East AFRITAC
Regional Workshop
Financial Reporting – Towards
Accrual Accounting
Arusha, Tanzania
•
Introductions
•
Welcome & background
•
Key note address
•
Agenda for workshop
•
Workshop organization
•
Housekeeping matters
•
Introducing the score card
2
Welcoming session
Background to workshop
•
Most developed countries have adopted (or
are adopting) accrual accounting.
•
GFS and SNA returns are based on accrual.
•
AFE countries account for income and
expenditure on cash (or modified cash) basis.
•
Increasing focus on budgeting for outputs &
outcomes (rather than inputs).
•
To improve the quality of public financial
management.
•
To provide better quality fiscal information.
•
To increase performance & value for money.
•
To reduce the risk of data manipulation
•
Because other countries are accounting on
the accrual basis or converting to it.
4
Accrual accounting - why convert?
Some possible justifications
Key questions for workshop
•
Why
should we convert to accrual?
•
Where
are we now?
•
What
are the difficulties that are likely to be
encountered?
•
How
can we protect against risk of abuse and
weakening of internal controls?
•
When
and how can changes be implemented (i.e.
prioritization & sequencing)?
East AFRITAC
Regional Workshop
Financial Reporting – Towards
Accrual Accounting
Arusha, Tanzania
11
th
to 14
th
April, 2011
Session 1 – Accrual versus cash
accounting, the basics
Financial Reporting
Setting the context
1
Good Quality
Financial
Reporting
Attracts
investment &
private sector
growth
Accountability
transparency
Improved
public service
delivery
Strong
Country
Capacity
Inter-national
standards
•
Session Topics:
–
Definitions of cash & accrual bases
–
Differences between the two bases
–
Comparative benefits & costs
3
Key workshop questions:
1. Does accrual accounting lead to:
a) Improved transparency and accountability?
b) Increased investor confidence?
c) Enhanced delivery of public services?
2. If so, how can AFE member countries best move
towards implementing accrual accounting?
Financial reporting
The Cash Basis of accounting recognizes transactions, and
other events, when cash is received or paid.
The cash basis measures the financial results for a period
as the difference between cash received and paid
.
Inflows
Outflows
Cash basis of accounting
The Performance Statement (receipts and payments) is
no more than a summary of the cashbooks.
The only assets and liabilities shown
in the Position Statement will be
cash, bank balances (or overdrafts)
and cash equivalents.
5
Financial Reports
•
Unrealised gains or losses
•
Purchase of goods and services on credit or
where the method of payment includes a
non-cash exchange;
•
Consumption of goods or services which have
been paid for in previous accounting periods;
•
Consumption of the service potential of
long-term assets; and
•
Incurrence of liabilities (e.g. pension obligations).
Cash basis of accounting
The final accounts consist of an:
Operating Statement
(performance
statement); a
Financial Position
Statement
showing assets & liabilities
and is supported by a
Cash Flow
Statement
.
The effects of transactions and other events are
recognised when they occur (not when the cash is
received or paid) and they are reported in the financial
statements of the period to which they relate.
7
Accrual basis of accounting
Accrual basis of accounting
Accounting adjustments
Accruals accounting requires adjustments for:
•
Accrued Expenses –
an expense that has been
incurred but has not been paid.
•
Pre-Paid Expenses –
an expense that has been paid
the benefit of which will be received in the future.
•
Non-Cash Expenses:
–
Depreciation
(recognizes the expense in the year)
–
Bad Debts Provisions
(provides for a loss)
Cash versus accrual basis
Payment transactions Points
Goods/
Services
Ordered
Goods and
Invoice
Received
Invoice Paid
POINT AT WHICH THE TRANSACTION IS
RECORDED
ACCRUALS
CASH
FY+1
FY Expenses
FY -1
FY-1
FY Payments
FY+1
Financial Year
Next Financial
Year
Previous
Financial
Year
CASH BASIS
ACCRUAL BASIS
Cash versus accrual basis
Payment cut off points
Some AFE member countries allow a “grace” period for processing
From cash to accrual
11
Cash Basis
Accounting
Full Accrual
Accounting
Modified Cash Accounting
Modified Accrual Accounting
Most AFE countries will consider themselves to be somewhere between
the cash basis and full accrual accounting model.
From cash to accrual
Variations
Cash Basis
Modified Cash
Modified Accrual
Full Accrual
Assets
Cash Balances
Cash Balances
Accounts Receivable
(within x days)
Cash Balances
Financial Assets:
- Investments
- Loans
Outstanding
- Revenues Receivable
- Other Receivables
Cash Balances
Financial Assets:
- Investments
- Loans
Outstanding
- Revenues Receivable
- Other Receivables
Tangible Assets:
- Property, plant and
equipment
- Inventories
Intangible Assets
Liabilities
None
Accounts Payable
(within x days)
Transfer Payments
(within x days)
Borrowings
Accounts Payable
Transfer Payments
Borrowings
Accrued Liabilities
(e.g. accrued interest)
Accounts Payable
Transfer Payments
Borrowings
Accrued Liabilities
(e.g. employee pension
obligations and accrued
interest)
Cash versus accrual – example (1)
Sample transactions
•
Revenues –
fees and charges of EA$70m due in period, only
EA$60m received.
•
Sale of asset –
an investment asset valued at EA$150m sold for
EA$150m in period. All sale proceeds received.
•
Government salaries in period –
EA$50m paid. Future pension
liability relating to period estimated at 20% of payroll cost.
•
Operating expenses –
payments made of EA$60m. Goods &
services received and invoiced at period end but not paid of
EA$10m.
•
Acquisition of asset –
asset acquired for EA$100m. Accounting
policy commences depreciation in period following acquisition. All
other fixed assets fully depreciated.
•
Revaluation of debt –
Opening external debt balance of EA$500m.
No repayments or new debt in period. EA$ currency devalues by
5%.
•
Bank guarantee –
Notice received that state enterprise has
defaulted on loan repayments and that guarantee of EA$30m will
Cash versus accrual – example (2)
Comparable statements
Cash Flow Statement
Operating Statement
Position Statement
Revenues
Revenues
Assets
B/F +/-
C/F
Fees & charges
60 Fees & charges
70 Bank
75
0
75
Sale of investment
150
70 Receivables
15
10
25
Expenses
Expenses
Investments 300 -150 150
Payroll
50 Personnel costs
60 Fixed Assets 400 100 500
Operating
60 Operating
70
790 -40 750
Capital asset
100 Forex loss
25
Liabilities
Cash Deficit
- Claim
30 Payables
40
30
Balances:
185 Pension
200
10 210
Opening cash
75
Accrual deficit
115 Loans
500
25 525
Closing cash
75
700
75 765
•
Ease of Understanding:
Accrual more complex but familiar to more
people.
•
Ease of manipulation:
Both scenarios dependent on policies &
standards. Cash is riskier as more off-budget/off balance sheet transactions.
Accrual risky unless budget prepared on same basis.
•
Comprehensiveness:
Accrual has greater coverage, includes all cash
plus other information.
•
Facilitates liquidity management:
Accrual includes cash
information plus payment and revenue arrears.
•
Property, plant & equipment management
: Accrual provides
information on asset use.
•
Comparability:
Dependent on accounting standards adopted. Accrual
consistent with GFS and SNA.
•
Assessing sustainability of fiscal policy & inter
generational equity:
Accrual more useful than cash but requires
supplementing with demographic data etc.
Cash versus accrual basis
Comparative usefulness (1)
15
•
Credibility:
External lenders & credit agencies more familiar with accrual
– could lead to lower borrowing costs.
•
Basis for determining fiscal strategy:
Accrual better, when
combined with good cash information.
•
Accountability:
Accrual provides accountability information for
resources (e.g. fixed assets)
•
Basis for product/service pricing:
Fuller costing information
from accrual.
•
Discourages fraud & corruption
: Accrual better than cash but
dependent on strong internal controls.
•
Implementation:
Commercial accounting systems geared to accrual.
However extra training and effort required, especially to account for fixed assets.
•
Ongoing operations:
Accrual requires more skilled staff to operate and
audit.
Cash versus accrual basis
14-04-2011
14-04-2011
International Public Sector Accounting Standards (IPSAS)
Government reporting: accounting basis
cash flows
budget cash flows actuals
assets,liabilities
estimate assets,liabilities actuals
revenues,expenses
budget revenues,expenses actuals
Cash accounting
Accrual accounting IPSAS
14-04-2011
14-04-2011
5
International Public Sector Accounting Standards (IPSAS) 10What are the advantages of IPSAS over other
accrual accounting standards?
•Standardisation: enables comparability (international and between governments within a country) and consolidation
•True and fair view: generally accepted accounting principles
•Due process: exposure drafts of standards are made public and comments are requested
•Easy to understand for users who comprehend company accounts (IFRS similarity) and cash accounting (balance sheet, statement of financial performance and cashflow statement are obligatory)
•Fair values enable convergence with government finance statistics (GFS)
•Better exchange of knowledge and more mobility of financial controllers and auditors between the public and private sectors
14-04-2011
7
International Public Sector Accounting Standards (IPSAS)Rwanda
13
International Public Sector Accounting Standards (IPSAS) 14
Uganda
The Austrian experience –
drivers for change
Johann Seiwald
2
•
dissatisfaction with the traditional system
•
budget department started research on possible budget
reform
•
strongly influenced by international experience
•
budget department received political support for reform
•
amendment of constitution (2007): reform made
irreversible („bridges burned“)
How the reform spirit
emerged
Why a reform?
•
Primary motivation: Improved budgetary decision-making
•
Addresses the following weaknesses of the traditional
system:
- No binding medium-term perspective
- Prevailing focus on inputs
- Monopoly of cash-perspective
•
The budget as a comprehensive control instrument for
resources, outputs & outcomes
•
Implementation in two stages: 2009 and 2013
4
Accounting system: 1986 – 2012
•
Cash budget (with some accrual modifications) as
dominant management lever
•
Accrual accounting (with reports on federal level):
- No appropriate valuation rules
- No management impact
- IT-infrastructure in place
- Some practical experience of staff with accruals
•
Cost accounting:
- Implementation in central units of the ministries from 2000 –
2005
Integration of accruals in a general
framework of financial management
Amendment in
the constitution:
New Principles: impact orientation, efficiency, transparency, true
and fair view
Improved Management of finances and performance by
integrated approach
New Balance of Managerial Flexibility and Accountability
MTEF, fiscal rules
and sustainability
reports
Accrual
budgeting and
accounting
Fiscal Institutions:
Performance Control Office Budget Office in Parliament
Court of Audit
Performance
Budgeting,
Result-oriented
6
6
Strategic approach in reform
development and implementation
•
Extensive study of other countries‘ reform experience:
Learning
about do‘s and dont‘s, intercultural aspect to be considered
•
Making the reform process irreversible:
Key elements in
constitutional amendments, detailed legislation at a later stage
•
Reform design and implementation through own staff:
Keeping
external consultancies to a minimum, building and strengthening
internal know-how
•
Pragmatic reform design:
Reducing complexity, less is more, no
100% perfectionist approach
•
informal parliamentary committee consisting of all parties
(make reform a national modernization project)
•
reform design remained intact, minor changes according to
demands of parliament
•
advantages for parliament: performance budgeting as an
additional lever; budget office for parliament; additional
reports
•
unanimous decision in parliament guaranties acceptance
of reform under different political constellations
Getting stakeholders on board:
Parliament
8
8
•
close cooperation between MoF and CoA: „friends of
the taxpayers“
•
CoA strongly endorsed reform
•
advantages for CoA: broader portfolio for CoA
(evaluation of performance goals and measures);
additional reports of line ministries to CoA
Getting stakeholders on board:
Court of Auditors
•
different roles of MoF and line ministries cause „natural“
conflict
•
line ministries failed to weaken position of MoF
•
unanimous decision in council of ministers necessary
•
agreement MoF – chancellery (the latter will be
responsible for performance controlling) freed the way for
reform
•
bridges burned in 2007 very helpful
•
advantages for line ministries: more flexibility (global
budgets); performance budgeting as a shop window
Getting stakeholders on board:
Line Ministries
10
10
Goals:
•
creating a positive attitude towards the reform in the
public mind
•
getting feedback on important aspects of reform
•
target groups:
- media (special briefings)
- scientific community (bilateral contacts; conferences)
- foreign multipliers (in particular OECD SBO)
Getting stakeholders on board:
The Public
The Austrian Federal Budget Reform
•
is a comprehensive reform addressing the whole system
and not only specific elements
•
is more than an accounting reform and a change in
managerial, budgetary and accounting rules
•
involves
cultural change
within the administration as well
as on the political level (setting priorities, defining
12
Thank you for your attention!
Contact address:
Johann Seiwald
Advisor Budget Reform
Budget Directorate
Austrian Federal Ministry of Finance
Hintere Zollamtsstraße 2b, A-1030 Vienna
Tel: +43 1 514 33 502006
Scope of consolidation in public sector
accounting according to IPSAS.
I
nternational
P
ublic
S
ector
A
ccounting
S
tandards
Frans van Schaik
Member IPSASB
Partner Deloitte
Professor University of Amsterdam
International Public Sector Accounting Standards (IPSAS)
Purpose of consolidated financial statements
2
Separate financial statements:
provide only a partial view of the activities of the government
separate legal or organizational entities make up a single economic entity
Consolidated financial statements:
show the full extent of the financial affairs of the government, including those of its controlled entities.
2
International Public Sector Accounting Standards (IPSAS)
IPSAS 6-definition of control
for financial
reporting purposes
•The power to govern..
• …the financial and operating policies of another entity…
• …so as to benefit from its activities
3
International Public Sector Accounting Standards (IPSAS) 4
Power and benefits conditions and indicators:
examples
• Power condition: Power to appoint or remove majority of members of the board of directors
• Power indicator: Ability to approve hiring and removal of key personnel
• Benefits condition: Power to dissolve the other entity and obtain residual economic benefits or bear significant obligations
• Benefits indicator: Reporting entity is able to direct the other entity to co-operate with it in achieving its
International Public Sector Accounting Standards (IPSAS) 5
separate
financial statements
(under IPSAS)
consolidated
financial statements
(under IPSAS 6)
controlled entities
with non-market
activities
(under IPSAS)
government
business
enterprises
(under IFRS)
International Public Sector Accounting Standards (IPSAS) 6
separate
financial statements
(under IPSAS)
general government
sector-disclosures in
financial statements
(under IPSAS 22)
consolidated
financial statements
(under IPSAS)
controlled entities
with non-market
activities
(under IPSAS)
government
business
enterprises
(under IFRS)
obligatory for any IPSAS financial statements optional disclosures in IPSAS financial statements4
International Public Sector Accounting Standards (IPSAS) 7
separate
financial statements
(under IPSAS)
general government
sector-disclosures in
financial statements
(under IPSAS)
general
government
sector (under
statistical bases)
consolidated
financial statements
(under IPSAS)
controlled entities
with non-market
activities
(under IPSAS)
government
business
enterprises
(under IFRS)
International Public Sector Accounting Standards (IPSAS)
Coverage of Cash Basis IPSAS and GFS
International Public Sector Accounting Standards (IPSAS)
Rwanda
9
International Public Sector Accounting Standards (IPSAS)
Uganda
6
International Public Sector Accounting Standards (IPSAS)
Uganda
11
International Public Sector Accounting Standards (IPSAS)
Uganda
International Public Sector Accounting Standards (IPSAS)
Two universities: one within, one outside
scope of consolidation
•University of Amsterdam:
–Governed by a supervisory board whose members are appointed by the Minister of Education.
–Supervisory board is responsible for approving the
university‟s budget, the institution‟s plans, the financial
statements.
•University of Tilburg:
–An „extraordinary university‟ (not a state university). –Dutch Conference of Bishops appoints the management
board of the foundation.
–The foundation committee appoints, suspends, and discharges the members of the management
committee.
13
International Public Sector Accounting Standards (IPSAS)
IPSAS-definition of control
for financial
reporting purposes
14
Definition of control
the power to govern.. ••must be presently exercisable existence of power, not the exercise of power
…the financial and
operating policies of
another entity…
includes:
•adopting the budget
•control expenditure
•setting staff rules and regulations does not include:
•the judge‟s decision (is independent of
financial and operating policies
…so as to benefit from its
8
International Public Sector Accounting Standards (IPSAS)
Power must be presently exercisable
•The entity must already have had its power conferred upon it by legislation or agreement
•Whether the entity is likely or unlikely to actually exercise control is not relevant to the determination of whether the power to govern exists
•Power to govern is not presently exercisable if it requires changing legislation or renegotiating agreements in order to be effective
15
International Public Sector Accounting Standards (IPSAS) 16
Existence of power, not the exercise of power
• “Control exists because the power to control is sufficient
even though the controlling entity may choose not to
exercise that power.”
•Decisive is whether reporting entity has power to control the other entity. Whether reporting entity actually uses this power is not relevant
Example:
•ILO Governing Body appoints 24 out of 35 members of board of the International Training Center (ITC) of ILO
•ILO controls ITC even though it does not give clear
instructions to these 24 board members on how to vote in ITC's Board
International Public Sector Accounting Standards (IPSAS)
Indirect control through one controlled entity
17
International Public Sector Accounting Standards (IPSAS)
Indirect control through more than one
controlled entity
10
International Public Sector Accounting Standards (IPSAS)
Why consolidation is necessary: Government
business enterprise borrows to pay dividend
19
Government
business
enterprise
(accrual accounting)Government
(cash accounting) owns 77% surplus + € 500 mln. borrowings unaffected borrowings + € 500 mln. dividend € 500 mln.International Public Sector Accounting Standards (IPSAS)
Available on the IPSASB Web Site
•All IPSASs (including Spanish and French translations)
•All current Exposure Drafts
•IPSASB Update on most recent IPSASB meeting
•IPSASB meeting papers (before each meeting)
•Free of charge at: www.ipsasb.org
Visit
www.deloitte.nl/ipsas
or mail
fvanschaik@deloitte.nl
Reporting entities –
the Austrian approach
Johann Seiwald
2
•
3 levels of government:
- Federal level
- 14 ministries
- „minister autonomy“
- strong position of Minister of Finance
- Federal Chancellor has no directive power
- Regional level („Länder“)
- 9 Länder
- Independence
- Municipalities
- About 2.300
•
Considerable hive-offs during last years
2nd Stage as of 2013:
New Budget Structure
Total Budget
Headings
Budget Chapters
Global Budgets
Detail Budgets
Cost Accounting
Transparent budget structure as a prerequisite for other reform elements
MTEF: 5 Headings
~ 30
~70 global resource frameworks
instead of more than 1000
appropriation line items
flexible steering tool,
easily adaptable to
specific requirements
shown in the budget
enacted by Parliament
binding within public
administration
4
Reporting Entities
•
Accruals obligatory for Federal Level:
- MOF
-
All line ministries
-
All federal agencies
-
NOT: off-budget corporatisations
-
Standard setting by MOF and Court of Audit
•
Efforts to develop an aligned framework for local
Reporting structure
Total Budget
Headings
Budget Chapters
Global Budgets
Detail Budgets
Cost Accounting
Consolidated report of
federal level; no full
consolidation IPSAS 6
Financial report comprising all
agencies and resources
Reasons for variancesby
line ministries
Flexible control lever,
easily adaptable to
specific requirements
Reports in the IT-system, not
published
Enacted by Parliament
Preparation by agencies and
basis for consolidated
reports
Ministry of Finance
prepares, Court of
Audit checks
accounts
Coordination by
line ministry
6
Outsourcing in Austria: legal and
institutional framework
Decentralisation
:
transfer of tasks from public administration to public and
private entities operating at arm’s length with the government
Institutional and legal framework:
- 100% owned
by competent ministry
- set up
by law
either as private limited company or
specific public entity
-
autonomous financial management:
financial flows
in/out of the state budget based on different activities
and parameters
-
autonomous personnel management
Outsourcing in Austria: legal and
institutional framework
Corporate governance:
- Management or chief executive
accountable to
supervisory board
-
Supervisory board:
chaired by civil servant from
parent ministry, at least one member from MoF
Grand
scale:
-
130 bodies,
-
Shift of 55% of government employees
- incl. Austrian Post and Austrian Railways: 100.000;
Universities: 20.000
Important for Public Finances: Consideration in
whole-of-government deficit and debt ratios
8
List of examples
Cultural and educational institutions:
Universities, Zoo of
Schönbrunn, Schönbrunn Castle, federal theatres, federal
museums, Spanish Horse Riding School
Support services and others:
Federal computer centre
(BRZ), federal debt management (ÖBFA), unemployment service
(AMS), Statistics Austria
Accounting according to Austrian corporate act
Services of general economic interest, infrastructure:
Austrian railways (ÖBB), post and telecommunications, state
press, federal real estate management (BIG), ASFINAG (highway
construction and operation)
Objectives and expectations on
political level
•
More efficiency and cost-effectiveness in the
provision of public services
- more autonomy of the management
greater accountability and responsibility
- output oriented steering and control
- accrual accounting
•
Substantial relief of the federal budgets
•
Reduction in the number of state employees
•
Facilitation in meeting the Maastricht criteria
(public deficit and total public debt
)
10
Thank you for your attention!
Contact address:
Johann Seiwald
Advisor Budget Reform
Budget Directorate
Austrian Federal Ministry of Finance
Hintere Zollamtsstraße 2b, A-1030 Vienna
Tel: +43 1 514 33 502006