REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL Annual Report to the Discharge Authority on Internal Audits carried out in 2012 (Article 99(5) of the Financial Regulation)
Date: 2013-08-29
Institutions: European Commission
Subjects: administrative check, audit, budgetary discharge, financial year, fraud against the EU, management audit













EUR-Lex - 52013DC0606 - EN











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52013DC0606

REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL Annual Report to the Discharge Authority on Internal Audits carried out in 2012 (Article 99(5) of the Financial Regulation) /* COM/2013/0606 final */









REPORT FROM THE COMMISSION TO THE
EUROPEAN PARLIAMENT AND THE COUNCIL
Annual Report to the Discharge Authority
on Internal Audits carried out in 2012
(Article 99(5) of the Financial Regulation)

TABLE OF CONTENTS
1........... Introduction.................................................................................................................... 5
2........... The IAS Mission: Independence, objectivity and accountability........................................ 5
3........... Audit production............................................................................................................. 6
3.1........ Implementation of the 2012 IAS
audit plan...................................................................... 6
3.2........ New recommendations and
acceptance rate.................................................................... 7
3.3........ Implementation of recommendations
made during 2008-12.............................................. 8
4........... Main findings and
recommendations................................................................................ 8
4.1........ Horizontal audits............................................................................................................. 8
4.1.1..... Annual Activity Report process
(multi-DG)..................................................................... 8
4.1.2..... Management and monitoring of staff
allocation (multi-DG)............................................... 9
4.1.3..... Chargeback and internal billing
systems (multi-DG)........................................................ 10
4.2........ Agriculture, Natural Resources
and Health.................................................................... 11
4.2.1..... Control Strategy audits (DGs MARE,
SANCO)........................................................... 11
4.2.2..... Control Strategy — Directorate J
(DG AGRI).............................................................. 11
4.3........ Cohesion...................................................................................................................... 12
4.3.1..... Closure 2000-06 Programming Period
(DG REGIO, DG EMPL)................................. 12
4.3.2..... Implementation of 2007-13
Programmes (DG REGIO)................................................. 13
4.4........ Research, energy and transport..................................................................................... 13
4.4.1..... Control Strategy audits (DG ENER)............................................................................. 13
4.5........ External Aid, development and
enlargement................................................................... 14
4.5.1..... Set-up of internal organisation in
EU delegations (DG DEVCO).................................... 14
4.6........ Education and citizenship.............................................................................................. 14
4.6.1..... Lifelong Learning Programme (DG
EAC/EACEA)........................................................ 14
4.6.2..... Control Strategy audits (DG HOME)............................................................................ 15
4.6.3..... Monitoring the implementation EU
Law (DG JUST)...................................................... 15
4.7........ Economic and financial affairs........................................................................................ 15
4.7.1..... Implementation by the EIF of the
CIP Programme (DG ECFIN)................................... 15
4.7.2..... Off-budget operations (DG ECFIN)............................................................................. 16
4.7.3..... Control Strategy audits (DG ENTR)............................................................................. 16
4.7.4..... Monitoring the implementation EU
Law (DG TAXUD).................................................. 16
4.8........ General services and HR............................................................................................... 17
4.8.1..... Statistical data production,
development and dissemination (DG ESTAT)....................... 17
4.9........ IT audits....................................................................................................................... 17
4.9.1..... Local IT systems management (DG
DEVCO, DG TRADE).......................................... 18
4.9.2..... IT Governance and performance (DG
SANCO/EAHC)................................................ 18
4.9.3..... Horizon 2020 (DG RTD, DG CNECT,
ERCEA).......................................................... 18
5........... Consultation with the Commission’s
Financial Irregularities Panel................................... 19
6........... Conclusions.................................................................................................................. 19
1.           Introduction
This report on the work carried out by the
Commission’s Internal Audit Service (IAS) informs the Discharge Authority, as
required by Article 99(5) of the Financial Regulation. It is based on the
report that the Commission’s Internal Auditor drew up under Article 99(3) of
the Regulation, regarding IAS audit- and consulting reports completed in 2012[1] on Commission
Directorates-General, Services and Executive Agencies[2]. It describes the identified weaknesses
and action taken to remedy these, and includes information on significant risk
exposure, control issues and governance aspects[3].
The Commission has already responded to some of
these recommendations in the synthesis Report[4].

2.           The
IAS Mission: Independence, objectivity and
accountability
The mission of the IAS is to contribute to
sound management in the European Commission by auditing internal management and
control systems to assess their effectiveness with a view to achieving on-going
improvements. 
The IAS is
under the authority of the Member of the Commission responsible for Audit and
is accountable to the APC. The independence of the IAS is enshrined in the
Financial Regulation and its Mission Charter adopted by the Commission.
The IAS performs its work in accordance with
the Financial Regulation and the International Standards for the Professional
Practice of Internal Auditing and the Code of Ethics of the Institute of Internal Auditors.
The IAS does not audit the Member States’
systems of control over the Commission’s funds. Such audits, which reach down
to the level of individual beneficiaries, are carried out by Member States’
internal auditors, national Audit Authorities, other individual Commission DGs
and the European Court of Auditors (ECA). The IAS does, however, audit measures
taken by the Commission services to supervise and audit bodies in the Member
States, and other bodies which are responsible for disbursing EU funds, such as
the United Nations. As provided for in the FR, the IAS can carry-out these
duties on the spot, including in the Member States.
Overall opinion on the Commission’s
financial management
As required by its charter, the IAS issued
its third overall opinion on the Commission’s financial management.
The overall opinion for 2012 is based on the audits
in the area of financial management in the Commission carried out by both the
IAS and the IACs during the previous three years 2010 to 2012). It also takes
into account information from other sources such as the reports from the ECA 
The IAS, IACs or the ECA planned to audit all
financial auditable entities rated as high risk and which are material for the
implementation of the budget by the end of this period to ensure comprehensive
coverage The completion of audit engagements in 2012 contributes to ensuring
sufficient coverage for the year 2012.
IAS contribution towards mitigating the
discharge risk and a more positive Statement of Assurance (‘DAS’)
The discharge procedure entails reputational
risks for the Commission. The work of the IAS supports the Commission in
mitigating this risk.
Compliance remains the most important aspect
of the discussion, though the discharge procedure increasingly focuses on
performance. Assessment of compliance is based on the results of the European
Court of Auditors’ (ECA) Statement of Assurance (‘DAS’) audit. This is the
opinion of the ECA on the reliability of EU accounts and on the legality and
regularity of the underlying transactions.
To address the risk of error in payments, the
Commission has to ensure that the implemented control strategies are proportionate
to the risks. These control strategies need to be effective in preventing and
detecting error, and to be accompanied by dissuasive administrative penalties
and reports on the residual rate of error.
That is why audits to ensure that a coherent
control strategy is being implemented for every significant area of expenditure
have priority in the IAS’ Strategic Audit Plan 2010-2012 as well as for
2013-2015. In 2012, audits on control strategies in DGs AGRI, ENER, ENTR, HOME,
MARE and SANCO were carried out.
3.           Audit
production
3.1.        Implementation
of the 2012 IAS audit plan
By the cut-off date of 1
February 2013, the IAS had implemented 100 % of its priority engagements (88 % in 2011) and 62 % of
non-priority engagements (69 % in 2011).
In all, 89 reports
(including audits, follow-up-audits and consultancy) were finalised, and can be
broken down as follows[5]:
   || 2012 || 2011 || 2010 
   || Engagements || Reports || Engagements || Reports || Engagements || Reports 
 AUDIT || 29 || 49 || 20 || 23 || 24 || 28 
 CONSULTING || 2 || 2 || 1 || 1 || 6 || 6 
 FOLLOW UP || 32 || 37 || 41 || 50 || 44 || 50 
 REVIEWS || 1 || 1 || 3 || 3 || 0 || 0 
 Total || 64 || 89 || 65 || 77 || 74 || 84 
The attached Services
Working Document summarises all completed audit reports. It includes the objectives,
scope, risks and recommendations of each report, the overall state of
implementation of recommendations made for 2008-2012 and summaries of conclusions
of follow-up engagements.
3.2.        New
recommendations and acceptance rate
In 2012, the IAS issued
the following number of recommendations, including their acceptance rate:
   || New recommendations || Accepted recommendations || Non-accepted recommendations 
 Priority || # || # || % || # || % 
 Critical || 0 || 0 ||   || 0 ||   
 Very important || 83 || 83[6] || 100 % || 0 ||   
 Important || 109 || 108 || 99 % || 1 || 1 % 
 Desirable || 0 || 0 ||   || 0 ||   
 Total || 192 || 191 || 99 % || 1 || 1 % 
For all accepted (or
partially accepted) recommendations, the auditees drafted action plans that were
submitted to the IAS and assessed as satisfactory.
3.3.        Implementation
of recommendations made during 2008-12
Auditees reported that 78 % of accepted
recommendations issued between 2008 and 2012 had been implemented by the start of
2013. The attached Service Working Document provides an overview of the level
of implementation of recommendations (auditees’ assessment).
However, implementation on 29 very important recommendations[7] was overdue by more than six
months compared to the initial deadline[8].
No critical recommendation is outstanding. The APC was regularly informed of
critical or very important recommendations overdue by more than six months.
A total of 733 recommendations were accepted,
for which the IAS conducted follow-up audits by the end of 2012. 
The IAS’s follow-up work confirmed that
recommendations were being implemented satisfactorily, contributing to the
improvement of control systems in the services audited. The IAS closed 88 %
of the recommendations followed up during this period.
4.           Main
findings and recommendations
4.1.        Horizontal
audits
4.1.1.     Annual
Activity Report process (multi-DG)
The aim of the audit was to assess the
adequacy and effectiveness of the AAR process in the Commission as a whole and,
in particular, the extent to which it was effective in supporting the
Declaration of Assurance of the different Authorising Officers by Delegation.
The IAS analysed the design of the process, the
existence of clear guidance and regular monitoring at corporate level, and
implementation by individual DGs/Services.
This audit was performed in the SG, in DG
BUDG, and in nine operational DGs/Services, DGs CNECT, EAC, REGIO, EMPL, MARE,
AGRI, HOME and DEVCO and the OIB.
Overall, the IAS considers that the process
is well established and that it has achieved its objective
to be an accountability and assurance tool from management to the Institution. However, it identified some very important areas in which there was
a need for improvements. In particular, the IAS asked central
services to:
(i) provide further
instructions on reporting on economy, efficiency and effectiveness of financial
and non-financial operations and on cost/effectiveness of controls, so as to
adequately support the AOD’s conclusions on sound management and the
Declaration of Assurance;
(ii) reinforce the quality control process to
focus more on substantive elements of the AAR, such as
the reliability of the assurance-building process and the information
supporting the Declaration of Assurance, and
(iii) streamline the
structure of the AAR to avoid overly long and complex reports and to produce
documents that are more useful for the College, the ECA and the Discharge
Authority.
The central services accepted the IAS recommendations
and prepared an action plan to improve the AAR process, which IAS deemed satisfactory.
Some actions have already been implemented in the context of the 2012 AAR exercise.

Concerning the work performed in nine
operational DGs/Services, the IAS only identified a major issue[9] at DG DEVCO. A limited audit on
the coordination of the Delegations’ contribution to the AAR showed that DG
DEVCO should strengthen its accountability system (called ‘control pyramid’)
by:
(i) improving the quality of DG DEVCO’s AAR, particularly on information on the internal control system and elements supporting the
Declaration of assurance of the AOD;
(ii) promoting reports from Heads of Delegation
(EAMR) as "accountability tools’, by requesting to provide more
information supporting their declaration of assurance;
(iii) providing further guidance to Heads of
Delegation to enable them to obtain comprehensive, consistent information
supporting their declaration of assurance, and
(iv) strengthening the role of Headquarters
in supporting, coordinating and supervising the reporting obligations of Heads
of Delegation. DG DEVCO’s action plan is considered satisfactory. 
4.1.2.     Management and monitoring
of staff allocation (multi-DG)
The objective of the audit was to assess
whether selected Commission Services have adequate procedures and mechanisms in
place to manage and monitor staff allocation effectively and efficiently in a
context of staff reduction[10].
The audit focused on relevant procedures in
four DGs: AGRI, RTD, COMP and DGT, selected in order to have a representative
view of the different activities in the Commission. The IAS also carried out a
high-level review of staff allocation procedures at corporate level, in SG, DG
BUDG and DG HR.
In addition, a general survey was carried out
to obtain a comprehensive overview of procedures in place across Commission Services.
The IAS recommended that DG AGRI and DG RTD pursue
their efforts to develop mechanisms and tools for task mapping, put in place
tools/methods to gather sufficient, reliable information concerning workloads,
and develop an HR plan. The DGs accepted all the recommendations. Action plans
were assessed by the IAS as being satisfactory overall.
The audit work and the results of the IAS
Commission-wide survey revealed weaknesses at operational DG level that can
only be resolved and attendant risks mitigated through Central Services’
actions. The IAS recommended that Central Services further develop the
corporate framework for managing and monitoring staff allocation, and
facilitate the dissemination of good practices between Strategic Planning and
Programming (SPP) and Human Resources professionals in this area. Central
Services should also improve the corporate framework for reporting and
accountability by Commission Services on use of posts redeployed to these services
in line with the Commission decisions on staff allocation.
4.1.3.     Chargeback[11] and internal billing systems (multi-DG)
The IAS assessed whether charge-back[12] processes complied with the
Financial Regulation and central guidance, and the consistent, transparent cost
calculation of services provided. The audit was conducted in DG BUDG (as
leading service for managing the budgetary and regulatory framework and for the
promotion of sound financial management), DG DIGIT and SCIC. In the absence of
central guidance or instruction on the charge-back process, the audit found that
the audited DGs defined their own criteria. Overall, these were found to be in
line with budgetary rules.
However, the IAS asked auditees to strengthen
the process and to enable consistent implementation across the Commission by:
(i) establishing a governance framework with
clear attribution of the ownership of the process, the definition of the
charge-back process and the endorsement of cost models of the major service
providers;
(ii) providing central instruction and
guidance (including the criteria to identify services and costs), and
(iii) providing more clarity of budget lines
used for financing IT expenditure.
The IAS considers that the ABM Steering
Group, as governance body, should own the process and ultimately be the body responsible
body for defining the process.
DG BUDG accepted all the recommendations and
the resulting action plan is assessed as satisfactory.
DG DIGIT was asked to:
(i) identify more clearly the services and
costs to be charged back and propose criteria to identify the IT systems for
which hosting costs are charged back, and;
(ii) ensure the governing body endorses significant
changes of the cost model.
The resulting action plan for the accepted
recommendations is assessed as satisfactory.
4.2.        Agriculture,
Natural Resources and Health
(AGRI, ENV, CLIMA,
MARE, EAHC, SANCO)
4.2.1.     Control
Strategy audits (DGs MARE, SANCO)
DG MARE’s control
strategy does not include clear quantifiable and measurable targets relating to
the assurance building process, in particular on national audit authorities’ and DG MARE’s own
planned coverage. Quantitative and qualitative indicators to measure the
performance of DG MARE’s audit activity are insufficient. DG MARE also needs to strengthen its monitoring of national audit strategies and annual control reports, and to improve its controls of the way in which national audit authorities determine
sampling and the error rate. 
The audit of DG SANCO
covered ex-ante and ex post controls. The IAS stressed the need for DG SANCO to
finalise its control strategy document.
The action plans to
address the issues in both audits were assessed as satisfactory.
4.2.2.     Control
Strategy — Directorate J (DG AGRI)
This audit in DG AGRI
focused on the design and monitoring of the control strategy for the
programming period 2007-2013.
The IAS found that the
audit strategy was not sufficiently formalised, and that there were gaps in the
definition of the audit universe, the setting up of quantitative and measurable
objectives (e.g. audit coverage), and the related capacity analysis.
Given that the next
programming period is approaching, the role of assurance providers played by certification
bodies in Member States should be reinforced to strengthen controls and
optimise the use of DG AGRI’s limited audit resources.
The IAS also noted that
audit plans were not sufficiently supported by risk assessments and that there was
a significant audit backlog (13 % of engagements of 2007-2010 still open),
despite the DG’s efforts to reduce it. The IAS recommended that DG AGRI develop
and formalise its control strategy, re-engineer its risk assessments according
to the targets established, and ensure proper monitoring through better quantitative
and qualitative key performance indicators whose disclosure in the AAR should
be improved.
The DG accepted all
recommendations, and the IAS assessed its action plan as satisfactory.
4.3.        Cohesion
(REGIO, EMPL)
Four audits were performed in 2012 to provide
reassurance on the efforts the DGs were making to tackle high error rates,
particularly in DG REGIO. For the first time, the IAS accompanied[13] DG auditors on missions to Member
States.
4.3.1.     Closure
2000-06 Programming Period (DG REGIO, DG EMPL)
It is essential that DGs have a well-prepared
closure process to demonstrate that all errors and irregularities are detected
and corrected.
Although the DGs prepared and managed the closure
process for the European Regional Development Fund (DG REGIO) and European
Social Fund (DG EMPL) well, there need to be improvements in planning,
methodology and guidance, particularly when preparing for the closure of the 2007-2013
programming period and to improve documentation to provide better evidence of checks
on closure documents.
The audit of the closure of Cohesion Fund
(CF) projects in DG REGIO identified inconsistencies and gaps in the assessment
process. Given the high number of projects and the work still to be done, these
must be addressed for the remainder of the closure process. In this respect,
harmonised templates for the analysis of the winding-up declarations have been
put in place since 21 December 2012. These have been designed to address the
specific gaps identified by the IAS, in particular the coordination between
audit and geographical units and ensuring consistency in the qualitative
assessment of closure documents.
These audits also provided DGs with a timely
reminder of the need to report on the effectiveness of the closure process for
the 2000-2006 period and to demonstrate the multiannual corrective capacity of
the control strategy[14].
The DG accepted all recommendations and the IAS
assessed its action plans as satisfactory.
4.3.2.     Implementation
of 2007-2013 Programmes (DG REGIO)
Recognising the high error rates in Cohesion,
the IAS conducted an audit on implementation of the 2007-2013 programming period
for the European Regional Development Fund (ERDF) and the Cohesion Fund programmes
to assess the extent to which DG REGIO had determined and reported reliable
error rates and the extent to which sufficient and appropriate measures had been
taken to reduce high error rates.
The IAS referred to the efforts done by DG
REGIO to strengthen corrective measures and reduce error rates, but stressed the
very high inherent risk involved when the DG has to depend so heavily on the Member
States' audit authorities. Despite the efforts already made, this still
represents a major challenge for the DG. These authorities have interpreted
guidance in different ways, particularly as regards statistical sampling and
coverage of the audit universe[15].
In addition, the DG needs to improve its own checks on the audit authorities’ annual
control reports, to ensure that auditors are able to reach conclusions on the
impact of the reliability of error rates from Member States' audits.
The IAS found significant variations in the
extent and depth of on-the-spot tests. Whilst recognising DG REGIO needs to
have a risk based approach, on-the-spot work is so crucial to its assurance
process that these inconsistencies need to be addressed to minimise the risk of
non-detection of system weaknesses and/or errors and irregularities.
The auditees accepted all recommendations and
the IAS assessed their action plan as satisfactory.
4.4.        Research,
energy and transport[16]
(EACI, ERCEA, CNECT,
JRC, REA, RTD, TEN T-EA, MOVE, ENER)
4.4.1.     Control
Strategy audits (DG ENER)
The review of controls in
DG ENER covered ex ante and ex post controls. It found that complete and
consistent audit working papers in post audit files need to be produced.
Subsequently, the IAS recommended that DG ENER use a standardised audit
programme and produce better evidence for the review and approval of audit
issues. The recommendations were accepted and the action plan assessed as
satisfactory.
4.5.        External
Aid, development and enlargement
(DEVCO, ECHO, ELARG,
FPI)
4.5.1.     Set-up
of internal organisation in EU delegations (DG DEVCO)
The creation of the European External Action
service (EEAS) has required the set-up of a number of new structures and
processes, involving both Headquarters and Delegations. The general objective
of this limited review was to assess the procedures put in place between the
European Commission and the EEAS to ensure the sound financial management of
the external aid budget implemented through EU Delegations.
The IAS invited DG DEVCO
to consider whether the creation of a middle management function — particularly
in the larger EU delegations — might help the Head of Delegation to manage
financial assistance. There will be an audit of the effective implementation of
these revised arrangements due to on-going modifications in procedures (e.g.
revised financial circuits) and the implementation of a revised internal
control architecture in the Delegations[17]
at the time of the limited review.
4.6.        Education
and citizenship
(COMM, EAC, EACEA,
HOME, JUST)
4.6.1.     Lifelong
Learning Programme (LLP) (DG EAC/EACEA)
The aim of the audit was to assess whether
the control strategy in place in EACEA for managing the LLP Programme enables
it to obtain reasonable assurance on the legality and regularity of the
underlying financial transactions and to assess the adequacy, efficiency and
effectiveness of DG EAC’s internal control system for exercising its
supervisory role as parent DG in the agency’s implementation of the programme. 
The design of the final payments process[18] is well organised and
established in EACEA, but the audit highlighted inconsistent implementation of
the risk-based control strategy and non-compliance with the non-retroactivity
rule.
The internal control system for exercising
the supervisory role of DG EAC as parent DG was assessed as adequate, efficient
and effective, though weaknesses, such as the absence of an updated supervision
strategy, gaps in documentation of the supervisory arrangements and the absence
of key performance indicators make it difficult to assess whether the strategic
supervision policy has been achieved. The direct involvement of DG EAC in the
operational management of the LLP programme may not be the most efficient use
of resources.
DG EAC and EACEA accepted all recommendations
and EACEA and the action plans were assessed as satisfactory.
4.6.2.     Control
Strategy audits (DG HOME)
The IAS highlighted weaknesses
in the monitoring of DG HOME’s closure procedures, especially in the lack of
adequate tools for monitoring the management of a large number of annual programme
closure processes properly. Furthermore, DG HOME had not been recording the
late submission of closure documents correctly as non-compliance events. The
IAS recommended that the DG comply with the requirements of the Commission’s
Internal Control Standards. The DG should strengthen its management and control
systems and revise its procedures through a closure checklist and guidelines for
closure file documents.
The IAS also identified
weaknesses in the DGs’ ex-post audit strategy, and recommended that a
methodology be introduced so that the results of ex-post audits could be
included in the DG’s assurance model for the AAR. The
related action plan is assessed as satisfactory.
4.6.3.     Monitoring
the implementation EU Law (DG JUST)
Control on Member States’ correct application
of EU legislation is one of the Commission’s core activities, as laid down in
the Treaty. The ‘acquis communautaire’ and policy areas of DG JUST,
audited in 2012, gives rise to more than 10 % of all Commission-wide
active infringement cases. The auditors recognised the good maturity level and
the DG’s on-going efforts, but highlighted some shortcomings in their strategic
planning and programming procedures, particularly in the coverage given to the
issue in Management Plans and AARs. As a consequence, the resources allocated
to this activity, and their performance evaluation, are not optimal, despite its
importance and size. The related action plan is
assessed as satisfactory.
4.7.        Economic
and financial affairs
(COMP, ECFIN, ENTR,
MARKT, OLAF, TAXUD, TRADE)
4.7.1.     Implementation
by the EIF of the CIP Programme (DG ECFIN)
As a part of the wider Competitiveness and
Innovation Framework Programme (CIP) and of the Entrepreneurship and Innovation
Programme (EIP), the High Growth and Innovative SME Facility (GIF) is a
Community financial instrument for small and medium-sized enterprises. The
European Investment Fund (EIF) implements GIF on behalf of the Commission on
the basis of a Fiduciary Management Agreement (FMA).
The objective of the audit was to assess how
effectively the EIF implements GIF, and in particular, (i) how the EIF complies
with the FMA and (ii) how effectively and efficiently DG ECFIN supervises GIF so
that it achieves its specific objectives.
The audit highlighted two issues:
(i) shortcomings in the indicators used to
reflect the objectives of the financial instrument, and
(ii) the definition of events constituting a
material change in the FMA.
DG ECFIN accepted all recommendations and the
action plans were assessed as satisfactory.
4.7.2.     Off-budget
operations (DG ECFIN)
As a consequence of the financial and
sovereign debt crisis, the European Union has created new financial instruments
to act as a borrower and to lend money to Member States in financial
difficulties. The European Commission operates the European Financial
Stabilisation Mechanism, a programme of financial assistance under which it may
grant loans and fund these by issuing debt instruments in the capital markets.
The audit highlighted two issues in managing
the new instrument:
(i) DG ECFIN is faced with new
internal and external challenges for which the usual risk management practices
were not fit for purpose. The development of controls in the areas of logistic
support, IT security and document management was lagging behind, and
(ii) given the environment in which DG ECFIN’s
operations take place, it faces the challenge of attracting and retaining
competent staff without putting business continuity at risk.
These weaknesses may affect business
continuity and the efficiency and effectiveness of operations, resulting in the
Commission being exposed to a high reputational risk.
To address the IAS recommendations, DG ECFIN
has undertaken a comprehensive risk assessment exercise on how it is
implementing its new tasks.
4.7.3.     Control
Strategy audits (DG ENTR)
This audit covered ex ante and ex post
controls. The IAS recommended that DG ENTR strengthen the role of the internal control
coordinator. Furthermore, document management and registration of exceptions
should be improved. The DG’s action plan was assessed
as satisfactory.
4.7.4.     Monitoring
the implementation of EU Law (DG TAXUD)
The IAS carried out an
audit in DG TAXUD on monitoring the implementation of EU law. Despite a number
of strengths, such as strong professional experience and background of case
handlers and effective prioritisation of work, the audit highlighted some
shortcomings.
DG TAXUD is one of
the three most infringement-prone policy areas, with more than 12 % of all
Commission-wide active infringement cases, but this is not reflected fully in
the Management Plan, or in the Annual Activity Report. There need to be
improvements in measuring performance in this activity. IAS also recommended
ensuring better coordination between units to monitor the application of EU law
more effectively in the Customs area. The DG’s action plan was assessed as
satisfactory.
4.8.        General
services and HR
(HR, BUDG, DGT,
DIGIT, EPSO, ESTAT, SJ, OIB, OIL, OP, PMO, SCIC, SG)
4.8.1.     Statistical
data production, development and dissemination (DG ESTAT)
DG ESTAT (Eurostat) is entrusted with the
responsibility of ensuring the production of European statistics according to
established rules and statistical principles[19] and
through compliance with the European Statistics Code of Practice[20].
The lack of coordination between policy DGs
and Eurostat on statistical work was included in DG ESTAT’s 2011 risk register
as a critical risk.
The objective of this audit was to assess the
adequacy, effectiveness and efficiency of processes related to the production,
development and dissemination of statistics managed by DG ESTAT (in
coordination with other Commission DGs and Services).
The issues identified that may lead to inconsistencies, gaps/overlaps, low quality of data and
disruption to business continuity were:
(i) lack of a clear
definition and common understanding of the term ‘statistics’ within the
Commission;
(ii) non-alignment of Eurostat’s Community
Statistical Programme with the Commission’s strategic planning cycle;
(iii) role and responsibility of Eurostat not
fully acknowledged and recognised,
(iv) no assurance on the extent of compliance
with the European Statistics Code of Practice, and
(v) lack of coordination at Commission level on
the use of external providers of statistical services.
Following the audit, the Commission adopted a
new Decision on Eurostat (2012/504/EU) on 17 September 2012 which addresses
many of the above findings. The action plan was deemed satisfactory.
4.9.        IT
audits
IAS performed several audits in the area of
IT, reflecting the contribution of the IAS to the overall monitoring of the
technological security and viability of the Commission.
4.9.1.     Local
IT systems management (DG DEVCO, DG TRADE)
The audits of local IT in DGs DEVCO and TRADE
reviewed the effective and efficient management of IT
activities and found well-established IT units. The audit reports placed particular emphasis on the importance of implementing
effective IT governance and better IT risk management and protecting the
confidentiality of the information handled (DG TRADE) and reinforcing the IT
security framework to minimise security breaches (DG DEVCO).
4.9.2.     IT
Governance and performance (DG SANCO/EAHC)
DG SANCO has a relatively
high IT budget and finances most of its IT spending from operational
appropriations. Since the previous audit[21],
a significant improvement was noted in the general maturity of IT general controls.
This audit focused on governance, performance and quality aspects. A more
limited review was performed for EAHC, taking into account its much smaller IT
budget.
The auditors found that:
(i) DG SANCO still lacks
an overall long-term IT strategic plan/or documented strategy including the
EAHC, explaining how it would support business processes in this time frame. Although
the IT Master Plan and the Management Plan include some high level key
performance indicators, there is no comprehensive performance management
process, and
(ii) EAHC should
formalise some key procedures (change, performance and quality management).
The action plan is
assessed as satisfactory.
4.9.3.     Horizon
2020 (DG RTD, DG CNECT, ERCEA)
The ‘Horizon 2020’ flagship programme for
research and innovation aims to secure Europe’s global competitiveness and is a
driver for creating new growth and jobs. Several IT projects have been
developed to support the management of this project, with DG RTD as system
owner and DG CNECT and ERCEA as business managers.
The IAS formulated two very important
recommendations:
(i) the need for more information system
integration to enable the initiative to go on making progress; including the
need for clear procedures and overall governance of IT via an IT Project
Steering Committee, and
(ii) the need for DG RTD to define its project
work and resource plan better.
As Horizon 2020 is a new, cross-cutting
initiative, implementing the recommendations may involve DG DIGIT and other
research DGs.
DG RTD developed an action plans which was
assessed to be satisfactory.
5.           Consultation
with the Commission’s Financial Irregularities Panel
No systemic problems were
reported in 2012 by the Financial Irregularities Panel under Article 73(6)[22] of the Financial Regulation
applicable to the general budget of the European Communities.
6.           Conclusions
The implementation of action plans drawn up
in response to IAS audits in this and in previous years contributes to steady
improvement in the Commission’s internal control framework.
The Commission’s services were therefore asked
to ensure they took action on recommendations resulting from audits. The IAS
will conduct follow-up audits on the execution of action plans that will be
examined by the Audit Progress Committee, which will inform the College as
appropriate.
The IAS, in close coordination with all IACs,
has drawn up a new Strategic Audit Plan covering the period 2013-2015. The IAS will
continue to focus on financial/compliance and IT audits will also step up activities
in performance auditing.
[1]               The
audit and consulting reports finalised by 1 February 2013 are included in this
Report.
[2]               The
Report does not cover the decentralised European Agencies, the European
External Action Service, or other bodies audited by the IAS, which receive
separate annual reports.
[3]               Required
by the Performance Standard 2060 of the International Standards for the
Professional Practice of Internal Auditing (Standards) promulgated by
The IIA.
[4]               COM(2013)
334 final.
[5]               One
engagement may result in several audit reports in case the engagement covers
more than one Directorate-General or Service as auditee.
[6]               4
recommendations were only partially accepted.
[7]               Of
these 29 recommendations, two were issued in 2006 of which one is reported as
‘implemented’ by management since March 2013.
[8]               Cut-off
date is 1 February 2013.
[9]               Minor
areas for improvement detected were submitted to the DG’s attention by way of
management letter. The sample DGs replied positively to this letter, committing
themselves to take IAS’ observations into account — to the extent possible — as
from the current AAR exercise.
[10]             The Commission had proposed a reduction of staff in each EU
Institution, body and agency of 5 % during the period 2013-17 through the
non-replacement of some departing staff (retiring or with expired contracts).
The Commission also established a mechanism to redeploy posts in order to meet
its priorities, based upon a linear 1 % levy on all basic job quotas.
[11]             Cost
of services of DGs/Services to other DGs/Services or institutions that are
transferred from the budget line of the client to the one of the provider
(recovery orders, co-delegations and cross sub-delegations). There is no consolidated figure providing an overview of the
amounts charged-back to internal and external clients by Commission service
providers.
[12]             Cost
of services of DGs/Services to other DGs/Services or institutions that are
transferred from the budget line of the client to the one of the provider
(recovery orders, co-delegations and cross sub-delegations). There is no consolidated figure providing an overview of the
amounts charged-back to internal and external clients by Commission service
providers.
[13]             In
the Audit on implementation of the 2007-13 Programming
Period in DG REGIO
[14]             A
report on corrective capacity of financial corrections for the period 2000-2006
was submitted to the COCOBU on 12 April 2013.
[15]             DG
REGIO has transmitted an updated sampling guidance to Audit Authorities on 4
April 2013. It also organised workshops addressed to these bodies in November
2012 in Brussels and seminars were held in 2013 in some Member States (Italy, Spain, Germany, Slovakia and Czech Republic).
[16]             Extensive
audit work, in particular on control strategies, was carried out in this policy
area in 2011.
[17]             e.g. revamped External Assistance Management Reports, declaration of
assurance from Heads of Delegation.
[18]             Excluding final payments of the administrative budget and
procurement, as well as those parts of LLP implemented through the National
Agencies in the Member States.
[19]             Regulation
(EC) No 223/2009, Article 6.
[20]             COM(2005) 0217
final.
[21]             2006 IT audit on ‘Large scale information systems’.
[22]             Art.
117, RAP stipulates: ‘That annual report [i.e. 99(3) report] shall also mention
any systemic problems detected by the specialised panel set up pursuant to Article 73(6) of the Financial Regulation.