Zakład Ubezpieczeń Społecznych to instytucja finansowa o niskiej efektywności

Autor: Paweł Lechowski 2010-01-07 18:42:00 Ilość odsłon: 5105 Kategoria: system ubezpieczeń

Nr ewidencyjny:
160/2007
Data sporządzenia:
01/2008
Dział tematyczny:
zabezpieczenie społeczne

NIK przeprowadziła – z inicjatywy własnej – kontrolę kosztów funkcjonowania Zakładu Ubezpieczeń Społecznych. Celem kontroli była ocena wykorzystania przez Zakład środków przeznaczonych na finansowanie obsługi ubezpieczeń społecznych. Kontrolę przeprowadzono pod względem legalności, gospodarności, celowości i rzetelności. W roku 2007 wydatki na prowadzenie działalności operacyjnej ZUS wyniosły ok. 3,5 mld zł, co stanowiło – w okresie objętym kontrolą - 10 % wydatków Narodowego Funduszu Zdrowia. ZUS realizował zadania określone w ponad 20 ustawach, z których wiele wykraczało poza obszar ubezpieczeń społecznych. Tak szeroki katalog zadań, i brak możliwości porównania z podobną instytucją, utrudnia dokonanie oceny faktycznej efektywności działania Zakładu. Dlatego podstawowym kryterium oceny była efektywność stosowanych przez ZUS metod zarządzania i organizacji pracy. Wprowadzana – od 1999 roku – reforma emerytalna spowodowała kryzys organizacyjny Zakładu, dotyczący głównie poboru i rozliczania składek. Sytuacja ta była przedmiotem szeregu kontroli NIK, stwierdzających konieczność wprowadzenia procedur naprawczych, które prowadziłyby do obniżki kosztów obsługi ubezpieczeniowej, wymagających jednak poniesienia dodatkowych kosztów. W ocenie NIK, działania Zakładu w zakresie budowy narzędzi wspomagania efektywnego zarządzania były opóźnione i źle skoordynowane. Już w 1999 roku zaplanowano stworzenie – do końca 2000 roku – nowego modelu budżetowania i kontroli kosztów. Tymczasem, podstawowe jego elementy wykonano dopiero w ramach audytu rozpoczętego w kwietniu 2006 roku.
NIK ocenia negatywnie niewprowadzenie przez Zakład uproszczonych metod zarządzania kosztami za pomocą ogólnych wskaźników dostosowanych do istniejących możliwości ewidencji księgowej. Rozwiązania te można było zastosować stosunkowo szybko bez kosztownych – w budowie i eksploatacji – systemów ewidencji kosztów i zarządzania.
Niepodjęcie odpowiednich działań w tym zakresie (zalecanych od 1999 roku w zamawianych przez ZUS audytach i ekspertyzach) świadczy o braku celowości i rzetelności w postępowaniu Kierownictwa ZUS. Ocenę tę potwierdza zła koordynacja i opieszałość realizowanych przedsięwzięć. W rezultacie, podjęta w 1999 roku decyzja o ustalaniu budżetów jednostek Zakładu, proporcjonalnie do realizowanych zadań, ma być dopiero wdrażana. Obowiązujące w ZUS metody oceny premiowały wykonanie zadań bez uwzględniania kosztów i wydajności.
Nie stworzono systemu ustalania i rozpowszechniania najlepszych praktyk działania, proponowanego już w przyjętym w 1999 roku – „Planie naprawczym ZUS”. Do nie przekształconych – pod względem efektywności – struktur organizacyjnych i metod pracy, dostosowywano budowę kosztownego systemu informatycznego. Niewłaściwe przygotowanie i sposób realizacji tego systemu zwiększyły koszty funkcjonowania ZUS. Przeprowadzona w roku 2005 restrukturyzacja zwiększyła dysproporcje w zakresie efektywności i kosztów jednostkowych realizacji zadań pomiędzy oddziałami Zakładu, pomimo zmniejszenia ich liczby.
ZUS nie przeprowadził inwentaryzacji procesów oraz nie ustalił jednolitych metod realizacji zadań. Potrzebę ustalenia standardowych metod realizacji podstawowych zadań potwierdzają stwierdzone – w toku kontroli – duże różnice wydajności pracy oraz jednostkowych kosztów realizacji zadań. Np. różnica – między grupami 5 oddziałów o najniższym i najwyższym koszcie jednostkowym wykonania zadań wynosiła średnio 57,4 % w roku 2004 i 65 % w I półroczu 2006 r. Analogiczna różnica w zadaniach na 1 etat wynosiła odpowiednio - 74 % i 71 %. Dla oddziałów o największych różnicach rozpiętość ta wzrosła ze 105 % w 2004 roku do 149 % w I półroczu 2006 r.

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