not have been brought to
account. The sample selection must therefore start outside of the books of account.
So for example when auditing local revenue – business licences, - the auditor
should visit a sample of businesses, ask for their receipt, and trace the receipt back
to Entity’s records , and ensure the money was banked intact and on time.

The principle is set out in summary form in the following table:

DEBITS ASSETS EXPENSES Audit for Source of selection is

INSIDE the books of
OVERSTATEMENT account – i.e.
verify/vouch what is
there
CREDITS LIABILITIES INCOME Audit for Source of selection is
OUTSIDE the books of
UNDERSTATEMENT account – i.e.
verify/vouch what Is
NOT there

(4) The Tools required for carrying out all audits are as follows:

(a) Constitution of the Republic of Uganda

(b) Local Governments Act
(c) Local Governments Financial and Accounting Regulations
(d) Finance and Accountability Act
(e) Local Government Rating Act
(f) Public Procurement and Disposal of Public Assets (PPDA) Act
(g) Local Government PPDA Regulations
(h) The Local Government Amendment Act
(i) Guides, Manuals and Instructional Publications

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3.3 AUDIT PROGRAMMES

A BUDGET, VOTE BOOK, AND ANALYTICAL REVIEW

A1 Budget

1. Main Activities Involved

This audit covers the key budget process – formulation, approval, execution and control.

2. Control Objective
To ensure that the Entity’s budget is prepared in accordance with the laid down
regulations and instructions, that there is effective monitoring of expenditure and revenue
against estimates and that there is effective budgetary control.

3. Risks
The key risk to the Entity is that budget allocations may be over or under estimated,
resulting in inadequate or inefficient budget execution and the inability of the Entity to meet
its policy objectives.
The underlying risks are:

(a) that inadequately supported budget estimates result in poor quality budget estimates

(b) that the incorrect recording of budget provisions/ estimates in the vote book results in
poor quality of budget monitoring

(c) that the lack of, or inadequate, budget monitoring and reporting results in overspending
and under-collections.

(d) government national priority programme areas are not adequately catered for

4. Records Required at Audit

The following records should be requested at the start of the audit:

(a) Development Plan

(b) Budget Workplans / estimate Working Papers;
(c) Budget Framework Paper
(d) Approved Budget;
(e) Vote Books;
(f) Finance Department Monthly Reports.

5. Sampling to be used

(a) undertake a check on the largest programme heads that cover at least 80% by value of
all expenditure and income.
(b) 100% of the key programmes as defined by the Head of Internal Audit.
(c) a balance of 10% (by number) of the remaining votes heads.

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6. Estimated Time Budgets
Time Allocated Actual Time Spent Variance Explanation of the variance

7. Audit Programme- Budget

For the selected sample conduct the following checks:

Ref Audit Programme Tasks
Budgetary Preparation
1 Obtain all relevant budget preparation documents from the Budget Desk and confirm that the
requirements and procedures set out in the Local Government Financial Accounting
Regulations 23-28 and the Financial and Accounting Manual were followed in the budget
preparation process, and in accordance with the laid down timescales. In particular review:
(a) the composition of the budget desk, i.e. officers.
(b) the adequate submission of departmental annual work plans and budgets
(c) the consolidation of annual budgets, ensuring that they fall within the Budget Framework
Paper
(d) the approval of the annual plans and budget by the Entity.
2 From discussions with the Vote Controllers confirm that all estimates headings have been
agreed with them and included in the development plans and budget preparation working
papers.
Budget Monitoring and Control
3 By examining the vote books confirm that the Vote Books correctly record the amounts as per
the approved budget estimates.
4 By examining the vote books ensure and confirm that the expenditure budgets have been
adhered to, and have not been exceeded.
5 By examining the estimates of revenue, compare actual collections with estimates. Note and
investigate significant variations, in particular apparent under collections.
6 By discussion with the Vote Controllers ensure that timely action was taken to applying
budget revisions.
7 Confirm by discussion with the Head of Finance and review of appropriate reports that the
Finance Department monitors actual expenditure against budget estimates and informs the
spending department on performance of actual against budget and if the budget appears
likely to be exceeded.
8 Confirm by discussion with the Head of Finance and review of appropriate reports that the
Finance Department monitors actual revenue against estimates of revenue and informs the
receiving department on performance of actual against budget.

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A2 Vote Book

1. Main Activities Involved

This audit programme covers the audit of the Entity’s vote books.

2. Control Objective

To ensure that all entries in the Vote Book reflect accurately the financial transactions of
the Entity.

3. Risks

The key risk to the Entity of poorly kept vote books is that all accounting data will be
tainted and unfit for use for financial management purposes.
The underlying risks are:

(a) incorrect information is recorded in the vote book, including the vote, details of
approved estimates, virement, re-allocation, supplementary provisions, imprests,
departmental warrants etc.

(b) entries in the vote book are not complete or inaccurate, and as a result commitments and
payments may exceed the balance of available funds and overspending may occur.

(c) the vote book is not promptly and properly reconciled each month with the Finance
Department’s records.

4. Records Required at Audit

The following records should be requested at the start of the audit:

(a) Vote Book;

(b) Approved Budget Estimates
(c) Expenditure Warrants/ Supplementary estimates/ reallocation Warrants;
(d) Payment Vouchers.

5. Sampling to be used

From the vote books of at least three selected departments select:

(a) the largest vote heads that cover at least 80% by value of all expenditure and income.
(b) 100% of the “key votes” as defined by the Head of Internal Audit.
(c) a balance of 10% (by number) of the remaining votes heads.

6. Estimated Time Budgets

Time Allocated Actual Time Spent Variance Explanation of the variance

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7. Audit Programme - Vote Book

For the selected sample conduct the following checks:

Ref Audit Programme Tasks

1 Use the Budget estimates book and appropriate warrants and supplementary allocation
provisions to confirm for the selected sample that the Vote Book pages correctly records the
• vote account details,
• approved estimates,
• virements/ re-allocation,
• supplementary provisions,
• imprests and
• departmental warrants
2 Confirm that a separate page has been opened for each expenditure item under the control of
the department under review.
3 Confirm that the entries are correct for both commitments and payments by checking the
Vote Book entries against payment vouchers
4 Confirm whether any of the votes are overspent.
5 Confirm that every entry in the Vote Book properly initialled.
6 Confirm that the year to date balances been calculated accurately by reproving the
calculations.
7 Confirm that all Departmental and Accounting Codes have been correctly entered.
8 Confirm that the Vote Book has been properly and promptly reconciled each month with the
General Ledger. NB Care should be taken to ensure that the Vote Book is not being written
by merely copying the Finance Department statements.

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A.3 Analytical Review

1 Introduction

(1) Analytical review procedures are substantive tests of financial information made by a
study and comparison of relationships among data.

(2) Analytical Reviews should be undertaken under the direction of Internal Audit
Management, and may be undertaken as part of the audit planning process or in
conjunction with ongoing audits.

(3) The objectives of analytical reviews may be several fold, but in essence an analytical
review compares data (which may be financial or non financial) between periods, for
example the value of debtors values, manpower figures, collection statistics,
stockholding periods etc. As such there is no definitive procedure in undertaking such
a review; however, general guidance is given in this section.

2 Timing

(4) The timing of an analytical review will vary with the objectives. The following
occasions are most relevant:

a) In the initial planning stage to assist in determining the nature, extent and timing of
other audit procedures by identifying significant matters that require consideration
during the examination;

b) During the conduct of the examination in conjunction with other procedures applied
to individual elements of financial information; and

c) At the conclusion of the audit as an overall review of the financial statements.

(5) The sorts of analytical reviews which can be undertaken include the following:

a) Comparison of the financial information with comparable prior periods;

b) Comparison with the budget or other anticipated results;
c) Study of the relationships of elements of financial information that would be
expected to conform to a predictable pattern based on the experience of the Audit
Entity;
d) Comparison with similar information regarding the broad area within which the
Audit Entity operates; and
e) Study of relationships with relevant non-financial information.

(6) The following factors should be taken into account before commencing an analytical
review:

a) Nature of the Audit Entity: an analytical review may not be meaningful when
applied to an Audit Entity with diverse activities;

b) Availability of Financial Information: examples may include budgets, forecasts, ,

detailed accounts, departmental results and monthly reports;
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c) Availability of Non-financial Information: examples would be number of

employees, hours worked, area of office space, vehicle mileage, machine hours,
any of which may be related to financial information;

d) Reliability of Information: the possibility that information might not be reliable will
need to be considered, based on the knowledge of the Audit Entity and the means
by which the information is produced. Matters that have required adjustment in
previous periods should be regarded with caution; and

e) Changes in Management Policy and Practices: will have an impact on the

figures and this should be considered.

3 Comparisons

(7) There are a number of comparisons which can be made using analytical review,
including:

a) Comparisons with budgets should take into consideration past experience of

reliability, care taken in the preparation of the budget, the extent to which a budget
is a motivational tool rather than an estimate of probable outcome and the length
of time that has elapsed since the budget was prepared;

b) Comparison with the prior year, and

c) Comparisons over time. If the Entity is subject to seasonal fluctuations then only
similar periods should be compared. Comparison with more than one period is
most valuable. Inflation is likely to form an important factor in comparisons over
time.

4 Fluctuations

(9) Unexpected fluctuations, or the absence of fluctuations that are expected, and other
items which appear unusual should be investigated, initially by making suitable
enquiries of management. Answers given must be assessed for credibility and
reasonableness. Where answers appear inadequate further investigations should be
carried out, including extended substantive tests.

5 Working Papers

(10) Working papers supporting analytical review procedures should record the following:

a) Brief description of fluctuations, variances and apparent inconsistencies in the

figures;
b) Management explanations of the above points;
c) An assessment of those explanations and a conclusion as to what further
examination, if any, should be carried out to confirm the accuracy of the
explanation; and
d) Summary of the results of any detailed examination.

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6 Performance Indicators

(11) Commonly used performance indicators are based on the following measures:

i) Output - What is the activity or goods/services?

ii) Efficiency - How are resources used? What is the cost per unit of output?

iii) Service - What do communities think?

iv) Outcome - What has changed for the community?

(12) Examples of performance indicators may include:

(a) % of revenue (e.g.. rates) collected

(b) % of staff attending training

(c) % of vehicles in running condition

(d) speed of processing creditor payments (against target period)

(e) % of days lost to staff sickness

(f) % of ratepayer complaints not resolved within target days

(g) average maintenance/ fuel cost per vehicle kilometre covered

(h) % of audit recommendations addressed within target period

(i) Unit cost per student

(j) unit cost per child attending vaccination centre

(k) vehicle accident rate per 1,000 kilometres driven

(l) Average number of receipts issued per collector per week

(m)Average value of receipts issued per collector.

(13) It is suggested that a simple matrix be included in a working paper that shows the
results and comparisons of performance indicators. For example:

Ref Description Target Indicator Last Current Movement Comments/

measure measure notes

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B REVENUES, RECEIPTING & BANKING

B.1 Local Services Tax [LST]1

1. Main Activities Involved

The Local Services Tax is a tax levied on the incomes of four categories of individual
taxpayer, namely
• owners of businesses,
• self employed professionals and artisans,
• salaried employees of any organisation, and
• commercial farmers.

With the exception of commercial farmers, the audit will be carried out concurrently with
the audit of Business Levies, which is separately listed below

2. Control Objective
To ensure that all LST revenue is assessed, collected and banked promptly

3. Risks
The key risk to the Entity of incomplete or inaccurate assessment, recording and collection
of LST is a shortfall or misappropriation of funds. This means that planned activities
financed from these revenues cannot be completed, and service delivery is impaired
The underlying risks are:

(a) incorrect assessment of LST

(b) failure to collect LST

(c) incomplete receipt and recording of LST .

4. Records Required at Audit

The following records should be requested at the start of the audit:

(a) Receipts for LST

(b) LST Revenue records and
(c) Applicable LST Revenue Registers.

5. Sampling to be Used

(A) Businesses and their Employees

Walk around the Entity’s main business/trading area[s] and select all major businesses
and 10 % of the minor ones, including offices and facilities of all practicing
professionals and artisans. In addition identify and include in the sample;

1 To be applicable if the Local Service Tax is approved by Parliament as a source of local revenue for the Local
Governments.
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• Organisations that may not be businesses as such, but is renting office space and
should have salaried employees, eg NGOs, International Organisations,
Government Agencies, Charitable Organisations, Associations etc.

• new businesses that have been established during the last year.

Record the name, type of business/organisation, and address of the business/organisation

on a schedule, for testing per the programme below

(B) Commercial Farmers

From the Production Department, obtain a schedule of all known Commercial Farmers in
the Subcounty, and organise to visit about 25% of them, including all the larger ones.

6. Estimated Time Budgets

Time Allocated Actual Time Spent Variance Explanation of the variance

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7. Audit Programme - Local Services Tax [LST]

Ref Audit Programme Tasks

Data Collection
1 For Businesses, Self Empoyed, and Organisations :
Meet the management of the business / organisation and ask to inspect, as applicable,
• The assessment[s] for LST pertaining to the owner[s] of the business.
• The quarterly schedule of LST deductions from salaried employees
• the payment receipts [assuming they have been paid],

and record all the details thereof on a schedule. Note that the audit of all other Business
Levies will be carried out simultaneously – See audit programme B3
2 For Commercial Farmers:
Visit the Farmer on site and ask to inspect the LST assessment, and the related receipt.
Interview the farmer and inspect the available evidence to ascertain whether the farmer may
have been under assessed, in terms of the assessment table.
LST Register Accuracy
3 Trace the business, self employed professional / artisan or farm to the respective Business /
LST Register[s]
4 Ensure the LST register records the correct details of the assessment, and the
receipt/amount paid..
Assessment and Billing
5 For the selected sample, confirm that annual demands for LST were issued as soon as
possible within the financial year.
6 Through re performance, confirm that the LST assessment was correctly calculated in
accordance with the act
7 .If any assessment is still unpaid [ and is over 3 months old ] the amount is to be recorded
as an ‘exception / error, due to unsatisfactory follow up action.
8 For each assessment, inspect the matching receipt, and record details on the schedule in [1]
above
Receipt and Banking
9 Check the receipt information recorded on the schedule, to the actual receipt books copy of
the receipt, ensuring all details match, particularly the amount.
10 Ensure the Revenue Classification is accurately recorded on the receipt [for eventual posting
to the General Ledger]
11 Ensure the receipt book used is recorded in the register of Receipt books, under the correct
name of the revenue collector.
N/A Note that the prompt banking of the receipt is verified under a separate programme
Arrears
12 From the LST register[s] confirm that periodic schedules of arrears are prepared, and that
concerted follow up procedures are consistently made to collect the arrears
13 Inspect the LST register [s] and confirm that all arrears are included in the current annual
demand.

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B.2 Property Rates

1. Main Activities Involved

This audit covers the collection of the Entity’s rates revenue.

2. Control Objective

To ensure that all rates income is assessed and collected promptly.

3. Risks
The key risk to the Entity is that of omitted, incomplete or inaccurate assessment,
recording and collection of rate revenues resulting in a shortfall of funds meaning that
planned activity cannot be completed.
The underlying risks are:

(a) the incorrect calculation of rate assessments

(b) the failure to collect rate arrears

(c) the late and incorrect billing of rates

(d) the inadequate follow-up of arrears and late payments

(e) the incomplete receipt and recording of rate income.

4. Records Required at Audit

The following records should be requested at the start of the audit:

(a) Approved Valuation List;

(b) Council Rating Decision;
(c) Rating Records/Database; and
(d) Revenue Records.

5. Sampling to be Used

From the Valuation Rolls select,

(a) the most valuable properties that represent at least 80% by value of the Valuation Roll.
(b) 100% of the “key rateable properties” as defined by the Head of Internal Audit.
(c) a balance 10% (by number) of the remaining rateable properties.

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6. Estimated Time Budgets

Time Allocated Actual Time Spent Variance Explanation of the variance

7. Audit Programme - Property Rates

For the selected sample conduct the following checks:

Ref Audit Programme Tasks

Assessment and Valuation
1 Confirm that the Valuation List has been revised by the Chief Valuer in accordance with
legislation and regulations.
2 From the Valuation Roll and the Entity’s Approved Rate decision, confirm that each
assessment has been correctly calculated., and properly recorded in the rates revenue
register
3 Walk around the LG and select several or all new rateable properties with recently completed
buildings. Confirm that they have been added to the Valuation Roll and the Rates Revenue
register by way of Provisional Valuations.
Billing
4 Confirm that demand notes were issued as soon as possible in the year and that they are
accurately calculated (valuation * rate).
5 Confirm that follow up action was taken promptly in the event of non-payment.
Payment by Ratepayer
6 Confirm that payments have been received in full, properly receipted and correctly recorded
in the revenue accounts and rating database.
Arrears
7 For the selected rating areas, confirm that all arrears are included in the current annual
demand.

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B.3 Business Levies

1. Main Activities Involved

This audit covers the Entity’s collection of business levy revenue, including Business
Registration Fees, Business Licenses, Liquor Licenses, and the Hotel Tax2. Note also that
the audit of the Local Services Tax [LST] that applies to Businesses, and their employees,
should be carried out concurrently. However the audit programme for LST is listed
separately elsewhere in the manual.

2. Control Objective
To ensure that all Business Levies income is assessed and collected promptly

3. Risks
The key risk to the Entity is that of omitted or incomplete or inaccurate assessment,
recording and collection of business levies/LST resulting in a shortfall of funds meaning
that planned activity cannot be completed.
The underlying risks are:

(a) incorrect assessment of business

(b) failure to collect business levy revenue

(c) Late and incorrect demands for business levies

(d) inadequate follow-up of arrears and late payments

(e) incomplete receipt and recording of business levy / income.

4. Records Required at Audit

The following records should be requested at the start of the audit:

(a) Database of Business, Liquor, and Hotel Licences;

(b) Applicable Revenue Registers;
(c) File records
(d) Copies of Annual Demand;
(e) Copies of Legal Action; and
(f) Revenue Accounts.
(g) Relevant Acts and Regulations

5. Sampling to be Used
From a walk around the Entity’s main business/trading area select all major businesses
and 10 % of the minor ones, including all hotels/ lodges/ guest houses, and businesses
containing liquor outlets In addition identify and include in the sample new businesses
that have been established during the last year. Record the name, type of business, and
address of the business on a schedule.

2 In the event that Parliament approves the Hotel Tax as a source of local revenue for the Local Governments

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6. Estimated Time Budgets

Time Allocated Actual Time Spent Variance Explanation of the variance

7. Audit Programme - Business Levies

For the selected sample conduct the following checks:

Ref Audit Programme Tasks

Data Collection
1 Ask to inspect, as applicable,
• The business registration notice
• the business licence,
• the liquor licence
• all the related assessments for each category of revenue.
• the payment receipts [assuming they have been paid],

and record all the details thereof on a schedule.

Business Register Accuracy
2 Trace the business to the respective Business Register[s]
3 Ensure the business register records the correct details of the license, the assessment , and
the receipt/amount paid..
Assessment and Billing
4 For the selected sample, confirm that annual demands for licenses were issued as soon as
possible within the financial year.
For the Hotel Tax, check to ensure that the occupancy declared on the monthly self
assessment [ room nights sold] tallies with the independent register of hotel guests. Check
all other arithmetic to ensure the self assessment has been correctly computed
5 For Business Levies, confirm that the assessment was correctly calculated in accordance
with the correct business licence tariff.
6 .If any assessment is still unpaid [ and is over 3 months old ] the amount is to be recorded
as an ‘exception / error, due to unsatisfactory follow up action.
7 For each assessment, inspect the matching receipt, and record details on the schedule in [1]
above
Receipt and Banking
8 Check the receipt information recorded on the schedule, to the actual receipt book copy of
the receipt, ensuring all details match , particularly the amount.
9 Ensure the Revenue Classification is accurately recorded on the receipt [for eventual posting
to the General Ledger]
10 Ensure the receipt book used is recorded in the register of Receipt books, under the correct
name of the revenue collector.
N/A Note that the prompt banking of the receipt is verified under a separate programme
Arrears
11 From the business register[s] confirm that periodic schedules of arrears are prepared, and
that concerted follow up procedures are consistently made to collect the arrears
12 Inspect the business register [s] and confirm that all arrears are included in the current annual
demand.

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B.4 Donor Funds

1. Main Activities Involved

This audit covers the receipt and expenditure of donor funds.

2. Control Objective

To ensure that the donor funds are spent with due regard to economy, efficiency and
effectiveness and in accordance with any laid down requirements and with the same
amount of care as the Entity’s own funds and in accordance with any rules pertaining
thereto.

3. Risks

The key risk to the Entity is that donors funds are not used in accordance with their
intended objective, resulting in the waste of the funds received to the detriment of the
inhabitants of the area and poor control over donor funds which may resulting in the loss
of future donor support.
The underlying risks are:

(a) the failure to properly record and account for donor funds

(b) the failure to properly record or account for donor non-financial contributions

(c) the inadequate reporting of donor programme support.

(d) Failure to abide by donor conditions

4. Records Required at Audit

The following records should be requested at the start of the audit:

(a) Lists of donor funds received;

(b) Copies of agreements with contractors;
(c) Copies of receipts for funds received;
(d) Bank Statements
(e) Stock Register for donated materials;
(f) Cash Book for donor funds;
(g) Financial Statements and
(h) Copies of Accountability Statements.
(i) Progress reports submitted to the donors
(j) Memorandum of Understanding
(k) Copies of Agreement with donors
(l) Donor Accounting Guidelines

5. Sampling to be Used

From the records of Donor Programmes select 100% of all Programmes

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6. Estimated Time Budgets

Time Allocated Actual Time Spent Variance Explanation of the variance

7. Audit Programme - Donor Funds

For the selected donor agreement, review the entire agreement and then conduct the
following checks to ensure, where applicable, that the provisions of the agreement have
been properly complied with. This audit may be combined with expenditure audit:

Ref Audit Programme Tasks

Funds Received and Agreements for Use
1 Contact the donor and request a detailed schedule of all funds donated or transferred to
Entity. From the schedule confirm that :
Receipts have been issued for all donations/ transfers on the schedule
2 All donations/ transfers have been posted in the cashbook and appear on the bank
statement.
Expenditure [ Assuming a separate bank account has been opened]
From the cashbook, select the largest payments that account for at least 80% of all
expenditure, plus a further 10% of randomly selected payments and
3 Ensure that each payment complies with the specific clauses pertaining to the use of the
funds, the payment approval procedure, and any other controls / requirements. In the event
that there are no specific clauses [ or very few], carry out the standard expenditure audit per
C1
Stock Register
4 If the donor has provided non-financial materials ensure that all have been entered into a
Donor Stock Record and confirm with the donor the materials delivered and recorded as
received by the Entity/ recipient programme.
5 By observation confirm that all material issued from the Stock Record have Stores Issue
Notes, and where appropriate undertake site visits to confirm existence of material and
quantities issued
Accountability
6 Confirm that complete and accurate financial statements are prepared and submitted either
on monthly or quarterly basis in accordance with the agreement entered into with the Donor.
7 Ensure that an Accountability Statement has been prepared for the previous year for each aid
donor and that it has been received by the donor.
8 Contact each donor to confirm that they are satisfied with the treatment of their donated funds
and/or material.

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B.5 Central Government Grants

1. Main Activities Involved

The audit covers the transfer by Central Government of funds to the Audit Entity through
Unconditional, Conditional and Equalisation Grants.

Unconditional grants are paid to the Entity to run decentralised services.

Conditional grants consist of monies given to the Local Government to finance programmes
agreed upon between the Government and the Local Government s and shall be expended for the
purposes for which it is meant and in accordance with the conditions agreed upon.

Equalisation grants are monies to be paid to Local Governments on giving subsidies or making
special provisions for the least developed Districts and shall be based on the degree to which a
Local Government Unit is lagging behind the national average standard for a particular service.

2. Control Objective

To ensure that the Entity accounts for all central government transfer and that it applies
them in the correct manner.

3. Risks

The key risk to the Entity of poor control over government transfer is that grants may not
be received on time, or applied as anticipated or required to the appropriate programmes
and that central government will ask for repayment.

The underlying risks are:

(a) the Inadequate recording and accounting for grants resulting in the failure to fully
identify expected grants, expected

(b) the late receipt of grants affecting the implementation of planned programmes

(c) the incorrect use and application of grants to programmes.

4. Records Required at Audit

The following records should be requested at the start of the audit:

(a) Approved Estimates;

(b) Bank Statements;
(c) Revenue/ transfer notifications from the Ministry responsible for finance.
(d) Duplicate Receipts;
(e) Accounting Records ;
(f) Cash Flow Statements; and
(g) Conditional Grant Programmes/Guidelines;
(h) Bank Advice Notes

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5. Sampling to be Used

From the estimates of expected transfers:

(a) undertake a 100% check on the grants/transfers of conditional, unconditional and

equalisation grants,

6. Estimated Time Budgets

Time Allocated Actual Time Spent Variance Explanation of the variance

7. Audit Programme - Central Government Grants

For the selected sample conduct the following checks:

Ref Audit Programme Tasks

Receipting and Accounting
1 From the Estimates prepare a schedule of expected central government releases.
2 From the MOFPED schedules of transfers/ notifications obtain details of amounts released
and the dates of those transfers, compare with 1 above, and investigate any variations
3 From the appropriate cash book confirm the correct recording of the receipt of funds.
4 From the bank statement confirm receipt of money.
5 From the accounting records confirm the recording of the correct amount in the Government
Grant Collection Account.
Unconditional Grant
6 Check that the timing of the actual receipt of the grant per the cash book, corresponded to
the timing expected per the in the Cash Flow budget
Conditional Grant
7 Confirm transfer of amount from Government Grant Collection Account to correct Agency
Account.
8 Check that the timing of the actual receipt of the grant per the cash book, corresponded to
the timing expected per the in the Cash Flow budget
9 For the accounting records (vote book) check that the funds have been expended in
accordance with approved budget estimates.

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B.6 Capital Receipts

1. Main Activities Involved

This audit covers capital receipts.

2. Control Objective
To ensure that the sale of assets is based on a fair value and that receipts from the sale of
assets are properly received and accounted for.

3. Risks
The key risk to the Entity is that public assets are not disposed of in accordance with
appropriate legislation, and as a result the corresponding capital receipt is not received by
the Entity.
The underlying risks are:

(a) the failure to properly record and account for capital receipts

(b) capital receipts are understated in the accounts

4. Records Required at Audit

The following records should be requested at the start of the audit:

(a) Bank deposit slip/ paying in book

(b) Bank Statements
(c) Entity Minutes and Approvals
(d) Board of Survey Report

5. Sampling to be Used

From a review of the Entity Minutes select:

(a) the largest disposals that cover at least 80% by value of all capital receipts.
(b) 100% of the “key items” as defined by the Head of Internal Audit [ if any]
(c) a balance 10% (by number) of the remaining capital disposals

6. Estimated Time Budgets

Time Allocated Actual Time Spent Variance Explanation of the variance

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7. Audit Programme - Capital Receipts

For the selected sample conduct the following checks:

Ref Audit Programme Tasks

Assessment
1 Check that assets sold have been disposed of in accordance with the Public
Procurement and Disposal of Fixed Assets Regulations including the following:
Ensure the disposal was officially referred to the Contract Committee for disposal
2 Ensure that a minimum reserve price was assessed and set.
3 Ensure the disposal was advertised
4 Ensure bids were fairly assessed.
5 Ensure the award went to the highest bidder
Invoicing/ Receipting
6 Ensure that the agreed sale price was correctly invoiced to the purchaser.
Payment
7 Confirm that payment has been received and banked in full .
8 Confirm that the transaction is correctly recorded in the ledger,
9 Confirm the amount was correctly minuted
Asset Register
10 Ensure the disposal has been properly recorded in the asset register

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B.7 Contracted Revenue Collection

1. Main Activities Involved

This audit programme covers the Entity’s collection of revenue from contracted sources. These
primarily include Markets, Parking Fees [Street, Taxi, Lorry, Boda Boda], Public Convenience,
Refuse Collection, Advertising, Bill Boards

2. Control Objective
To ensure that all revenue from contracted sources is properly assessed and collected
promptly.

3. Risks
The risk to the Entity of poor control over assessment and/or collection of revenue
contracts is a shortfall, or misappropriation, of funds meaning that planned activities,
funded by these revenues, cannot be completed.

4. Records Required at Audit

The following records should be requested at the start of the audit:

(a) Register of Contracts;

(b) Council/Contract Committee Minutes;
(c) Evaluation Committee Minutes
(d) Copy of Contracts;
(e) Contract Monitoring Records; and
(f) Revenue Registers.
(g) Approved Budget Estimates

5. Sampling to be Used

From the schedule of contracts, select:

(a) 100% of revenue collection contracts.

6. Estimated Time Budgets

Time Allocated Actual Time Spent Variance Explanation of the variance

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7. Audit Programme - Contracted Revenue Collection

For all contracts conduct the following checks:

Ref Audit Programme Tasks

Contracts
Assessment and Valuation
For every Revenue Collection contract ensure, through inspection, that a rigorous valuation
and assessment of the potential revenue base and yield was undertaken, at the outset of the
contract, and within the last 12 months. The assessment process should specifically have
included the steps 1-4 , [ each of which should be audited]:

1 Ensure the register / database of related taxpayers is complete & up to date

2 Check that the factors used to calculate yield / occupation rate / average revenue per unit [ie
whatever is applicable for the revenue source concerned], are reasonable and realistic.

3 Ensure that reasonable calculations were carried out of the all the costs involved in the
collection of the revenue

4 Ensure that a realistic “reserve price” was set which provided both the Entity and the
Contractor with a reasonable return from the asset base [Entity], and the effort/risk
[Contractor]
5 Review the tendering process and ensure that all the key provisions of the PPD Act were
complied with in awarding the tender. In particular ensure that the Contract Committee award
is in agreement with the Evaluation Committee recommendation.

6 Confirm that, given all the evidence, the revenue being received from the contract is
commercially reasonable in relation to the value of the asset base and function being
contracted out. Specifically conclude whether the setting of the Reserve price and the award
of the tender was either :
a) Fair / Reasonable b) Somewhat fair / reasonable c) Somewhat unfair/unreasonable
d) Unreasonable/unfair

Contract Content
7 From the contracts prepare a schedule of when payments were due and the amounts due (or
basis of calculation if based on actual revenue collection).
8 Confirm that the contracts are fully enforceable in the event of non-payment.
9 Confirm that the contracts contain provision for a performance bond in accordance with Local
Government Public Procurement and Disposal of Public Assets Regulations.
10 Confirm that the contracts can be cancelled immediately in the event of non-payment of
amounts due,
11 Confirm that the contract provides for a review of the contract price annually
Contract Performance
12 Examine the Finance Department records for contract performance monitoring and confirm
that these are up to date and fit for purpose.
13 Confirm for all contracts that payments are being made on time and for the amounts
expected, [Check the payment to the cashbook, deposit slip and bank statement]
14 Ascertain that effective legal action has been taken in cases where revenue has not been
paid in accordance with the contract
15 Confirm that all such cases have been formally communicated to Entity
16 Confirm that the contracts are for a reasonable period and that they are put out for tender on
a regular basis [ i.e. on expiry]
17 Confirm that all suitable services have been the subject of discussions re contracting out.

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B.8 Other Income Sources

1. Main Activities Involved

This audit covers the Entity’s collection of several minor sources of revenue including, but
not limited to the following:
a. Application Fees,
b. Registration Fees,
c. Inspection Fees,
d. Court Filing Fees,
e. Animal / Crop Husbandry Levies,
f. Festivals/ Plays,
g. Letting of Halls,
h. Hire of Equipment,
i. Royalties,
j. Gate Charges,
k. etc.

2. Control Objective
To ensure that the above revenue has been correctly receipted and banked, and that
collection performance is broadly in line with the amounts budgeted.

3. Risks
The key risk to the Entity of incomplete or inaccurate receipting / banking is a shortfall of
funds meaning that planned activities, funded by these revenues, cannot be completed,
and service delivery is impaired.

4. Records Required at Audit

The following records should be requested at the start of the audit:

(a) Receipts
(b) Revenue Registers, where applicable

5. Sampling to be Used

The risk analysis may show that these income sources are low risk areas as the volume
and value of transactions should be low. For this reason the programme does not include
detailed testing of individual transactions. Rather it relies on analytical review and
investigation of anomalies.

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6. Estimated Time Budgets

Time Allocated Actual Time Spent Variance Explanation of the variance

7. Audit Programme - Other Income Sources

Ref Audit Programme Tasks

Analytical Review
1 Prepare a schedule which reflects the current revenue balance collected on each of these
respective revenue codes, as well as the amount budgeted to date, and the amount collected
as per the same time in the previous year
Investigation
2 For those amounts codes which reflect major variations – especially a [ very] low
performance against budget, interview the head of the relevant section, and obtain plausible
reasons why the collections are performing badly.
3 Authenticate the reasons given by seeking some form of corroboration, possibly by
interviewing individual officers who are involved in the revenue generation process, or other
practical means.

4 In the event that explanations or evidence are unsatisfactory, and if the circumstances
warrant further action being taken, consider the following :

• Undercover observation of the officials concerned to ascertain whether or not they are
issuing receipts for all the monies being paid to them.
• Organising for ordinary citizen[s] to utilise the service which is under investigation, and
then establish:
(a) whether a receipt[s] was issued for the correct amount per the relevant tariff
(b) the value reflected on the citizens copy of the receipt matches the value on the
Entities copy

Banking
Note The banking of money receipted is carried out under programme B9 .It is important that the
programme is executed, so there is no need for further compliance work here.

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B.9 Revenue Collection, Receipting and Banking

1. Main Activities Involved

This audit covers the general collection of revenues, and should be applied to all specific
revenue collection and receipting locations.

2. Control Objective

To ensure that all revenue due to the Entity is assessed and collected; that all revenue is
promptly and accurately recorded; and that all revenue is promptly banked or handed
over.

3. Risks
The key risk to the Entity of poor revenue collection is that under-collection and/ or under-
banking of revenue will mean insufficient funds to provide the planned level of service
delivery, and that inadequate safeguards exist to prevent fraud, embezzlement and losses.
The underlying risks are:

(a) that there is incorrect accounting and recording of revenues collected, resulting in the
failure to record, or the under recording of revenue due to the Entity.

(b) that there is the incorrect or incomplete application of cash receipting and cashier
procedures and controls as required by the Local Governments Financial and
Accounting Regulations 2007.

(c) that cash collected, and therefore revenues of the Entity are at risk due to poor
physical controls over cash and the poor application of controls as required by the
Financial and Accounting Regulations.

4. Records Required at Audit

The following records should be requested at the start of the audit:

(a) Revenue Registers

(b) Revenue Collector’s Cash Book;
(c) Main Cash Book;
(d) Daily Cash and Cheque Summaries
(e) Register of Paying-in books;
(f) Register of Receipt Books;
(g) Paying-in Books/ Slips
(h) Bank Statements and advices
(i) Cancelled Receipts;
(j) Job Description of Cashier; and
(k) Organogram.
(l) Copies of demand notes

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5. Sampling to be Used

(a) From the Register of Receipt books issued select 100% of receipt books previously
issued, ensuring that every revenue collection officer is covered evenly.

6. Estimated Time Budgets

Time Allocated Actual Time Spent Variance Explanation of the variance

7. Audit Programme - Revenue Collection, Receipting and Banking

For the selected sample of receipt books and the related receipts, conduct the following
checks to ensure that the system is being operated in accordance with the Accounting
Manual

Ref Audit Programme Tasks

Preparation and Banking of Receipts
1 Ensure that the authentic signature of the Entity issuing officer is evident on the cover of the
receipt book
2 Confirm that receipts are made out in indelible pencil or blue/ black ballpoint pen
3 For each receipt book, do a 100% validation/matching of receipts issued, to the amounts
banked per bank stamped deposit slip, and to the bank statement, ensuring all amounts
receipted have been banked
4 Ensure that the funds have been banked promptly and intact into the correct Bank Account –
namely the Revenue Collection Account [ subject to subsequent “revenue sharing” between
Entities]
5 Ensure that all amounts per the bank stamped deposit slip are correctly recorded in the
Revenue Collectors Cash Book,.
6 Check that the revenue classification in the cash book is correct, ie it accurately reflects the
classification recorded on the receipt
7 Trace the deposit to the main / central cash book, ensuring correct classification again.
8 For any receipt that has been “cancelled”, ensure all copies of that receipt have been retained
Integrity of Receipt Register
9 From the receipt register, validate the authenticity of the signature of the revenue collector
who is signing for the receipt of the receipt book [ for the sample selected.]
10 Meet every revenue collector, ask to see all the current receipt book(s) s/he is using, record
the number sequence(s), and check that sequence(s) back to the central receipts register [
this is to guard against “unofficial” receipt books being in use.]
11 Carry out a physical inspection of the stock of all unused receipt books on hand, and check
the sequences back to the receipt register, ensuring that the register records the receipts as
un-issued.
12 Inspect the Receipts Register, to ensure that all [ non sampled] receipt books have been
signed for
Arithmetic Accuracy and Posting
13 Check the casting and balancing of the receipts cashbook,
14 Post the receipt totals to the general ledger
Cash Count & Division of Duties
15 Immediately after test 6 above , conduct a cash count [ covering every revenue collector, and
cashier] to ascertain that the officer is holding the cash for all receipts issued that have not
yet been banked, plus any imprest they may be holding.
16 Undertake control of all cash and imprest points to guard against switchovers
17 Ensure that the cashier does not have access to ledgers, accounts or write-offs.
18 Confirm that there are satisfactory arrangements in operation to cover any absence of the
cashier, including holidays.

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B.10 Revenue Sharing Audit

1. Main Activities Involved

This audit programme covers the Local Government compliance with the statutory
revenue sharing arrangements.

2. Control Objective
To ensure that all revenue income collected is shared between participating Local
Governments in accordance with the Law.

3. Risks
(a) Non disclosure of actual revenue collected
(b) Non compliance with the laws

4. Records Required at Audit

The following records should be requested at the start of the audit:
(a) Council Minutes;
(b) Revenue collection records;
(c) Revenue Accounts
(d) Revenue Collection Bank Statements; and
(e) Financial Statements

5. Sampling to be Used
From the audited Revenue Accounts and revenue collection records of the Local
Government, undertake a 100% sample of transfers between the Entities under audit.

6. Estimated Time Budgets

Time Allocated Actual Time Spent Variance Explanation of the variance

7. Audit Programme - Revenue Sharing Audit

For the selected sample conduct the following checks:

Ref Audit Programme Tasks

Contracts
1 Obtain the schedule showing the calculation of the revenue share, and check all the
arithmetic on the schedule
2 Check the amount of Total Revenue Collected on the schedule agrees with the Entity’s local
revenue collection records
3 Check that the correct sharing formula has been applied to the total revenue, in favour of its
higher and lower LGs.
4 Check that the corresponding payment voucher has been compiled, checked and approved.
5 Make a record to subsequently check that the cheque [or bank transfer instruction] has been
receipted and deposited by the beneficiary LG

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C PAYMENTS

C1 Salaries, Pensions and Gratuities

1. Main Activities Involved

This audit covers all aspects of salaries and pensions including appointment, salary levels;
gross pay; deductions; sickness; annual leave and training.

2. Control Objective

To ensure that approved procedures are followed; that the payments made are correct
and in accordance with agreed scales; that records maintained are adequate and
accurate; and that proper security is exercised over collection, make-up, custody and pay-
out of cash or cheques.

3. Risks
The key risk to the Entity of poor control over payroll is that “ghost employees” may exist
resulting in the overpayment on the salaries or pensions accounts.

The underlying risks are:

(a) salary or pension payments may not have supporting documents and not be properly
authorised.

(b) the Local Governments Financial and Accounting Regulations may have been flouted when
recording, paying and reporting salary and pension details.

(c) the incorrect salary or pension may have been calculated and the wrong persons may have
been paid.

(d) the payments may have been incorrectly posted in the cashbook and the ledgers and that the
wrong accounts coding may have been used.

4. Records Required at Audit

The following records should be requested at the start of the audit:

(a) Establishment Register;

(b) Approved Salary Structure;
(c) Staff Records (of staff selected for audit);
(d) Payroll Records (for the departments and periods selected for audit);
(e) Timekeeping Register (signing in book);
(f) Overtime Register;
(g) Advances Register;
(h) Sickness Records;
(i) Leave Records and
(j) Training Records.

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5. Sampling to be Used

From the Monthly Payrolls, select one months salary payroll

6. Estimated Time Budgets

Time Allocated Actual Time Spent Variance Explanation of the variance

7. Audit Programme - Salaries, Pensions and Gratuities

For the one month payroll selected conduct the following checks:

Ref Audit Programme Tasks

Payroll Payments
1 Agree 100% of the payroll payments to the LG establishment register, checking that all
amounts tally
2 From the Approved Salary Structure confirm that all posts are paid at the correct salary grade
and at the correct rate of pay and ensure a coverage of at least 25%
3 Review the deductions to ensure they are reasonable. Investigate any unusually large
deductions and obtain justification
4 For any significant supplementary advances /allowances , inspect [and note] the relevant
authority to make such payment, and check the amount is entered in the advances register
5 Check 100% of net amounts per the payroll to the Bank Transfer Instruction
6 Check the casting on the Bank Transfer Instruction to ensure the total is correct.
7 Check the total amount on the Bank Transfer Instruction has been reflected on the bank
statement
8 Carry out a review of the gross monthly payroll amount and investigate significant
fluctuations, validating the reasons given.
Payroll Deductions
9 Check the casting of the deduction columns on the payroll , to ensure the total is correct
10 Ensure that the total amounts have been paid to the respective creditors [ URA / NSSF etc] ie
check that the payment is reflected in the cash book [ and bank statement]
11 For recovery of advances, ensure the recovery has been entered into the advances register.
Payroll Records
12 For each selected employee per 2 above, verify their existence, by various approved means.
13 Confirm that the salary grade contained in each person’s staff record file is the same as that
on the Establishment Register.
14 Confirm that a permanent record is kept of all service of every individual for pension and
redundancy purposes.
15 Ascertain which members of staff have left in past 12 months and check that the
Establishment register and Payroll have been updated.
16 Confirm that new staff are entered in the Payroll in the right period and amounts
17 Review the amounts of Payroll and pension arrears
Pension & Gratuity Payments
18 Inspect Pensions General Ledger Account [212105] to determine whether any pensions have
been paid.
19 If the balance is significant, vouch the Pensions Expenditure, by locating the appropriate
payment vouchers, ensuring that all approval procedures have been carried out.
20 Vouch the amount paid, and the name of the Pensioner to the Pension Register

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C2 Non-Wage Payments

1. Main Activities Involved

The audit covers the entire payment process covering:

(a) Requisitions
(b) Authorisations
(c) Local Purchase orders
(d) Receipt of Goods
(e) Payment Vouchers
(f) Cheque and Cash Payments
(g) Recording and allocation of expenditure and
(h) Posting to books of accounts

2. Control Objective

To ensure that all payments made in respect of Non-Wage Expenditure are within relevant
budgets and that this expenditure has been properly incurred and approved in accordance
with specified procedures.

3. Risks

The key risk to the Entity of poor expenditure controls is that goods or services could be
paid for which were not ordered or received or of adequate quality, and that expenditure
was incurred without due regard to economy, efficiency and effectiveness.

The underlying risks are:

(a) payment vouchers may not have supporting documents and were not properly authorised.

(b) the Local Governments Financial and Accounting Regulations may have been flouted when
ordering for goods and services

(c) budget allocations may not have existed for the payment made.

(d) the wrong persons may have been paid.

(e) the payments may have been incorrectly posted in the cashbook and the ledgers and that the
wrong accounts coding may have been used.

(f) Paying a wrong amount

4. Records Required at Audit

The following records should be requested at the start of the audit:

(a) Cash Book;

(b) Copies of Bank Payment Instructions
(c) Requisitions;
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(d) Local Purchase Orders;
(e) Goods Received Notes
(f) Vote Book;
(g) Accounting, Stores and Fixed Asset Records;
(h) Journal/ Payment Voucher File;
(i) Approved Signatories List;
(j) Departmental Organigrams;
(k) List of approved contractors and suppliers
(l) Minutes of Contracts Committee

5. Sampling to be Used

From the cashbook[s] in use in the Entity select:

(a) the largest payments that cover at least 80% by value of all expenditure.
(b) 100% of the “key items” as defined by the Head of Internal Audit.
(c) a balance 10% (by number) of the remaining payments.

Note
(1) Where a payment selected is in respect of an advance for operational expenditure
(e.g. Workshops, Allowances etc), the payment should be tested under programme
C3 – Advances, not under this programme. Such payments should be listed on a
separate schedule.

(2) Where a payment selected is in respect of a procurement contract , there will be

additional tests to be performed which are contained in programme C3 –
Procurement Audit for Goods, Works and Services

6. Estimated Time Budgets

Time Allocated Actual Time Spent Variance Explanation of the variance

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7. Audit Programme - Non-Wage Payments

For the selected sample conduct the following checks:

Ref Audit Programme Tasks

1 Locate the payment voucher and ensure that it has been properly completed and authorised
by officers with appropriate authority.
2 Ensure that where applicable the payment voucher is supported by:
(a) a requisition for goods or services from the user department
(b) a copy of the LPO
(c) a delivery note from the supplier
(d) a GRN from stores
(e) a suppliers invoice
(f) contracts committee authority (for contract payments)
3 Inspect the purchase requisition, LPO and GRN and ensure that each have been fully
completed and signed by the correct officers of appropriate authority.
4 Where applicable inspect evidence that all key aspects of the procurement process have
been properly carried out and that contracts committee approval has been granted.
5 Inspect the suppliers invoice and ensure that:
(a) the payment checking stamp has been fully completed by the appropriate offices
(b) the details of goods and services thereon match all the supporting documentation
(requisition, LPO, GRN etc.).
(c) all calculations and arithmetic is correct
(d) the price is in accordance with Contract Committee approved prices or other approved
price lists/ quotations
6 Confirm that the expenditure has been charged to the correct vote/ sub vote.
7 Confirm that the LPO and the payment have been properly recorded in the respective vote
book and that budget availability existed at the time of incurring commitment for the
expenditure
8 Confirm that the LPO was correctly entered into the commitment register, and that the
commitment was subsequently ‘extinguished’ once payment was made [ cheque issued]
9 Inspect the payment instruction and ensure that;
(a) signed by authorised signatories
(b) made payable to the correct payee per the invoice/ contract and Bank Account

10 Where applicable,inspect the paid cheque and ensure that:

(a) it has been crossed
(b) signed by authorised signatories
(c) made payable to the correct payee per the invoice/ contract
11 Ensure the payment instruction has been recorded in the Payments Register
12 Trace the payment and its classification into the Abstracts Ledger
13 Add up the Abstracts Ledger and check the postings of the totals into the General Ledger.
14 Where applicable check that stores purchases are correctly recorded in stores records by
checking from the Goods Received Note to the stores record.
15 Where applicable check that fixed assets are correctly recorded in fixed asset register by
checking from the Goods Received Note to the Fixed Asset Register.

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C 3 Procurement Audit for Goods, Works and Services

1. Main Activities Involved

This audit programme covers contracted procurement expenditure on Council’s Goods,

Works and Services.

Note: Some audit tests within this section have been covered above under the audit of
Non-Wage Expenditure.

2. Control Objective

To ensure that that all contracts (written or implied) are properly entered into and that they
are correctly implemented.

3. Risks

The risk to the Entity of poor control over contracts is that goods will be paid for which
were not ordered or received; that goods were not purchased with due regard to economy,
efficiency and effectiveness and that contract execution did not deliver the quality,
quantity, or benefits expected,

4. Records Required at Audit

The following records should be requested at the start of the audit:

(a) Estimates;
(b) Vote Book;
(c) Accounting Records;
(d) Copies of all relevant Contracts;
(e) Goods Received Records;
(f) Financial Regulations;
(g) Contract Committee Minutes and Working Papers; and
(h) Petty Contract Vouchers.
(i) Payment Certificates / Certificates of Work Done

5. Sampling to be Used

The selection of transactions to be tested will have been done under programme C2
above – Non-Wage Payments. To recap, the selection is from the cashbook - select:
• the largest payments that cover at least 80% by value of all contract payments.
• 100% of the “key items” as defined by the Head of Internal Audit.
• a balance 10% (by number) of the remaining contract payments.

6. Estimated Time Budgets

Time Allocated Actual Time Spent Variance Explanation of the variance

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7. Audit Programme - Procurement Audit for Goods, Works and Services

For the selected sample conduct the following checks:

Ref Audit Programme Tasks

Tendering
1 Obtain the contract file, and through inspection of the Contract Committee minutes and other
documents confirm that PPDA regulations were complied with regarding, the following
requirements : [ simultaneously record the project chronology]
2 The preparation and approval of specifications or Terms of Reference
3 Advertising the tender, or shortlisting of suppliers/ contractors
4 Receipt, storage and opening the tender bids.
5 Technical evaluation of bids
6 Evaluation of financial proposals
7 The contract negotiation, finalisation and award
Contract execution and payment – [record the project chronology]
8 Inspect evidence of adequate contract monitoring and supervision by the LG
9 Confirm the contract has been recorded in the commitment register
10 Confirm all payments are supported by an authentic progress payment certificate, prepared
by the contract specified technical supervisor , and fall within the payments schedule of the
contract
11 Confirm the payment is supported by a contactors invoice, and all internal approval
processes have been completed
12 Ensure Progress payments reflect the deduction, where appropriate, of retention fees.
13 Confirm the expenditure has been correctly allocated, and is recorded in the vote book, and
the commitment register
Contract Completion
14 Confirm that a project completion certificate has been completed by the technical supervisor
15 Confirm any other key user or stakeholder has similarly signed a completion/acceptance
certificate, and that issues of satisfactory quality and quantity have been addressed
16 Review the project evaluation report to ensure it was diligently completed, and to ensure that
any serious issues have been escalated and dealt with at the appropriate level
17 Review the project chronology to ensure the time elapsed through the various stages of the
project cycle were reasonable and efficient
18 Where applicable inspect the Output produced, and interview the users of the output. Make
an informed judgment [acknowledging technical limitations of the IA] as to whether the
outputs appear to be “ fit for purpose [ FFP] ”. If FFP appears questionable, escalate the
matter through appropriate channels and call for an independent technical inspection.
Fixed Asset Record
19 Where the contract has given rise to the acquisition or construction of an asset(s), check that
all details of the asset(s) have been fully recorded in the fixed assets register
Minor Works (Petty Contracts)

NB mainly the supply of casual labour - usually via a petty contract voucher.
20 From Accounting Records (Expenditure) ensure that no payments are made without the
existence of a supporting Petty Contract Voucher.
21 Confirm the existence of adequate evidence that the work was actually completed.
22 From the Petty Contract Voucher confirm that there are signatures/marks/thumbprints of the
casual labourers confirming hours worked and amounts paid. (NB. Examine these carefully to
ensure they were made by the people concerned. Try to attend a pay parade).

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C4 Advances and Allowances

1. Main Activities Involved

This audit programme covers the audit of personal advances, and administrative advances
to the Entity’s staff to facilitate operations of the Entity [ Workshops. Allowances etc]

2. Control Objective
To ensure that all personal and administrative advance accounts are properly managed
and accounted for, and all allowances paid are approved and in accordance with specified
rates.

3. Risks

The key risk to the Entity is of poor control over advances and allowances resulting in
advances not being properly recorded, retired and accounted for. This could lead to
misappropriation and/or improper use of Entity Funds.

The underlying risk is that money advanced will never be properly accounted for or fully
recovered by the Entity.

4. Records Required at Audit

The following records should be requested at the start of the audit:

(a) Advance register;

(b) Cash Book;
(c) Payment Vouchers for advances;
(d) Advance Account Ledger;

5. Sampling to be Used

Obtain a listing of all advances issued during the period of audit ;

Thereafter, from the Advances Register select:

(a) the largest advances that cover at least 80% by value of all advances.
(b) 100% of the “key items” as defined by the Head of Internal Audit.
(c) a balance 10% (by number) of the remaining advances.

6. Estimated Time Budgets

Time Allocated Actual Time Spent Variance Explanation of the variance

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7. Audit Programme - Advances and Allowances

For the selected sample conduct the following checks:

Ref Audit Programme Tasks

1 From the selection of payments from the cashbook, ensure that the all pertinent details of the
advance are recorded in the respective advances register.
2 All Advances
For the sample selected from the Advance Register confirm that:
a the granting of advance has been authorised by the Chief Executive as required by LGFAR .
b the officer to whom the advance was made did not have any other outstanding / unaccounted
advance
c the amount advanced agrees with the authorisation and the payment voucher, and that the
payment voucher effectively constitutes an “acknowledgement of debt”
3 Administrative Advances
a Confirm that a full accountability return was submitted within one month of original
disbursement.
b Scrutinise the return in detail to ensure that all elements of the accountability are in order, and
vouch the expenditure to valid supporting documentation e.g.
i) Signed receipt of allowances schedules which must be matched to signed schedules of
attendance registers, ensuring the rates for allowances are in accordance with approved
rates
ii) Authentic invoices for the supply of accountable services or goods [ hotel or fuel invoices,
etc]
iii) Determine whether there was, or should have been, a balance left over [ this should
usually be the case], and verify that this sum was returned, receipted, and accounted for.

c Report on the total amount vouched in the entire sample , and the total amount and the
percentage returned, and seek justification where the amount returned is unrealistically low.

d Check the accounting of the return to the related journal, confirming that the correct account
code has been charged.
4 Personal Advances
a Check that recoveries are being made according to schedule, and recovery is not overdue
b For all recoveries reflected, check the evidence that the amount concerned was actually
received or deducted from salary.
c Where an officer has transferred between departments, check that the advance record has
been properly transferred to ensure accountability or recovery.
d Where an officer has resigned, retired or dismissed, check that the outstanding advance
balance has been fully recovered.
e Check that the previous years balance has been correctly brought into account for this year.
f Agree the balances on individual accounts with the individual’s concerned.

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C5 Imprests

1. Main Activities Involved

This audit covers the issue and retirement of Imprest accounts.

2. Control Objective
To ensure that all imprest accounts are properly managed and accounted for.

3. Risks

The risk to the Entity is that poor control over the issue and management of imprest
accounts may result in their improper use, including misappropriation, and subsequent
inaccurate or incomplete retirement.

4. Records Required at Audit

The following records should be requested at the start of the audit:

(a) Standing Imprest Record;

(b) Cash, Cash Book, Vouchers;
(c) Special Imprest Records;
(d) Accounting Records (retired imprests);

5. Sampling to be Used

From the record of standing and special imprests, select imprests that represent at least
80% by value of all imprests.

6. Estimated Time Budgets

Time Allocated Actual Time Spent Variance Explanation of the variance

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7. Audit Programme - Imprests

For the selected sample conduct the following checks:

Ref Audit Programme Tasks

1 Obtain details of all outstanding imprest balances held by the imprest holders for the sample
selected and confirm that:
(a) the Financial Accounting Regulations and requirements of the Financial and Accounting
Manual have been followed in respect of the imprests.
(b) that the cash book for the imprest has been properly maintained and reflects all the
payment vouchers, and can be reconciled to the balance of cash.
(c) Count the cash on hand and agree it to the imprest accounting record.
2 For the retired imprests selected in the sample confirm that:
(a) the Financial Regulations and requirements of the Financial and Accounting Manual have
been followed in respect of the imprests.
(b) for workshops etc a budget was approved.
(c) that the imprests selected have been fully retired with adequate supporting
documentation for sums expended (all payments are fully supported by signed
disbursement sheets).
(d) check that the expenditure has been allocated the correct COA classification.
(e) check the posting of expenditure to the general ledger
(f) where the special imprest was for attendance at seminars meetings etc. investigate all
claims for accommodation, meals and transport. Contact the organisers to find out what
they paid for and what the delegates had to fund themselves, and that correct payments
were made only to approved participants by reference to the workshop documentation.
(g) check that the imprest was sufficient, and not excessive to meet its purpose. (It should be
just large enough to cover the period of transactions plus allow time for reimbursement to
take place, and not be retired with an excessive balance)

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D ASSETS

D1 Fixed and Non Produced Assets

1. Main Activities Involved

This audit programme covers the audit of the Council’s fixed assets including its

(a) Non Produced Assets [Land]

(b) Buildings,
(c) Roads & Bridges
(d) Transport Equipment
(e) Machinery & Equipment
(f) Furniture & Fixtures,

The programme incorporates, additions, disposals, the calculation of depreciation,

title/ownership, physical inspection, as well as the operations and usage of assets

2. Control Objective

To ensure that the Council operates adequate management over all categories of fixed
assets , including their acquisition, day to day operation, maintenance and disposal.

3. Risks
The key risk to the Council is that fixed assets acquired by the Council are not properly
recorded in the Council’s books of account, and that assets may be sold to or utilised by
third parties without due and valid approval, and that the value received may be
misappropriated.
The underlying risks are:

(a) failure to comply with procedures and regulation for the procurement, and disposal of
land and building

(b) that there is poor control over the day to day costs of operating and maintaining assets,

(c) assets are not properly maintained so that they are fit for purpose

(d) that there is poor control over the use and allocation of assets

(e) that excessive costs are incurred and/ or revenue is lost by the Council

4. Records Required at Audit

The following records are required for the audit:
(a) Asset register
(b) Title deeds, and registration documents
(c) Council policy for the acquisition, hire, lease and disposal of assets ;
(d) Cash Book
(e) Payment Vouchers
(f) Hire/ lease documents
(g) Ledger Accounts for fixed assets

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5. Sampling to be Used

From the Assets Register, select all assets acquired during the year .

6. Estimated Time Budgets

Time Allocated Actual Time Spent Variance Explanation of the variance

7. Audit Programme - Fixed and Non Produced Assets

For the selected sample conduct the following checks:

Ref Audit Programme Tasks

Acquisition of Assets
1 Confirm that:
(a) the Council’s Acquisition policy have been followed, (i.e. procurement and contracts
committee procedures), and vouch the expenditure accordingly.
(b) the Council’s hiring/leasing policies have been followed
(c) the Asset is recorded in the General Ledger
2 Vouch the asset cost reflected in the ledger back to the payment voucher. Note that under the
Expenditure audit programme [C2], the majority of the larger asset purchases will have
already been vouched. This test is to vouch the remaining assets
3 For acquisitions ensure that the appropriate asset registers have been updated correctly with:
(a) asset details
(b) asset costs
(c) acquisition and ownership details
(d) appropriate depreciation/amortisation charge
4 Obtain and review a schedule of the asset balances per the fixed assets register, add it up,
and ensure it balances, or has been formally reconciled with the related GL account.
Investigate discrepancies.
5 Verify the existence of a sample [ say 80% by value] of the assets on the register by physical
inspection. [Simultaneously note the physical condition of the asset]
6 Establish existence/ ownership of legitimate title deeds, registration books etc in Entity
Name.
Maintenance
7 Confirm that the Entity has in place a policy for the repair and maintenance of the sampled
assets. Where applicable ensure that the policy is based on time and usage of the asset [ eg
vehicles, equipment etc]. Confirm that asset registers/ records/ job cards record the usage
and maintenance costs for the individual assets.
8 Review the maintenance costs and charges made to the ledger accounts for the selected
assets for reasonableness.
9 For any assets noted as being in unsatisfactory state of repair [test 4], determine whether a
maintenance budget exists. If not discuss the matter with the CAO, and determine what
action must be taken
Operations and Usage – General
10 Confirm that assets are being used for the appropriate task, (i.e. for Entity operations and
revenue generating activities. Investigate assets not being used for such activities.
11 Confirm that adequate security arrangements exist for the storage and custody of assets
[particularly vehicles and plant and equipment] such that it is unlikely assets can go missing,
or be utilised for “ private contracts”
12 Confirm that where assets are leased out or used by third parties or other departments that
this is properly approved and adequate charges are made [ according to an approved tariff]
and that related revenue has been received and banked.
Operations and Usage – Vehicles
13 Confirm from stock records for petrol, diesel, oil, tyre and other “consumable items” and
check these to the related records of issues of the same to vehicles maintenance cards.

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Ref Audit Programme Tasks
Check that the stock and maintenance records accurately reflect the operational use of both
consumable items and the use of the vehicle and vice versa.
14 Examine the log books for sample vehicles and investigate reasons for low or excessive use.
15 Examine the record of kilometres per litre for each vehicle, as well as the overall cost running
cost per kilometre, and ensure that obvious anomalies have been acted upon.
16 Examine the record for tyre issues and ensure that obvious anomalies have been acted upon.
17 Examine the record for spare parts and ensure that obvious anomalies have been acted
upon.
18 Confirm that vehicles are being used for the appropriate task, (i.e. is a 4X4 being used when
a normal car could do the same job at less cost).
19 Confirm that careful consideration been given for routing vehicles, delivery/collection routes,
etc.
20 Confirm that adequate security arrangements exist for the garaging of vehicles.
21 Confirm that adequate security arrangements exist for the custody of vehicle spares and tools
etc.
22 Confirm that there is a system for recording all expenditure and costs relating to individual
vehicles, as well as in total
Asset Disposals
23 For all disposals recorded in the asset register, carry out the tests listed in the programme
Capital Receipts

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D 2 Investments

1. Main Activities Involved

This audit covers the audit of the item of investments on the Entity’s balance sheet.

2. Control Objective

To ensure that all investments have been recorded at the period end and that amounts in
the balance sheet are stated on a consistent basis and are properly classified and
described.

3. Risks

The key risk to the Entity is that the investments of the Entity are not properly recorded in
the Entitys books of account and balance sheet, and that investments they may be sold to
or utilised by third parties without due and valid approval, and the disposal value or
interest received may be misappropriated.
The underlying risks are:

(a) failure to comply with procedures and regulations governing investments

(b) that there is poor control over monitoring the value of the investment, as well as its
returns, and any “retain / or sell” decisions

(c) weak understanding of the risks involved in holding an investment [possibilities of

losses]

(d) that excessive costs are incurred and/ or revenue is lost by the Entity

(e) lack of proper custody of certificates and title

4. Records Required at Audit

The following records should be requested at the start of the audit:

• Investment Register
• Accounting Records;
• Bank Statements
• Investment certificates
• Interest notices
• Entity Investment Policy.
• Minute of council.

5. Sampling to be Used

Review all investments undertaken during the period of audit

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6. Estimated Time Budgets

Time Allocated Actual Time Spent Variance Explanation of the variance

7. Audit Programme - Investments

For the selected sample conduct the following checks:

Ref Audit Programme Tasks

1 From the investment register ensure, through inspection that investment certificates [ or other
evidence of title] are held in the name of the Entity for all recorded investments .
2 Confirm that income has been received for all investments, and verify the receipt of interest to
the bank statement and investment register.
3 For new investments, confirm the payment per the cash book and the investment register to
the investment certificate.
4 Confirm that investments are subject to annual valuation, and that appropriate appreciation or
depreciation entries are recorded in the investment account and the reserve account.
5 Confirm that proceeds from the sale of investments are properly recorded in the investment
register, investment account and shown in the bank statement.
6 Ensure that Entity has approved and minuted all acquisitions or disposals,

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D3 Stores

1. Main Activities Involved

This audit covers the audit of the item of stores/ stocks on the Entity’s balance sheet.

2. Control Objective

To ensure that all stores have been recorded at the period end and that amounts in the
balance sheet are stated on a consistent basis and are properly classified, described and
costed.

3. Risks

The key risks to the Entity is that the value of stores and stocks of the Entity are
overstated and not properly recorded in the Entities books of account and balance sheet,
and that stores may be misappropriated . This will mean that the Entity’s expenses have
been understated.
The underlying risks are:

(a) failure to comply with procedures and regulations governing stores

(b) that there is poor control over the use and allocation of stores

(c) that excessive costs are incurred and/ or revenue is lost by the Entity

4. Records Required at Audit

The following records should be requested at the start of the audit:

(a) Stores Ledger/ record

(b) Stock Accounting Records/ Cards;
(c) Schedule of Debtors;
(d) Entity Accounting Policies Statement;
(e) List of stock write offs.

5. Sampling to be Used

From the stores ledger/ records select:

(a) the largest stock values that cover at least 80% by value of all stores.
(b) 100% of the “key items” as defined by the Head of Internal Audit.
(c) a balance 10% (by number) of the remaining stores.

6. Estimated Time Budgets

Time Allocated Actual Time Spent Variance Explanation of the variance

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7. Audit Programme - Stores

For the selected sample conduct the following checks:

Ref Audit Programme Tasks
Security
1 Confirm that when you arrived at the stores, you were asked to show your identification prior
to access.
2 Confirm that there is a controlled access point into the stores.
3 Confirm that the premises seem secure against intruders.
4 Can storekeepers observe all exits? If not, is any improvement possible?
5 List the key-holders.
6 Confirm that the storekeeper is the only person allowed to receive and issue stores.
Ordering
Note that the ordering function is audited under the Programme on Purchasing of Goods and
Services. No further testing should be necessary.
Goods Received [ and goods returned ]
Note that the Goods Receiving function is audited under the Programme C1 – Purchasing of
Goods and Services. However because it is necessary to do an intensive audit of the stock
records over one entire month, additional block testing is required as follows:
Select all GRN’s issued for the entire previous month [ also covering any goods returned into
stores ] and,
7 Check that all details were correctly and promptly entered onto the stock records
[ GRN No, date, description, quantity, cost, LPO No etc]
8 Confirm that any bulk materials were weighed before being accepted. Check the last five
bulk deliveries.
9 For a sample of say 10 -30 high value / desirable items from the stores ledgers/ records carry
out a physical stock verification and investigate any missing items /discrepancies
Issues
From the Stores Issues Notes select all issues made in the preceding month and test as
follows:
Check the details on the issue note to the requisition note, which must be prepared by
persons who are not storekeepers.
10 Check that all details were correctly and promptly entered onto the stock records
11 Stock Cards
Validate the authenticity of all entries on the stock cards for the preceding month by
scrutinising all stock cards to ensure that all entries relating to stores received, and stores
issued, have been ‘ticked’ during the conduct of tests 8 & 11
12 Investigate fully any entries on the stock records [ in the preceding month] which have not
been ticked, - as they appear to be ‘invalid’ entries
13 Stock Counts
Select at least 50% by number of the stock cards and physically count the stock, comparing
the count amount to the balance on the card. Note all differences, [ including the unit cost of
the item]
14 Request storekeepers to explain the discrepancy and investigate the authenticity of their
explanation.
15 Initiate official ‘ write off’ procedures for any discrepancy
16 Confirm through enquiry and inspection of stock sheets that Stores / Stocks have been
comprehensively physically counted at least quarterly, by persons independent of the
storemen
17 Verify that a Board of Survey was convened in accordance with the Financial and Accounting
Regulations, and appropriate action taken on any subsequent report.
18 Write-offs
Confirm that all differences / shortfalls per 17 above were reported and dealt with through the
official ‘write off’ procedure
19 Confirm that obsolescent and damaged items are properly approved for write off and that the
stock ledger/ records are updated correctly and contain appropriate reference to the write-off
approval.
20 Scrutinize all write offs that have been made and ensure that they have been appropriately
reported, approved and accounted for per LGFAR ….
21 Confirm existence and compliance with procedures for identifying slow moving, expired and
obsolete stocks
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D4 Debtors, Prepayments and Advances

1. Main Activities Involved

This audit programme covers the audit of the item of debtors, prepayments and advances
on the Entity’s balance sheet.

2. Control Objective

To ensure that all debtors, prepayments and advances have been recorded at the period
end and that amounts in the balance sheet are stated on a consistent basis and are
recoverable

3. Risks

The key risk to the Entity is that debtors, prepayments and advances may be misstated or
may not be recoverable. This would mean that the Entity has recorded more income or
revenue than it expects to collect, and that the financial position is misstated.

The underlying risks are:

(a) the recorded debtors may not accurately represent the amounts due from third parties at the
period end, and may be fictitious

(b) debtors, prepayments and advances may not be accurately stated and not valued according to
sound accounting principles

(c) The recorded debtors, prepayments and advances may not be attributable to the Entity.

4. Records Required at Audit

The following records should be requested at the start of the audit:

(a) Accounting Records;

(b) Schedule of Debtors, pre-payments and advances
(c) Entity Accounting Policies Statement; and
(d) List of Bad Debts and write offs
(e) Board of Survey Report
(f) Performance Bonds
(g) Revenue Registers
(h) Minute of the Executive Committee (on write offs)

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5. Sampling to be Used
The audit programme consists of substantive tests.

The Auditor is looking at the possibility that debtors/ prepayments and advances are
overstated, and must therefore conduct tests to ensure that there are no significant
inclusions.

Perform a 100% check on all items appearing on the account balances as per the audit
programme below.

6. Estimated Time Budgets

Time Allocated Actual Time Spent Variance Explanation of the variance

7. Audit Programme - Debtors, Prepayments and Advances

For the selected sample conduct the following checks:

Ref Audit Programme Tasks

Debtors
1 Obtain a schedule of debtors and prepayments
2 Confirm that the schedules add up correctly.
3 Confirm that the totals agree with those in the debtors control account. If not, ensure that a
valid reconciliation has been prepared.
4 Confirm that all the debtor’s balances on the schedule agree with the debtor’s statement (or
a valid reconciliation).
5 Vouch or verify any material reconciling items.
6 Vouch significant debtors by either:
• Ensuring the amount was received / banked after the period end
• Confirming that rigorous authentic follow up actions have been instituted
• Consider contacting the debtor to confirm the amount is still unpaid and is due.
• Confirm contracts exists between Council and its debtors.
7 List any credit balances and establish valid reason for existence. [indication of money being
paid to Entity before an assessment is issued]. If the cause was a late assessment, the
amount is an error and should be taken to revenue
Bad and Doubtful Debts
8 Establish the basis on which Entity provides for bad and doubtful debts. Confirm that the
basis for making provisions for bad and doubtful debts is in accordance with LGFAR.
9 Review the revenue collection “follow up file” , to identify whether adequate provision has
been made on the schedule for all persistent defaulters, and that such defaulters have been
handed over to recovery agents
10 Establish what debtors/ revenue have been written off during the year, and ensure all write
offs / waivers have been approved and accounted for in the prescribed manner – LGFAR /
Accounting Manual …..
Prepayments
11 For significant prepayments check the payment voucher to ensure that an authentic
prepayment of expenditure exists.
12 For advance payments on contracts, ensure a performance bond exists.
Advances
13 Note - by the year end, all advances should have been cleared by the recipient
For those advances still on the books, confirm that the original payment was authorised, and
that repayments are being made according to entity policy, and are up to date

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D5 Cash and Bank Balances

1. Main Activities Involved

This audit programme covers the audit of the key aspects of Treasury Management: cash
and bank balances. It covers both the operation of cash book[s] and bank accounts during
the course of the year, as well as balances at the year end.

2. Control Objective
To ensure that all bank accounts are properly authorised and that cash books are properly
maintained and reconciled to the Bank Statement on a regular basis.

3. Risks

The risks to the Entity of poor control over cash and bank balances are that funds will not
be properly controlled, and are therefore subject to misuse or loss,

4. Records Required at Audit

The following records should be requested at the start of the audit:

(a) Details of all bank accounts;

(b) Certificate of Bank balances;
(c) Correspondences with the Bank
(d) Financial Regulations (Banking Instructions);
(e) Cheque Books/Bank instructions records;
(f) Bank Reconciliations.
(g) Board of Survey Report
(h) Cash Books

5. Sampling to be Used
Select 100% of Bank Accounts

6. Estimated Time Budgets

Time Allocated Actual Time Spent Variance Explanation of the variance

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7. Audit Programme - Cash and Bank Balances

For the selected sample conduct the following checks:
Ref Audit Programme Tasks
SYSTEM & COMPLIANCE TESTS
Bank Accounts
1 Obtain details of all bank accounts with full titles, account numbers and authorised signatories.
2 Authenticate this list by requesting the Bank(s) concerned to confirm in writing all accounts in
operation [and any dormant].
3 Confirm that the number and nature of bank accounts conforms to LGFAR
4 Obtain a copy of the contract and correspondence with the Entity’s bankers ,and confirm that the
Entity has taken appropriate steps to negotiate favourable conditions of service, and favourable
bank charge rates.
5 Confirm instructions have been issued that that money can only be released from the main bank
account to fund subsidiary accounts out of which payments are made.
6 Confirm that all subsidiary bank accounts are operated on an imprest basis.
Cheque Control
7 Confirm that cheques are stored in safe custody and subject to control via a cheque register, which
covers the operation of all bank accounts.
8 Review the payment register and confirm that all cheques/payment instructions are issued to
approved and identifiable personnel and acknowledged in writing. Authenticate the signature
9 Confirm that the stock balance of cheques is verified at least monthly
10 From the payment register, select one used cheque book/payment instructions for every bank
account, obtain the cheque book and the returned cheques from the bank [ if available], and
account for the entire sequence of cheques in the related cash book
11 Inspect the returned cheque to confirm that are “open” cheques are never used, and all cheques
have been signed by the stipulated number of designated signatories.
12 If any cheques are spoiled or cancelled inspect the cheque to ensure it has been properly
cancelled.
13 Confirm that cheques returned as “unpaid” have been cancelled, and a new chque issued, and the
payment voucher annotated [ and approved] accordingly.
Reconciliation of Cash Books with Bank Statements
14 Confirm that the person(s) responsible for bank reconciliations are independent of the preparation
and despatch of cheques/payment instructions.
15 Confirm that bank reconciliations are made monthly or every time a bank statement is received.
16 For each bank account check one bank reconciliation as follows:
(a) Verify the arithmetic accuracy of the reconciliation ;
(b) Verify the “ cash book balance” and the “bank statement balance” with their respective sources
(c) Trace all outstanding cheques and deposits through to the bank statement in the next
accounting period and verify their validity;
(d) Scan the cashbook/bank statements for any unusual items (e.g. contra entries, dishonoured
cheques) and investigate;
(e) For any cheques that are still outstanding :
i) examine the nature of the item not cleared;
ii) examine the supporting documentation and authorisations to determine whether they
were of a routine nature;
17 Obtain direct confirmation of account balances from the bank and compare these with the cash
book balances and ensure that this agrees with the Board of Survey Report.
18 Check the arithmetical accuracy of all cash books and check every cash book balance back to its
respective GL account
19 Examine security arrangements and adequacy of insurance cover, including for cash in transit
YEAR END BALANCES
20 Confirm that full bank reconciliations have been prepared for all bank accounts, and scrutinise
reconciliations for reasonableness. Obtain explanations for unusual reconciling items, and validate
as necessary
21 Agree balances per cash book to the respective general ledger account
Imprest Balances
20 Check that the imprest balances at the end of the year, agree with the Board of Survey cash
counts.

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E LIABILITIES

E1 Trade Creditors and Accruals

1. Main Activities Involved

Creditors relate to invoices received by the Entity that are still to be paid in respect of goods, works
and services supplied and expenses applicable to the current year for which invoices are pending.

2. Control Objective

To ensure that all creditors and accruals have been correctly recorded at the period end
and that amounts in the balance sheet are stated on a consistent basis and are properly
classified and described.

3. Risks

The key risk to the Entity is that creditors and accruals may be misstated. This would
mean that the Entity has not recorded all the expenditure it has incurred and that the
financial position is misstated.

The underlying risks are:

(a) the recorded creditors may not represent all the amounts due to third parties at the period end

(b) Accruals and provisions may not be accurately stated and not valued according to sound
accounting principles

(c) The recorded creditors and accruals may not be attributable to the Entity.

4. Records Required at Audit

The following records should be requested at the start of the audit:

(a) Accounting Records;

(b) Schedule of Trade Creditors and accruals
(c) Commitments register
(d) Unpaid invoices;
(e) Age Analysis;
(f) Exchange Rate Data;
(g) Annual Accounts.

5. Sampling to be Used

The audit programme consists of substantive tests. From the commitments register select:

(a) the largest value items that cover at least 80% by value of all commitments.
(b) 100% of the “key items” as defined by the Head of Internal Audit.
(c) a balance 10% (by number) of the remaining commitments.

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6. Estimated Time Budgets
Time Allocated Actual Time Spent Variance Explanation of the variance

7. Audit Programme - Trade Creditors and Accruals

For the selected sample conduct the following checks:

Ref Audit Programme Tasks

Trade Creditors
1 Obtain a schedule of creditors as at the end of the last quarter.
2 Confirm that the schedule adds up correctly.
3 Confirm that the schedule totals agree with those in the creditors control account. If not
ensure that a valid reconciliation has been prepared.
4 Confirm that all the creditor’s balances on the schedule agree on or with the creditor’s
statement (or a valid reconciliation).
5 Vouch or verify any material reconciling items
6 For the items/ amounts selected from the commitments register, check to ensure that the
item/amount appears on the creditors list. If it does not, check to ensure that the goods or
services were received after the period end [ in which case exclusion from creditors is OK]
7 Compare this years schedule with that of the previous year/ period. If major creditors appear
on last year/ period list that are absent this year/ period ensure that there are valid reasons
and that there is no omission.
8 Scrutinise the vote book and check the last payment entries before the end of the year as
follows:
(a) ascertain whether the goods and services were received before the year end.
(b) If so, ascertain whether the payment appears in the cash book before the year end.
(c) If not ensure that the liability (invoice) appears on the schedule of creditors.
Non-trade Creditors and Accrued Liabilities
9 Confirm that the basis for accrued liabilities is consistent with previous years from the Entity’s
Accounting Policies statement.
10 Confirm, by re-performance, that the accrued liabilities calculations are correct.
Provisions
11 Obtain from the accounting records, a schedule of provisions.
(a) confirm that the basis for provisions is consistent with previous years from the Entity’s
Accounting Policies statement
(b) confirm, by re-performance, that the provision calculations are correct
12 Confirm that any disclosures of material provisions have been made in the final accounts.
13 Ensure that any commitments in the commitment register, which are not included in
Creditors, appear as a note in the financial statements.
14 For all commitments in the register at the end of the fiscal year, confirm that official approval
has been received from MOFPED to hold back the required cash.

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E2 Loans / Borrowings

1. Main Activities Involved

Loans may be raised and received by the Entity to fund capital and development works. The terms
of loans will include repayment of interest and principle. These terms must be complied with and
the use of the application of the loan confirmed to ensure it has been used for the purpose for
which it was intended.

2. Control Objective

To ensure that all loans have been recorded correctly in the balance sheet are have been
raised in compliance with the relevant Laws.

3. Risks

The key risk to the Entity is that loans have not been recorded properly and the financial
position is not misstated.

The underlying risks are:

(a) the loan balances do not represent all the loan amounts due to third parties at the period end

(b) that loan receipts have not been applied for the purpose(s) intended, and

(c) The Entity may not have complied with all regulations regarding the raising and repayment of
Loans

4. Records Required at Audit

The following records should be requested at the start of the audit:

(a) Accounting Records;

(b) Loans Register
(c) Loans Ledger
(d) Loan Agreement
(e) Commitments register
(f) Unpaid invoices;
(g) Age Analysis;
(h) Exchange Rate Data;
(i) Annual Accounts.
(j) Minute of council.

5. Sampling to be Used

The audit programme consists of substantive tests.

From the Loans register select all loans acquired during the year.

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6. Estimated Time Budgets

Time Allocated Actual Time Spent Variance Explanation of the variance

7. Audit Programme - Loans / Borrowings

For the selected sample conduct the following checks:

Ref Audit Programme Tasks

1 Verify that the procedure for obtaining the selected loans was in accordance
with the provisions of the Law.
2 Review the minutes of the Entity to ensure that the loan was properly
authorised
3 Review the usage of the loan to ensure that it was used for the purpose for
which it was obtained
4 Review the terms of the loan and verifying compliance with them
5 Confirm that all interest and principle due on the loan has been paid or
accrued
6 Confirm the loan balance to an official statement provided by the lender, or
validate any reconciling item. In particular ensure that any “repayment”
reflected on the Entity’s record, is reflected on the Lenders statement.
7 Confirm that a loan progress report is prepared by the HOF

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F1 Reserves

1. Main Activities Involved

This audit covers the movements and the closing balances on all Capital and Revenue
Reserves

2. Control Objective
To ensure that Capital and Revenue Reserves have been correctly reconciled and
accounted for in accordance with stipulated accounting policies.

3. Risks
The key risk to the Entity is that the reserves are misstated, and that the financial
statements therefore misrepresent the financial position of the Entity as reflected on its
balance sheet.

4. Records Required at Audit

The following records should be requested at the start of the audit:

(a) Entity Policy for Reserves

(b) Schedule showing the movement on Reserves between the opening and closing balances.

5. Sampling to be Used

(a) 100% of movements should be verified.

6. Estimated Time Budgets

Time Allocated Actual Time Spent Variance Explanation of the variance

7. Audit Programme - Reserves

For the selected sample conduct the following checks:

Ref Audit Programme Tasks

Accumulated Fund
1 Ensure that the Accumulated Fund is properly reconciled, and comprises the Balance
Brought Forward from previous year, plus / minus the surplus / deficit of revenue over
expenditure
All Other Capital & Revenue Reserves.
2 Investigate all other movements on any Reserve Account, obtain explanations for the
increase or decrease, and ascertain what the closing balance represents [ ie what is the debit
transaction that gave rise to the Reserve ]
3 Authenticate all significant movements, and the amount, by reference to supporting evidence,
e.g. a capital reserve arising from a revaluation of fixed assets, should be supported by the
valuers report.

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G1 Review of Financial Statements

1. Main Activities Involved

This covers the review of the operation and management of the accounting systems and
the preparation of financial statements

2. Control Objective
a. To confirm that the accounting systems, records and preparation of financial
statements are in accordance with the Local Governments Financial and
Accounting Regulations.
b. To confirm that the accounting system produces accurate, reliable, and complete
reports and that the financial statements are prepared in accordance with Local
Governments Financial and Accounting Regulations.
c. To confirm that the Accumulated Fund balance reconciles with the Revenue &
Expenditure account.

3. Risks
The key risk to the Entity is non-compliance with accounting requirements, controls and
procedures resulting in the failure to meet legislative and reporting requirements.
The underlying risks are:

(a) the incorrect application, and inconsistency in applying accounting policies and
principles

(b) the incorrect posting of accounting transactions

(c) the production of incorrect or incomplete Financial Statements

(d) The financial statements are not presented in an acceptable format.

4. Records Required at Audit

The following records should be requested at the start of the audit:

(a) General Ledger and Subsidiary Ledgers

(b) Trial Balance
(c) Journal and Journal Reports
(d) Abstracts
(e) Board of Survey Report

5. Sampling to be used

Select
a) all journal entries over an agreed limit to be determined by the Head of Audit
b) the appropriate ledger accounts specified in the audit programme or as directed by the
Head of Internal Audit.
c) all monthly financial statements presented to Entity for the current year

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6. Estimated Time Budgets
Time Allocated Actual Time Spent Variance Explanation of the variance

7. Audit Programme - Review of Financial Statements

For the selected sample conduct the following checks:

Ref Audit Programme Tasks

SYSTEM AUDIT
Check that the ledgers for the General Fund and Operations accounts, and the below-the-line
accounts, are posted, up-to-date and balanced on a monthly basis, and at the year end.
Journal
1 Confirm that all sampled journal adjustments are supported by relevant vouchers which are /
properly filed, completed, authorised and are supported by appropriate documentation.
2 Examine the rationale behind the journal entry and confirm its legitimacy / justification
Trial Balance and General Ledger
3 Check the balances carried forward from last years ledger, to the balances brought forward in
this years ledger
4 For the latest month, obtain the trial balance, and check the arithmetical accuracy of the totals
5 Check all the trial balance figures back to the respective general ledger totals
6 Select sufficient general ledger accounts that make up 80% by value of the total trial balance,
and check the arithmetic accuracy of the total amount in the general ledger.
Financial Statements
7 From this validated trial balance, re - perform the preparation of the financial statements
8 Confirm that the financial statements are produced in the format required by the accounting
manual, and that they disclose all the information required by the The Local Governments
Act, LGFAR and the Accounting Manual
9 Confirm through inspection, that complete financial statements have been prepared at the
end of every month, in a timely manner
10 Confirm that major variances in Revenue and Expenditure are adequately explained in
reports that support the monthly financial statements, and that this report and accompanying
financial statements (latest version) are presented to Entity whenever it meets.
YEAR END AUDIT
11 Repeat tests 4,5,7,8, and 10 for year end purposes
12 Ensure the financial statements are submitted for audit within the prescribed period

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4. PART IV: LOCAL GOVERNMENTS SPECIALISED AUDITS

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4.1 INTRODUCTION
(1) This Section of the Manual contains Specialised Internal Audit programmes for
performing audits in the following areas:

a. Computer Audit

b. Value For Money(VFM) Audit

c. Human Resource Management Audit

(2) It should be noted that each of these audit areas are wide ranging and specialised in
their own right, and contain many sub-audit areas. The programmes provided are not
intended to be comprehensive, but to introduce and enable the Local Government
internal auditor to perform an introductory level of internal audit work, as directed by
the Head of Internal Audit.

(3) The programmes are designed to enable the auditor to review, appraise and report on
some of the key control and procedural areas within each audit area.

(4) It will be noted that there are significant VFM aspects within the Computer and Human
Resource Management audit programmes/ checklists.

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4.2 COMPUTER AUDIT

4.2.1 Introduction
(1) Computer Audit can be categorised into the five main areas identified in the table below. The
areas have different relevance to the Local Government Internal Auditor. This will depend
upon the particular computer system and environment to be audited.

Ref Computer Description Applicability to Internal Audit

Audit Area
1 Administrative The review of the Applicable to Computerised
and adequacy of those Management Information Systems
Organisational controls which ensure safe within Local Governments
Controls and efficient day to day
organisation of the
installation;
2 System The review of computer Applicable to Computerised
Procedural systems to ascertain Management Information Systems
Controls whether they incorporate within Local Governments
adequate procedural
controls and that those
controls are not
invalidated by any
subsequent amendment
3 Systems The review of the Not very applicable as there is very
Development adequacy of controls limited computer system
Controls governing the development and maintenance
development and within LG’s.
maintenance of all
computerised systems
4 Acquisition of The review of the systems Not very applicable as there is very
Computer for proposing and limited acquisition of computer
Facilities approving the acquisition facilities. This would best be
of computer facilities and handled as part of the expenditure
checking upon the audit (for new computers) or
accuracy and contracts audit for major new
completeness of the computer installation procurements.
information provided to
assist management in
coming to a decision;
5 Use of The review and appraisal Applicable and can be viewed as a
computer of waste, extravagance Value for money audit within the
Resources and inefficient computer/ IT environment of the
administration or poor Council
value for money

(2) In general, the terms of reference or audit objective for a computer audit are to review,
appraise and report upon the following key areas:

a. The soundness, adequacy and application of standards and procedures for all
stages of systems development, maintenance and operation;

b. The extent of compliance with these standards and procedures;

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c. The security of the organisation's investments in computer hardware and software,
including the adequacy of contingency arrangements;

d. The completeness of information on which proposals for the procurement or

enhancement of computer hardware and software are based; and

e. Whether optimum use is made of all computing resources.

(3) Computer Audit requires a relatively high degree of technical knowledge which may
be acquired through experience but also training in computer systems, processes
and techniques. The audit of the more technical aspects of sophisticated ICT systems
may require the direction, support and review by a specialist Computerised
Information Systems Auditor – CISA

(4) The following audit programmes and checklists have been tailored to enable entry
level computer audits to be undertaken, and in so doing provide explanations and
guidance. However, they cannot be a substitute for acquired computer audit skills
through specialist qualification and training, and the ability to apply more technical
computer audit programmes.

(5) The checklists provide guidance on the key areas to be reviewed and indicate
appropriate questions to ask in order to review and appraise the appropriate
standards, controls and procedures in place, and their level of application and
compliance.

(6) In some instances not all areas will be applicable, however, by attempting to address
as many areas and questions as possible will give an indication of the existing
controls and procedures.

(7) For smaller Councils the use of the small computer application programme/ checklist
may be most appropriate for assessing individual computer systems/ applications.

4.2.2 Administration and Organisational Controls

(!) The overall audit objective of a review of Administrative and Organisational Controls
is to “review the adequacy of administrative and organisational controls to ensure that
the controls and procedures governing the organisation of staff, operational functions,
access to files and software, terminal activity and general environmental protection
provide for safe and efficient day to day operation of the computer installation”.

(2) These controls and procedures can be considered over five sub-objectives

a. Organisational Control: those dealing with the organisation of the responsibilities

of all involved in the computer process and the standards established for their
efficient working;
b. Operational Control: those relating to all aspects of the data preparation, data
control and operating functions;
c. File and Software Control: those governing the access to and protection of all
physical magnetic files and to the data contained on them both by way of software
controls and physical controls;
d. Terminal Control: those governing access to and processing performed by all
terminals connected to the computer installation; and
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e. Environmental Control: those dealing with the risks of fire, flood, vandalism,
sabotage and theft and the adequacy of insurance cover.

(3) The following checklists provide guidance to the auditor in the areas to consider during
an audit. In some instances not all areas will be applicable, however, by attempting to
address as many areas and questions as possible will give an indication of the
strength of the administrative and organisational controls.

a. Organisational Controls
1. Separation of Duties
1. Who has immediate responsibility for managing the computer functions?
2. To what extent is this person involved in the development or operations work?
3. To whom does that person report?
4. How often; and is this on a formal basis?
5. Have job descriptions been defined for all staff?
6. Do different persons perform the following functions:
(a) Development: systems analysis, design and control; maintenance of systems software
(b) Operations, data control; data preparation; operating; file librarianship
(c) Are these arrangements affected by holidays, sickness, etc.
7. Do the following restrictions always apply?
(a) Prime source documents are only handled by data control and data preparation;
(b) Data control has no duties which would violate its control function (e.g. responsibility for
the completeness and accuracy of input and output);
(c) Operators have sole responsibility for operating within the computer installation (i.e.
excluding terminal activity);
(d) Operators are forbidden to correct errors in rejected data and to over ride error
conditions;
(e) Programmers are denied access to program or data files used for production runs;
(f) Author of a program does not design and provide his own test data.
2. Personnel Policies
8. Are adequate references required for all new employees?
9. Are all employees required to sign a security statement?
10. Does the organisation’s termination policy provide for quick removal of discharged employees?
11. Are appropriate security measures taken after employees’ services are terminated (e.g. changing
passwords, reclaiming ID badges etc.)
3. Standards
12. Have written standards been prepared for:
(a) Systems Analysis;
(b) Programmers;
(c) Operators;
(d) Data Control;
(e) Data Preparation;
(f) File Librarian;
(g) User Departments.
13. In the absence of Standards Manual are there written instructions setting out the responsibilities
and duties of the above?
14. Who is responsible for ensuring that the standards and instructions are:
(a) properly prepared?;
(b) complied with?;
(c) adequately amended?
4. Security Officer
15. Is there a designated security officer and, if so, what are his duties?
16. If no member of the computer department is responsible for security then who is?

b. Operational Controls
1. Management and Supervision
1. Who is responsible for scheduling work and checking its execution and the quality of performance?

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2. Personnel Policies
2. If there is a data control section, to whom does it report?
3. Does the data control section have any responsibility for batching and controlling source data on
behalf of a user department?
4. Do data control’s responsibilities include:
(a) only accepting authorised batched documents;
(b) test checking the completeness and accuracy of source documents;
(c) recording the receipt and flow of documents through the computer division;
(d) recording control titles and their reconciliations with computer produced totals;
(e) logging and reporting to senior management the volume of errors and returns;
(f) control of jobs submitted by programmers;
(g) preparation and control of job control statements;
(h) file librarianship;
5. Is any work processed independently of data control (e.g. on line processing) and does data control
monitor or control such activity?
6. In the absence of a data control section, who performs the data control functions and does that
person have other functions (e.g. data preparation, batching and controlling source data on behalf
of users?)
7. How is the risk of duplicate processing minimised?
8. Who has responsibility for error correction?
9. Are such corrections clearly recorded and advised to the user?
10. Is the procedure for re-submitting rejected data clearly defined?
11. Who exercises control over the receipt, custody and issue of financial stationery?
12. Does data control exercise quality control over output before releasing it to users?
13. Is a schedule kept of the expected output and distribution arrangements for each run?
14. Does data control ensure that output is properly distributed?
15. Is abortive confidential output destroyed and are such arrangements applied to waste output from
user departments?
3. Data Preparation
16. Is the receipt of source documents and despatch of keyed data recorded?
17. How is the risk of duplicate processing minimised?
18. Have data entry clerks been instructed not to accept oral amendments to data?
19. Is verification performed independently and by different operators from those who keyed the data
originally?
20. Is all data verified?
21. If only selected data is verified, who determines which items are verified and who checks that the
minimum is adhered to?
22. How is verified data distinguished from unverified data?
4. Operations
23. When is the machine operational?
24. Are two or more operators always on duty?
25. Does this apply during evenings and weekends?
26. Is all weekend work authorised and by whom?
27. Do operators have sole access to the computer room?
28. Are there clear and concise operating instructions for each job?
29. Are operators instructed not to accept oral amendments to these instructions?
30. Is there a written schedule of all jobs to be run each shift?
31. Do operators record that each job has been processed?
5. Logs and Journals
32. How often are logs and journals produced?
33. Who receives them?
34. How are they used?
35. Is a manual log kept indicating:
(a) machine failure;
(b) idle time;
(c) re-runs;
(d) jobs with unduly short/long run times?

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c. File and Software Control
.
1. Program Maintenance
1 Are all program amendments authorised by a senior officer?
2 Is a record maintained of all program amendments and is this record inspected by a senior
officer?
3 Is all program maintenance work processed on test programs and data files?
4 Are programmers denied access to production data files and programs?
5 Are all program amendments tested and checked by a senior officer before their transfer to
production work?
6 If online program development software is employed, does this provide adequate protection
over program maintenance and over other line files?
2. File Librarianship
7 Who is responsible for file librarianship?
8 Is there a separately located tape and disk library?
9 Which generations of data files and programs are separately located?
10 Who has access to such files?
11 What happens during weekends/night shift?
12 Where a librarian is appointed, do they have incompatible responsibilities?
13 Is a record of all files maintained:
(a) Manually;
(b) By Computer.
14 2.8 Are any files not included in the record and/or not under the control of the librarian?
3. Back Up Copies
15 Can production files be reconstructed completely and accurately by:
(a) retaining files and associated input data and operating documents;
(b) maintaining a file generation system.
16 Is data stored on the hard disk safeguarded by periodic dumping to back-up store?
17 Who organises and controls such dumping?
4. File Protection
18 What protection is there in respect of data files?
5. Systems Software
19 Who is responsible for controlling systems software?
20 Are there any special controls over the use of high level utility software? If so, describe.
21 Does the organisation modify any systems software (other than by specifying installation
parameters)?
22 Are such modifications documented?
6. Documentation
23 Does the installation maintain an index of all systems and application software?
24 Are documentation standards prescribed for all application software?
25 Is supporting documentation for all software adequately guarded?

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d. Terminal Controls
1. Physical Access Controls
1. Has a person been made responsible at each terminal site for security of, access to and use of
the terminal?
2. Is authorisation granted for use of each terminal?
3. Are there adequate physical safeguard arrangements for custody of all keys and/or personal
identification devices?
4. Where terminals are not locked, is this deemed adequate?
5. Are all terminals automatically disconnected after a specified time lapse?
6. If not, what protection is there to prevent an unauthorised user accessing the previous terminal
user’s data.
2. Software Control
7. Can each terminal be separately identified by the software system?
8. Must each user identify himself before being granted access?
9. Is effective control exercised over the issue and use of identification codes?
10. Are there adequate procedures for the issue and changing of passwords?
11. Is the printing or display of passwords inhibited? If not, what precautions are taken?
12. Are attempted password violations monitored and reported to senior management?
13. Are there any access restrictions imposed on specified master files?
3. Documentation
14. What documentation is produced of terminal activities?
15. Who receives this and how is it used?

e. Environmental Controls
1. Environmental Controls
1. Is there adequate protection against storm, fire and flood?
2. Is there adequate protection against terrorist attack?
3. Is the computer suite protected against unauthorised entry and how is access controlled?
4. Is all computer equipment subject to regular maintenance?
5. Are there safeguards against the risk of electrical failure?
6. Are there adequate standby facilities?
7. When were they last tested?
8. Is there adequate insurance cover for damage, theft, standby costs, consequential loss and re-
instatement of lost data, and do procedures and safeguards satisfy the conditions and
requirements of insurers?
9. Has the computer department obtained external advice to assess the vulnerability of the
computer suite and facilities to deliberate or accidental damage and determined the safeguards
required (e.g. fire and safety officers, police, consultants, insurance assessors)?
10. Is there a contingency plan for the provision of services by other means in the event of
complete failure of the computer facilities and the non-availability of alternative computer
facilities?

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e. Small Computer Installations

1. General
1. Does the application system:
• Permit making a “back-up” copy. If so, has this been done?
• Provide clear levels of security within the application software?
• Give clear disk loading instructions on screen?
• Check disk identity?
• Retain transactions on current files for a sufficient number of periods?
• Accept year to date adjustments directly?
2. Input Controls
2. Does the application system:
• Have adequate validation routines (e.g. formats, range, completeness, master file matching)?
• Provide batch totals?
• Provide rejection/exception reporting?
• Disallow direct posting to automatically posted control totals?
• Disallow transaction types in a batch being mixed?
• Prevent a systems “crash” due to incomplete validation at any stage?
3. Processing Controls
3. Does the application system:
• Provide control total reports (e.g. brought forward number and amount + processed number
and amount = carried forward number and amount)?
• Ensure that the program actually adds up balances each time and does not rely on internal
totals?
• Provide physical and software checks on the file generation number to ensure that the correct
version of the file is used?
• Provide control over running period end update programs at the correct time?
4. Output Controls
4. 4.1 Does the application software:
• Calculate report totals?
• Provide page/sequence numbering?
• Ensure that “End of Report” is printed on all reports?
• Provide printer failure/out of paper procedures?
5. Is there physical control over confidential reports?
5. Master File Controls
6. Does the application software:
• Protect all “value” fields from amendment?
• Provide periodic reports on master file data for checking?
• Provide more restrictive password protection?
• Provide reports of amendments to standing data on a “before” and “after” basis?
• Provide control totals over the number of accounts (e.g. Brought forward + created - deleted =
Carried forward)?
6. Audit Trail
7. Does the application software:
• Enable a trail from source documents through the system to master files?
• Enable a trail from master file through the system to source documents?
• Provide adequate sub-totalling?
• Enable a trail from control printouts to machine log cross-referencing? If an integrated system
to the Nominal Ledger is in use, check that source documents are traceable to the Nominal
Ledger and vice versa.
7. Organisational Controls
8. Is there segregation of duties with regard to computer processing?
9. Are manual control totals kept in user departments?
10. Is there regular reconciliation of control totals?
11. Is the input/output checking on a “one-to-one” or sample basis. If a sample basis, is this adequate?
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4.2.3 System Procedural Controls

a. Input Controls
1. Preparation
1 How are data input and processing authorised and is authorisation comprehensive?
2 For batch processing, are documents batched and batch headers used and are batch control
totals suitable and adequate?
3 For batch processing, does the user maintain suitable records of control totals and movement
of data?
4 Where data is entered directly by the user through terminals:

• are the terminals physically secure?

• does the communication software provide adequate protection?
• are batch control totals employed?
• is validation performed at entry?
• does the system provide suitable records of terminal usage and data input?
5 Does the user make adequate use of control records to agree the results of batch processing
and reconcile the results of on line data entry and processing?
2. Conversion
6 Does Data Control maintain and use adequate records of control totals and movement of data?
7 Does Data Preparation maintain and use adequate control records?
8 Are verification routines for data preparation sufficient and suitable?
9 Does Data Control check input for:
• accuracy of data preparation?
• completeness of data?
• authorisation to process the data?
• no prior submission and processing of data?
10 Are source documents securely retained by Data Control during processing?
11 Does Data Control exercise any control over on-line entry or on-line processing and are such
controls suitable and adequate?

b. Processing Controls

1. Processing Controls
1 Are master files identifiable and their use controlled and recorded?
2 Are all programs identifiable and their use controlled and recorded?
3 Are validation and checking routines adequate as to:
• validation of input data?
• checking results of calculations and output?
• provision of control totals, including run to run totals?
• provision of control records?
• recording of amendments to sensitive data or use of sensitive routines?
• production of control reports for error exceptions and control totals?
4 Are the operating system reports adequate to show the completeness and correctness of the
processing cycle?
5 Is the period of retention of source documents, input data media, master files and operating
systems reports for the processing cycle adequate?
6 For on-line or real time processing, does the application software provide adequate protection
of files and data?
7 For on-line or transaction processing, does the system software provide adequate protection of
files and data?
8 Are run to run controls during processing and between suites properly utilised by both
operators and Data Control?

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(c) Output Controls
1. Output Controls
1 Are the tests applied by Data Control or User control to ensure completeness and credibility
adequate?
2 Are the procedures for the correction and re-submission of corrected data adequate?
3 Where rejected items are written to a suspense file are they cleared properly and promptly?
4 Is all output either agreed with input controls or reconciled with externally maintained controls?
5 Is the control over distribution of output, including financial stationery, adequate?

(d) Master File and Program Controls

.
1. Master Files
1 Was the master file verified and then created by reference to original documents?
2 Is the master file periodically verified by reference to original sources?
3 Are the balances on master files subject to direct verification?
4 Are control totals and records for master files periodically agreed or reconciled with
independently maintained external control totals?
2. Programs
5 Are application programs adequately protected?
6 Is systems software, including tele-processing software, adequately protected?
7 Are all programs identifiable and their usage controlled and recorded, including year end
programs and utility programs?
8 Does the procedure for amending programs conform to installation standards and are these
satisfactory?

(e) Audit Trail Controls

1. Audit Trail
1. Can output be directly and readily related to source documents?
2. Can source documents be related to output?
3. Is the audit trail identifiable at record level and/or group level?
4. Can intermediate stages within a suite and between suites be agreed by run to run totals?
2. Documentation and Audit
5. Is the documentation of the system complete and up to date?
6. Is the test data for the system up to date and does it take account of amendments?
7. Are all manuals up to date and accurate?
8. Was audit involved in development of the system and is audit involved in any way in the
maintenance of the system?
9. Is audit approval required to amendments to the system?

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4.2.4 Use of Computer Resources

The objective of the audit in this area is to review the procedures by which management
exercises control over the use of computer facilities.

In particular, the auditor will consider:

1. Computer Section/ Division

1. Is its structure and position within the organisation suitable to make the most effective use of
the overall computer resources owned by the organisation?
2. Staffing
2. Is the best use made of staff within the division?:
3.
3. Total Costs
4. Is it possible to identify the total costs of computing and are they effectively controlled and
allocated?;
4. Hardware
5. How effectively and efficient is the use made of the computing facilities;
5. Software
6. How effective and efficient is the control which is exercised over the development and use of
software;
6. Data
7. The availability, accuracy, relevance and completeness of data used and produced by the
computer facilities. Is this data produced in such a way as to optimise the use made of
computing resources?
7. Customer/ End User Satisfaction
8. Are user departments and management satisfied by the service which they get from the
computer division?

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4.3 VALUE FOR MONEY (VFM) AUDIT

4.3.1 Introduction

(1) Value-for-Money (VFM) auditing represents an extension of the traditional audit

concerns with financial systems. Broadly, VFM auditing is concerned with

a. the good allocation, and efficient use, of resources,

b. determining to what extent a Local Government is achieving its objectives, delivering
its programmes and activities, and providing an acceptable standard of service
delivery, given its budgetary constraints.

(2) The main approach to VFM is the Local Government’s control over the use of resources
rather than over financial transactions, in order to achieve its objectives.

4.3.2 Definition

(1) VFM auditing is concerned with "three E's": economy, efficiency and effectiveness.

a) Economy is concerned with minimising the cost of resources acquired or used,

having regard to quality (i.e. spending less for an equivalent product or service);

b) Efficiency is concerned with the relationship between the output of goods,

services or other results and the resources used to produce them. How far is
maximum output achieved for a given input, or minimum input used for a given
output? (i.e. spending well and not wasting money on reaching a particular level
of service);

c) Effectiveness is concerned with the relationship between the intended results and
the actual results of projects, programmes or other activities. How successfully do
outputs of goods, services or other results achieve policy objectives, operational
goals and other intended effects? (i.e. spending wisely to achieve policy. It is
possible to be economic and efficient but not achieve the aim of a policy - this in
not effective).

(2) In practice the boundaries between economy, efficiency and effectiveness are seldom
clear-cut. VFM audits may, therefore, pursue these different aspects as a joint
exercise, particularly when considering the closely linked aspects of economy and
efficiency.

4.3.3 Standards

(1) The auditor shall satisfy himself by examination of the accounts or otherwise that the
organisation has made proper arrangements for securing economy, efficiency and
effectiveness in its use of resources. - UK Standard on Economy, Efficiency and
Effectiveness.

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(2) It fits in well with traditional systems auditing, placing the emphasis on management
[not the auditor] to ensure that VFM is being achieved, in the same way that it is up to
management to ensure that sound systems exist.

4.3.4 Aims and Objectives of VFM Auditing

(1) The basic aim of VFM audit is to provide the council with independent information,
assurance and advice about economy, efficiency and effectiveness in the
management of its resources, particularly it assets, its expenditure budget, and its
employees.

(2) The specific aim is to provide independent and reasonable assurance / advice on
whether the Council is
a. Meeting the minimum standards of departmental service delivery.
b. Allocating its resources in accordance with properly defined developmental
priorities, and applicable regulations
c. Designing efficient, effective programmes/activities to address these priorities, and
deliver the appropriate services.
d. Executing its planned programmes/activities/services “on time” , and “within
budget”
e. Delivering the specified outputs to a standard and quality which is “fit for purpose”

The audit programmes are designed to cover all of the above aspects of service
delivery, or to determine the nature / extent of departure. In so doing the audits will
ensure that arrangements exist to secure good value-for-money; and will expose
serious waste, extravagance or other examples of mismanagement, i.e. bad value-
for-money.

(3) As the auditor is bound to have limited resources it is logical to concentrate attention
on areas where the largest resources are involved and where VFM is most at risk.

4.3.5 Types of VFM Investigation

There are basically four types of VFM Investigation which are applicable. These are
a. Overall Management and Oversight Arrangements
b. Planning and Resource Allocation
c. Programme/Activity Execution
d. Specialist Areas

(1) Overall Management and Oversight Arrangements

a. Although not the only area of VFM work, the overall management and oversight
arrangement is an important area and a useful starting point if one is coming new
to VFM work in any organisation.

b. A framework for doing this review is outlined below and an audit programme is
attached. The framework covers five characteristics of a well managed Council:
i. Well functioning Committees
ii. Effective structures
iii. Well executed Annual Work Plans
iv. Competent motivated staff
v. Effective systems
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(2) Planning and Resource Allocation

Councils are obligated to prepare the following documents:
a. Development Plans
b. Budget Framework Papers
c. Annual Budgets
d. Annual Work Plans
e. Procurement Plan

The VFM audit will review the comprehensiveness and cohesion of all aspects of the
planning and resource allocation process,

(3) Programme/ Activity Execution

a. Thereafter the VFM review moves onto selecting a sample of activities in the Annual
Work Plan [AWP], to establish whether the selected activities were completed “on
time”, “within budget”, and whether the respective outputs were “fit for purpose”. In
such cases, good value for money has clearly been achieved.

(4) Specialist Areas

a. The Internal Auditor should develop their expertise in reviewing areas of high cost,
and potentially high waste / inefficiency, which are not otherwise adequately covered
in the Financial Systems audit, or in the “Activity/Programme Execution” review.

b. The specific areas for review may include :

i. Maintenance and Utilisation of Buildings and Equipment;
ii. Operation of Transport Fleets;
iii. Land and Property Management and Utilisation;
iv. Energy Conservation and Costs;
v. Appraisal Procedures for New Development;

c. The above areas are highly technical, and should be periodically examined, as there
is often scope to achieve improved VFM, and better utilisation of Assets. Where any of
these areas are in need of a detailed VFM review, the Council, on the advise of the
Internal Auditor, may call for external technical assistance in carrying out the review.
The intention should be that the Internal Audit department builds its capacity to carry
out increasingly higher proportions of such technical VFM reviews including
recruitment of technical officers if such reviews are very regular.

4.3.6 Reporting

(1) Decisions on whether and how to report the results of VFM audits rests with the Head
of Internal Audit. All reports should be discussed with the audited body before
publication to ensure accuracy and completeness and to confirm a balanced and fair
presentation.

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(2) Reports will normally incorporate the audited body's response to any conclusions,
criticisms, recommendations and other issues raised.

(3) VFM reports will not always present specific recommendations for action since, in
more judgmental areas, it may be more appropriate for the committee being reported
to make recommendations having taken into account the audited body's views.

4.3.7 Audit Programmes

1. Introduction
Three audit programmes have been are designed to verify whether the Council has
in place suitable arrangements

a. to allocate scarce resources in accordance with defined priorities

b. to enable Council to meet its developmental and service delivery objectives,

c. to establish whether there is VFM in the use of Council’s resources, and the
execution of its programmes and activities

2. Control Objective
To compare the organisation’s arrangements for securing value-for-money with
current best practice.

3. Risks
The risk to the Council of not having sound overall arrangements for securing
value-for-money is that scarce resources will be wasted, that Council will fail in
meeting its developmental objectives, and service delivery will fall short of minimum
standards

4. Records Required at Audit

The following records should be requested at the start of the audit:

a) Development Plan
b) Budget Framework Papers
c) Annual Budgets
d) Annual Work Plans
e) Programme/Activity M&E reports
f) Procurement Plan
g) Organograms of Council Staffing and Committee Structures;
h) Council and Committee Minutes.
i) Management Information Systems
j) Programme/Activity Financial reports

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5. Types of Audit Tests; Sampling and Source

There are three types of standard programmes that the Internal Auditor should
execute without recourse to specialist technical assistance, these are

a. Programme (i) VFM in the Council’s Management and Oversight

Arrangements.

No sampling involved. Conduct review as per specified programme

b. Programme (ii) VFM in Planning and Resource Allocation.

No sampling involved. Conduct review as per specified programme

c. Programme (iii) VFM in Council’s Execution of AWP Activities

Conduct reviews in line with the risk based approach to auditing, as

guided by the HIA. In the absence of any other considerations, the HIA
may stipulate that the selection of activities to be audited will be from the
Council’s Annual Work Plans, and will comprise the largest
programmes/activities which account for 80% of the Council’s activities,
plus 10% by number of the rest.

The detailed audit programmes are set out on the following pages:

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Audit Programme (i) – Value for Money - Management and Oversight

Arrangements
Ref Audit Programme Tasks
Committees
1 Prepare a schedule of meetings held by the following committees and confirm that the frequency
of meetings complies with minimum requirements specified in relevant legislation:
(a) Council
(b) Executive Committee
(c) Standing Committees [5]
(d) Technical Planning Committee
(e) LGPAC
(f) Contracts Committee
(g) DSC
(h) Land Board
2 Review the Minutes of the above Committees and ensure that each Committee
(a) Is dealing with the all the key issues in its mandate
(b) Is presented with information and reports which summarise matters requiring the
Committee’s consideration
(c) follows up on all “action” items, and matters arising
(d) is conducting its business in a professional and thorough manner
AWP Execution
3 In particular confirm that
(a) the Technical Planning Committee is meeting monthly to specifically review the status of
execution of AWP activities, and Sector expenditure against Sector budget.
(b) appropriate note is made of lagging activities and remedial action is minuted and
subsequently taken.
(c) Council actions are leading to the AWP being efficiently and effectively executed
Structure
4 Compare the Councils actual organogram and its establishment levels, with the respective “Model
Structure” and identify variations. In particular identify any key vacant posts, and establish
whether rigorous efforts are being made to fill the vacancy. Determine what impact the vacancy
may be having on Council operations.
5 Ensure that Job Descriptions exist for all Council established positions, and are signed by the
incumbent.
Skills and Staffing
6 Confirm that every individual manager's performance is regularly assessed by his/her superior
against the agreed results and that training and development needs are explicitly identified.
Systems
7 Confirm that all modules in LOGICS have been comprehensively updated on a sector basis such
that
a) all service delivery data and infrastructure investments are up to date
b) the data on the status of all AWP activities is up to date
c) up to date revenue and expenditure information is captured
8 Confirm that Sector Management is actively utilising the LOGICS data to plan, make decisions
and monitor progress
9 Confirm that the LOGICS data is being transferred to MOLG on a quarterly basis

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Audit Programme (ii) - Planning and Resource Allocation

Ref Audit Programme Tasks
Planning and Resource Allocation
1 Review the Council’s Three Year Development Plan to ensure
(a) it conforms to required content and layout
(b) it adequately compares Actual Standards of Service Delivery [per Sector] with the Minimum
Standards of Service Delivery, and gaps are noted and prioritised for resources to be
allocated.
(c) there is evidence of an appropriate degree of ‘participatory planning’, which has
influenced resource allocation
2 Review the Council’s BFP and
(a) ensure that the investments of highest priority have been allocated appropriate funding
(b) determine to what extent local revenues are being applied to unfunded priorities, and to
other essential activities.
3 Review the annual budget, and ensure that the BFP allocation of resources remains intact or
justifiable reasons are evident for any major changes
4 Review the Departmental Work Plans, and ensure that all activities/programmes specify the
tasks required to execute the activity in adequate detail, to enable subsequent monitoring.
5 For each Departmental Work Plan, ensure that :
a) appropriate diligence has been applied in costing the activities/programmes and that
working papers are retained which show the detailed breakdown of the costing for each
activity
b) the costing reflects the unit cost per output [ if applicable]
c) the Workplans, and their costing [ including unit costs per output], have been reviewed and
formally approved by HODs, the respective Technical Committees, and the CAO.
d) have been properly consolidated into the Council’s overall AWP
6 Ensure all elements of procurement in the AWP, are included in the Procurement Plan
7 Ensure all relevant costs in the AWP and in the Procurement Plan, are captured in the Cash Flow
Projection
Performance and Ratio Analysis
9 Determine / tabulate the following ratios and statistics per Department, and in total. Investigate
and provide comment where the ratio falls significantly short of stipulated Benchmarks, and/or
shows major variations from the prior year(s)
(a) Recurrent expenditure to Development expenditure,
(b) Wage to Non Wage expenditure
(c) % of Established Posts which are vacant, differentiating between Key & Non Key Posts
(d) Ratio of Technical/Service Delivery Staff, to Administrative and Support Staff
(e) Total Expenditure budget per employee
(f) Total Expenditure budget per Citizen
(g) Total Local Revenue per employee
(h) Total Local Revenue per 1000 of Population
10 Once Activity Based Budgeting and Accounting is introduced, determine the ratio of expenditure
between Service Delivery activities [to citizens] , and Administrative/Support activities

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Audit Programme (iii) - Assessment of VFM in Council’s Execution of

AWP Activities
Ref Audit Programme Tasks
For each programme/activity selected conduct the following review
1 Overall Approach - Inspect evidence that in designing the programme/activity, the department
conducted a technical and financial analysis of alternative approaches, and then selected the
preferred option on the basis of overall economy, efficiency and effectiveness
Economy
2 Obtain the detailed costing schedule, and critically review all elements of the costing to
a) ensure it was diligently prepared
b) all the inputs are necessary, and will lead to efficiency and effectiveness
c) input unit costs are reasonable and in line with market rates

3 Review the “unit cost” per output, and take appropriate steps [ document them], to determine
whether the unit cost per output is reasonable.
4 Overall, conclude whether the cost budget, and the output unit costs are reasonable, or whether
they appear to be too high.
Efficiency
5 Review the planned timelines for each activity [ and if applicable the tasks within the activity] and
ensure that the timelines are ‘demanding’ and therefore efficient
6 Confirm that the programme/activity has been entered into LOGICS, including the planned
“timelines”
7 Confirm that any procurement involved is entered onto the Procurement Plan
8 Ascertain the current status of completion of the activity (preferably by physical inspection, or by
examination of other evidence, eg completion certificates etc), and compare it with
(a) the LOGICS timeline
(b) the Procurement Plan timeframe.
9 Conclude whether the programme/activity is being executed within planned time schedule. If not,
note the degree of “time slippage” – expressed in weeks, and as a %age of the original schedule
10 From Programme/Activity financial reports [ where available], compare the detailed breakdown of
actual expenditure with budgeted expenditure to ascertain
(a) that actual expenditure [ the amounts and the “nature”] falls within the budget
(b) that actual expenditure correlates closely with the “stage of completion”
Effectiveness
11 Where possible, inspect the related outputs, and / or relevant independent evidence, to establish
that the outputs produced are “Fit For Purpose” (FFP).
FFP is defined as
(a) quality and volume is in accordance with technical specifications,
(b) the output is performing its task [ or has met its objective] as expected,
(c) the output is appreciated by the user / beneficiary
(d) the output is sustainable / long lasting.
Note (1) - for large complex/technical projects it is advisable for an independent technical
specialist to be called in to assist with the FFP assessment.
Note (2) – Test 11 can really only be applied once projects are complete. Many projects selected
in the sample may still be “work in progress”. In such cases the related FFP rating should be
deferred to a subsequent period/year. In the current review, the FFP tests may need to be carried
out on a mixture of current completed projects, plus some that may have been completed in the
prior year
12 Review Monitoring and Evaluation reports produced, to ensure that
(a) they were produced on time at the required intervals
(b) their content highlighted early any issues of slippage, quality, or other adverse matters
(c) such reports were acted upon early , as appropriate

Overall Assessment
13 Provide a “score” for each of the “five elements”
i – Overall - selection of most appropriate “approach” [Test 1]
ii – Economy – budget adequacy / over –generosity
iii - Economy – actual spending within budget
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Ref Audit Programme Tasks
iv –Efficiency – execution/completion on time, in accordance with planned timeline
v - Effectiveness – Fit for Purpose
on a scale of: 3 – Very Good, 2 – Good , 1- Fair, 0 – Poor / Non Existent .
14 Provide an total “average” score for each selected activity / programme
15 Provide an overall weighted average “execution score” for each department as a whole, based
on the sample selected

4.4 HUMAN RESOURCE AUDIT

4.4.1 Introduction
The overall objective is to ensure that Human Resource Management (HRM) is conducted
economically, efficiently and effectively. The following checklist summarises the five HRM
special audit components. Detailed checklists are then provided for each component.
1. HRM Summary
1. Are activities of Human Resource departments adequately devised, assigned and carried out?
2. Is recruitment strategically planned and conducted in a robust and open manner?
3. Are comprehensive training needs assessed? Is appropriate training provided and evaluated?
4. Are there adequate procedures for managing, developing and communicating with the people in
the organisation?
5. Are there are adequate procedures for monitoring, improving and rewarding performance in the
organisation?

4.4.2 Human Resource (HR) Departments

The objective is to ensure that the activities of HR departments are adequately assigned
and carried out.
Ref Audit Programme Tasks
1. HR Strategies
6. Has an HR strategy been developed within the organisation, and is it revised appropriately?
7. Does the HR strategy links the organisation’s mission, vision and value statements, and does it
include a statement on the organisation’s commitment to its employees?
8. Has the HR strategy been communicated properly to all organisations and staff?
9. Have responsibilities for implementation been assigned?
2. HR Division Status
10. Is the head of HR a member of the senior management team?
11. Are HR issues discussed at the highest level in the organisation?
12. Does HR have its own budget, under the control of the head of HR, which is adequate for it to
fulfil its duties?
13. Does HR have the appropriate number of qualified staff commensurate with its responsibilities
and status within the organisation/
3. Monitoring of HR Activities
14. Does the head of HR report to the accounting officer in the organisation?
15. Does HR help set, monitor and report performance targets for the organisation? Including for
example:
• Staff turnover rates
• Job vacancy rates
• Absenteeism rates
• Significant employee achievements.
16. Are performance measures reported and used to drive remedial action?
17. Does reporting include historical trends, analysis across divisions / departments, and comparison
to other organisations?
4. HR Policies
18. Does HR produce appropriate policies and guidance on the conduct of staff dismissals?
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Ref Audit Programme Tasks
19. Does HR takes the lead in data protection issues and ensures its own employee data meets data
protection requirements?
20. Does HR take the lead in formulating and implementing the organisation’s policies on
retrenchment and redundancy?
21. Does the organisation’s retrenchment policy considers all alternatives in retrenchment, including:
• Natural wastage
• Recruitment Bans
• Redeployment
• Voluntary Redundancy
• Compulsory Redundancy.
5. HR and Key Staff Issues
22. Does HR have a lead role in helping to plan for and manage any major restructuring or
retrenchment exercises?
23. Is HR proactive in communicating to staff on all personnel issues?
6. HR and Risk Management
24. Does HR identify the key staffing and personnel risks to the organisation, and produce plans for
dealing with these risks?
25. Does HR monitor public perception of the organisation’s staffing and personnel activities, and
respond appropriately to press coverage of staffing issues, including:
• Redundancies
• Allegations of corruption
• Allegations of nepotism
• Concerns over salary levels, the award of allowances and expense payments.
7. Quality of HR Service
26. Does the HR department identify and seek to maintain best practice in its activities, and seeks
external reviews of its activities to confirm this?
27. Has HR adopted a culture of continual learning, and promoted this culture across the
organisation?

4.4.3 Recruitment
The objective is to ensure that recruitment is strategically planned and conducted in a
robust, transparent and open manner.

Ref Audit Programme Tasks

1. Recruitment Strategies
28. Does HR conduct formal reviews of staffing needs to meet the strategic plan against current
capacity in the organisation?
29. Is the recruitment strategy sets out the organisation’s recruitment policy, in terms of using internal
and external recruitment?
2. Recruitment Process
30. Are all recruitment needs are driven by the strategic plan?
31. For each position to be filled, is a formal job or person specification is produced? Is this used to
design internal or external advertisements for the position?
32. Do job adverts state the nature, terms and conditions of employment, including grade or salary if
appropriate?
33. For all vacancies, are leading candidates are interviewed in a fair and objective manner?
34. Is the appointment process is conducted in an open and fair manner?
35. Are formal references and evidence of relevant qualifications are obtained prior to employment?
3. Appointment Procedures
36. Are all appointments are made using formal conditions of employment, which are legally binding
on the employee?
37. Do conditions of employment include a probationary period during which the employee’s
performance in assessed?
38. Where relevant, do the conditions of employment determine the length of the appointment and
performance measures to be used in monitoring performance?
39. Do the conditions of employment give the salary level / salary grade of the position?
4. Induction Procedures
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Ref Audit Programme Tasks
40. For all new staff, is an appropriate induction process is designed?
41. Do management seek feedback on the appointment and induction process, and use this to make
improvements?

4.4.4 Training

The objective is to ensure that comprehensive training needs are assessed and that
appropriate training is provided and evaluated

1. Training Needs Assessments

42. Is a formal comparison of existing capabilities to assessed needs conducted across the
organisation? If so, are the results are prioritised and used to produce training plans?
43. Do training needs assessments make use of staff surveys to identify current skills and perceived
needs?
44. Are training needs are addressed through an appropriate balance of formal training programs
and on the job training?
2. Training Records
45. Are adequate records are kept by personnel of employee’s qualifications, training records and
needs, tailored to current job specifications?
3. Training
46. For specific technical areas, are staff are enrolled on formal training programs to give them the
skills or qualifications they need?
47. Are junior staff are assigned mentors who take responsibility for their career development and for
organising on the job training?
48. Are regular assessments are carried out on training provided, including course assessments by
delegates as well as external assessments?
49. During their career development, do staff receive training in management skills, communication
and team skills?
50. Are qualified professional staff are encouraged to participate in relevant Continual Professional
Development (CPD) programs?
4. Protection of Training investments
51. Where the organisation has sponsored professional training of its staff, has it made
arrangements to recover the costs of this investment if the employee leaves the organisation
within a certain period after qualification?

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4.4.5 Communications
The objective is to ensure that there are adequate procedures for managing, developing
and communicating with people within the Council.

1. Management
52. Is the organisational structure is appropriate and has been communicated to all staff?
53. Do all staff report to and are responsible to one (and only one) line manager?
54. Do managers know which staff and what outputs and budgets they are responsible for?
55. Do managers receive appropriate training on performance review and performance monitoring.
56. Does HR enable managers to be aware of, and promote, compliance with corporate policies,
such as:
• Whistle blowing policies
• Grievance procedures
• Codes of conduct
• Equal opportunities policies
2. Staff Development
57. Does HR or senior management take a responsibility for career development of key staff?
58. Does HR identifies key positions within the organisation and utilises succession planning to
develop junior staff for their future roles?
59. As part of career development, are managers encourage rotation of duties, work experience and
secondment to develop the skills staff will need in their future roles?
60. Does management seeks to involve staff in organisational development through input to strategy
and working groups to facilitate organisational change.
3. Communication Between Staff and Management
61. Are there appropriate communication channels to allow management to communicate efficiently
and effectively with staff?
62. Do management seek the opinion of staff regarding job satisfaction, scope for change etc
through appropriate feedback mechanisms such as surveys?

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4.4.6 Monitoring and Rewards

The objective is to ensure that there are adequate procedures monitoring, improving and
rewarding performance in the organization
1. Performance Monitoring Systems
63. Have HR designed a performance review system which is used to set goals and targets for all
employees, monitor performance and provide feedback to stimulate improvement?
64. Is careful attention is paid to aligning and balancing individual and team targets in the
performance review system?
65. Are performance targets generated through a two way dialogue between staff and
management?
66. Does performance monitoring include 180° appraisal, allowing staff to provide feedback on
managers?
67. Do managers seek staff’s perceptions of the organisation and compare these to the
organisations value statement?
68. Does management makes use of focus groups and communication events to assess staff
perceptions of the organisation’s internal procedures and culture?
2. Improved Performance
69. Do management use the performance monitoring system to identify poor performance and seek
improvements?
70. Are appropriate disciplinary procedures are used where poor performance continues?
71. Has the organisation established mechanisms for implementing demotions, transfers or
redundancies if appropriate?
72. Does HR conducts periodic reviews of salaries and conditions against similar organisations and
the private sector, in order to improve staff retention rates?
3. Incentive Schemes
73. Are promotion decisions linked to the performance appraisal system?
74. Are incentives, where appropriate, are used to reward staff / teams for continually achieving their
objectives?
75. Is there an open and transparent mechanism in place to reward outstanding performance or
innovation, through, for example, enhanced salary payments, financial rewards or formal
awards?

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