Presentation on theme: "1 Updates on Accounting and Auditing Regulations LOURDES M. CASTILLO Assistant Commissioner Government Accountancy Sector Commission on Audit Delivered."— Presentation transcript:
1 Updates on Accounting and Auditing Regulations LOURDES M. CASTILLO Assistant Commissioner Government Accountancy Sector Commission on Audit Delivered during the GACPA Seminar at The Oriental Hotel, Taysan Hill, Sto. Niňo Village, Legaspi City October 19, 2013
2 Topical Outline 1.COA Circular No. 2013-002 dated January 30, 2013 “Adoption of the Revised Chart of Accounts for National Government Agencies” 2.COA-DBM-DOF Joint Circular No. 2013-1 dated August 06, 2013 “Adoption of the Unified Accounts Code Structure (UACS)”
3 3.COA-DBM Joint Circular No. 2013-1 dtd. March 15, 2013 “Revised Guidelines on the Submission of Quarterly Accountability Reports on Appropriations, Allotments, Obligations and Disbursements” 4.COA Circular No. 2013-003 dtd. Oct. 29, 2013 “Updated Guidelines on the Prevention and Disallowance of Irregular, Unnecessary, Excessive, Extravagant and Unconscionable Expenses”
4 6.COA Circular No. 2012-005 dtd. Dec. 7, 2012 “Revocation of COA Circular No. 2009-008 dtd. Nov. 9, 2009 and Prescribing the Use of Punong Barangay’s Certification (PBC) and COA Auditor’s Advice (CAA)” 5.COA Circular No. 2013-007 dtd. Sept. 18, 2013 “Guidelines for the Use of Electronic Official Receipts (eORs) to Acknowledge Collection of Income and other Receipts of Government”
5 7.Other Matters a)Updates on the Philippine Public Sector Accounting Standards (PPSASs) as harmonized with the IPSAS b)eNGAS Rollout in the Local Government Units
7 Legal Basis COA Circular No. 2013-002 dated January 30, 2013 Effectivity Date: January 01, 2014
8 Objectives To provide new accounts for the adoption of the Philippine Public Sector Accounting Standards (harmonized with IPSAS) To provide uniform accounts for national government accounting and budget systems to facilitate the preparation of harmonized financial and budgetary accountability reports
9 Objectives To expand the account code from three (3) digits in the NGAS Chart of Accounts, to eight (8) digits, to allow expansion or creation of new accounts as may be necessary to implement new standards or policies and provide up to four levels of consolidation depending on the users’ information needs.
10 Major Changes a.Coverage is limited only to all national government agencies and GOCCs receiving funds constituted a SAGF from the National Government b.Expanded account code structure from three (3) digits to eight (8) digits
12 Account Groups Codes are assigned to account groups to facilitate location of accounts in the general and subsidiary ledgers, to provide systematic arrangement and classification of accounts and facilitate preparation of the consolidated financial reports as follows: Code Account Groups 1 Assets 2 Liabilities 3 Equity 4 Income 5 Expenses
13 Asset without Contra Account Ex. Cash, Collecting Officer A G
14 Asset with Contra Account 1 03 01 01 0 Ex. Accounts Receivable
15 Asset with Contra Account 1 03 01 01 1 Ex. Allowance for Impairment – Accounts Receivable
16 Major Changes c.New accounts were provided for the implementation of the Philippine Public Sector Accounting Standards (PPSAS)
18 New Accounts 10202010 Investments in Treasury Bills – Local In compliance with IPSAS 29-30 10202011 Allowance for Impairment - Investments In compliance with in Treasury Bills - Local IPSAS 29-30 10501010 Investment Property, Land In compliance with IPSAS 16 10501011 Allowance for Impairment - Investment In compliance with Property, Land IPSAS 16 & 21
20 Major Changes d.Some accounts were deleted since these accounts are for use by local government units or government- owned and/or controlled corporations, while other accounts are no longer applicable to national government agencies.
22 Major Changes e.Some accounts were either expanded or compressed. For instance, expense accounts for repairs and maintenance and depreciation of property, plant and equipment which were previously presented per asset account were compressed based on the major account classification
23 Compressed Accounts 811 Repairs and Maintenance - 5 02 13 040 Repairs and Office Buildings Maintenance- 812 Repairs and Maintenance - Buildings and Other School Buildings Structures 813 Repairs and Maintenance - Hospitals and Health Centers 814 Repairs and Maintenance - Market and Slaughterhouses 815 Repairs and Maintenance - Other Structures Examples:
24 Compressed Accounts 811 Depreciation-Office 5 05 01 040 Depreciation - Buildings Buildings and 812 Depreciation-School Other Structures Buildings 813 Depreciation-Hospitals and Health Centers 814 Depreciation-Market and Slaughterhouses 815 Depreciation-Other Structures Examples: 811 Depreciation-Office Buildings 812 Depreciation-School Buildings 813 Depreciation-Hospitals and Health Centers 814 Depreciation-Market & Slaughterhouses 815 Depreciation-Other Structures 5 05 01 040 Depreciation- Buildings and Other Structures
25 Repairs and Maintenance – Buildings and Other Structures Subsidiary Ledgers: 01 - Buildings 02 - School Buildings 03 - Hospitals and Health Centers 04 - Markets 05 - Slaughterhouses 06 - Hostels and Dormitories 99 - Other Structures
26 Depreciation - Buildings and Other Structures Subsidiary Ledgers: 01 - Buildings 02 - School Buildings 03 - Hospitals and Health Centers 04 - Markets 05 - Slaughterhouses 06 - Hostels and Dormitories 99 - Other Structures
28 Expanded Account Cash - National 1 01 04 040 Cash-Modified Disbursement Treasury, System (MDS), Regular Modified 1 01 04 050 Cash-Modified Disbursement Disbursement System (MDS), Special System (MDS) Account 1 01 04 060 Cash-Modified Disbursement System (MDS), Trust Example:
29 The Revised Chart of Accounts As Object Code in the Unified Account Code Structure
30 Purposes of Object Classification and Coding To capture all financial transactions such as goods or services acquired, payments made, revenue sources and the causes of increases or decreases in assets and liabilities. n To enable the classification and coding of transactions for reporting of impact of government revenues and expenditures on the economy as well as internal departmental analysis and decision-making by oversight agencies.
31 The object coding in the information system provides a repository of government-wide information which can be used by oversight agencies without requiring departments and agencies to respond to individual requests. Provides a basis for coding the object classification which uses accrual accounting requiring transactions to be recorded in the period when they occur and not only when cash or equivalents are received or paid.
32 Legal Basis COA-DBM Joint Circular No. 2013-1 dated March 15, 2013 “Revised Guidelines on the Submission of Quarterly Accountability Reports on Appropriations, Allotments, Obligations and Disbursements”
33 Rationale COA and DBM requirement for agencies to submit BAR/FAR. DBM uses the reports to monitor agency performance for policy making purposes. COA uses the report to prepare the AFR.
34 Purposes 1.To prescribe harmonized formats of the financial accountability reports (FAR) on appropriations, allotments, obligations, disbursement authorities, disbursements and balances; and 2.To prescribe guidelines on the preparation and timely submissions of FARs by the agencies to the DBM and the COA after the end of each quarter.
35 Coverage The Circular covers all departments, bureaus, offices and agencies of the national government and government- owned and/or controlled corporations maintaining Special Accounts in the General Fund.
36 Definition of Terms 1.Appropriation – an authorization made by law or other legislative enactment, directing the payment of goods and services out of government funds under specified conditions or for specified purposes. 2.Allotment – a specific authority in the form of Agency Budget Matrix (ABM) or Special Allotment Release Order (SARO) issued by DBM to identified agencies to incur obligations not exceeding a given amount during a specified period for the purpose indicated therein.
37 3.Sub-Allotment – a specific authority in the form of Sub- Allotment Release Order (Sub-ARO) issued by the Central Office (CO)/Regional Office (RO) of a department/office/ agency to its ROs/lower operating units (i.e. field office, district office or provincial office ) which allow them to incur obligations within a specified amount during a specified period. The Sub-ARO should not exceed the allotment releases to the CO. 4.Obligation – a commitment by the government agency arising from an act of a duly authorized official which binds the government to the immediate or eventual payment of a sum of money. The agency is authorized to incur obligations only in the performance of activities which are in pursuit of its functions and programs authorized in the appropriation acts/laws within the limit of the allotment released by the DBM.
38 5.Commitment – an obligation incurred by government agencies for which items have not yet been delivered and services not yet rendered. This is also called “Obligations Not Yet Due and Demandable”. 6.Unpaid Obligation – this is the balance of an accounts payable or commitment. 7.Operating Unit – a “national government agency” or a unit thereof receiving direct release of a Notice of Cash Allocation (NCA) from the DBM.
39 Guidelines A.Head of office to submit the following reports to COA and DBM: 1.Statement of Appropriations, Allotments, Obligations, Disbursements and Balances (SAAODB) 2.List of Agency Budget Matrix (ABM) or SAROs and Sub-AROs
40 3.Detailed Statement of Current Year’s Obligations, Disbursements and Unpaid Obligations (SODUO-CY) 4.Summary of Prior Year’s Obligations, Disbursements and Unpaid Obligations (SODUO-PY) 5.Summary of Report of Disbursements
41 B.The FARs prescribed in the Circular shall replace the following DBM and COA reports as follows: 1.DBM Statement of Allotments, Obligations and Balances (SAOB) – BAR No. 4 Financial Report of Operations (BAR No. 2) Monthly Report of Disbursements – Bar No. 3
42 2.COA SAOB Detailed Breakdown of Obligations Detailed Breakdown of Disbursements Regional Breakdown of Expenses Statement of Cumulative Allotments, Obligations Incurred and Unobligated Balances Detailed Statement of Cumulative Expenditures/ Obligations Incurred, Obligations Liquidated/Disbursements and Unliquidated Obligations
43 Responsibilities 1.The FARs shall be prepared and certified correct by the following officials: Budget Officer/Head of Budget Unit – for the portion of the report pertaining to appropriations, allotments, obligations, unobligated allotments and unreleased appropriations
44 Chief Accountant/Head of Accounting Unit – for the portion of the report pertaining to disbursements and unpaid obligations The FARs shall be signed by the Agency Head as the approving official. He/she shall ensure the timely submission of the accurate and reliable FARs.
45 Due Dates of Submission to COA and DBM All Departments/Agencies – not later than the 30 th day after the end of each quarter The Lower Operating Units – within (5) days after the end of each quarter for consolidation The Agency Regional Offices – to submit the consolidated report to COA (GAS) and DBM CO within (10) days after the end of each quarter
46 Penalty Clause COA and DBM shall regularly monitor agency/OU compliance with the reporting requirements prescribed in the Circular. For failure to submit the FARs, the “no report, no release” policy of the DBM shall be enforced.
47 Administrative sanctions on the automatic suspension of the payment of salaries of the officials concerned. Violation for three (3) times without justifiable cause during the year, shall constitute a ground for the filing of an administrative/disciplinary action against the officials for inefficiency and incompetence.
48 COA Circular No. 2012-003 dated October 29, 2012 “Updated Guidelines for the Prevention of Disallowance of Irregular, Unnecessary, Excessive, Extravagant and Unconscionable Expenses as enumerated under COA Circular No. 85-55A dated Sept. 8, 1985”
49 Legal Basis n Section 33 of P.D. 1445 Section 2(2), Article IX-D of the 1987 Constitution
50 1.“Irregular” Expenditures Expenditures incurred without adhering to established rules, regulations, procedural guidelines, policies, principles or practices that have gained recognition in laws Definitions Transactions conducted in a manner that deviates or departs from, or which does not comply with standards set
51 2.“Unnecessary” Expenditures Expenditures which could not pass the test of prudence or the diligence of a good father of a family, thereby denoting non-responsiveness to the exigencies of the service Not supportive of the implementation of the objectives and mission of the agency relative to the nature of its operation Not dictated by the demands of good government, and those, the utility of which cannot be ascertained at a specific time Not essential or that which can be dispensed with without loss or damage to property
52 3.“Excessive” Expenditures Signify unreasonable expense or expense incurred at an immoderate quantity and exorbitant price Include expenses which exceed what is usual or proper, as well as expenses which are unreasonably high and beyond just measure or amount
53 4.“Extravagant” Expenditures Signify those incurred without restraint, judiciousness and economy Exceed the bounds of propriety Immoderate, prodigal, lavish, luxurious, grossly excessive, and injudicious
54 5.“Unconscionable” Expenditures Pertain to expenditures which are unreasonable and immoderate, and which no man in his right sense would make, nor a fair and honest man would accept as reasonable, and those incurred in violation of ethical and moral standards
55 Fundamental Principles, Sec. 4, P.D. 1445 No money shall be paid except in pursuance of an appropriation law or other specific statutory authority Use solely for public purpose Trust funds only for the specific intended purpose Fiscal responsibility shared by all those exercising authority over finance, transactions and operations
56 Disbursements or dispositions should bear approval of proper officials Claims should be supported with complete documentation Faithful adherence to all pertinent laws and regulations Observance of GAAP and practices as well as sound management and fiscal administration, provided they do not contravene with existing laws and regulations
57 Common Types of Disbursements 1.Cash Advances COA Circular No. dtd. Feb.10, 1997 COA Circular No. 2009-002 dtd. May 18, 2009 Section 89 of P.D. 1445
1. 1 No cash advance shall be given unless for a legally authorized specific purpose. 1.2 No additional cash advance shall be granted unless the previous cash advance are fully liquidated. 1.3 No cash advance shall be granted for payment of infrastructure projects or undertaken on project basis.
1.4 A cash advance shall be reported on and liquidated as soon as the purpose for which it was granted has been served. 1.5 Only officials with permanent appointment shall be designated as disbursing officers. Elected officials shall be granted cash advances for their official travels. 1.6 Transfer of cash advances from one administrative officer to another shall not be allowed.
Documentary Requirements Authority from the Head of Agency stating therein the maximum cash accountability Certification from the accountant that previous cash advances were fully liquidated/accounted for Approved application for bond
2.Fund Transfers to NGOs/POs COA Circular No. 2007-001 dtd. Oct. 25, 2007 COA Circular No. 2009-007 dtd. Sept. 25, 2009 GPPB Resolution 12-2007 dtd. June 29, 2007 Perti nent Provisions of the GAA for the Year
2. 1 Ensure that the NGOs/Pos are legitimate and qualified. 2.2 Strict compliance with the Memorandum of Agreement (MOA). 2.3 Report on the fund releases indicating the names of NGOs/POs are submitted to the Senate Committee on Finance and House Committee on Appropriations. 2.4 Ensure that the funds are disbursed strictly in accordance with the project identified in the MOA.
3.Fund Transfers to Implementing Agencies COA Circular No. 94-013 dtd. Dec. 13, 1994 3.1 Should be strictly taken up in the books of both agencies. 3.2 Used only for the purpose intended. 3.3 Properly accounted for and reported.
64 4.Procurement Shall be governed by R.A. No. 9184 Other Issuances of the General Procurement Policy Board Pertinent Provisions of the GAA 4.1 PhilGEPS as the primary source of information on government procurement. 4.2 Included in the Annual Procurement Plan (APP). 4.3 Ensure transparency in the process.
65 COA Circular No. 2012-005 dated December 7, 2012 “Revocation of COA Circular 2009-008 dated Nov. 9, 2009 and Prescribing the Use of Punong Barangay’s Certification (PBC) and COA Auditor’s Advice (CAA)”
66 Salient Features The DVs are duly certified and approved, n The PBC to be issued only under oath after the PB has duly examined and been satisfied that: The expenditure or disbursement is proper and valid, and The supporting documents are complete. The responsibility to initiate, process, approve financial transactions and issue Punong Barangay’s Certification (PBC) under oath rests with the Barangay officials.
67 Salient Features n The Authorized Government Depository Bank (AGDB) shall encash the checks issued if the corresponding PBC is issued. n Checks encashed without the corresponding PBC or with falsified PBC shall be the responsibility of the AGDB. n The PBC shall be numbered sequentially by year and by barangay and in (4) copies. The PB shall be primarily accountable for all losses arising from issuance of the PBC.
68 Salient Features The PBC (4 th ) copy shall be submitted to the accountant for recording within (10) days after end of month and subsequently submitted to the COA auditor for audit. n Non-submission of PBCs within (15) days after demand by the Auditor shall be a ground for preparation of the COA Auditor’s Advice (CAA) to the AGDB to hold further payments of checks issued by the said barangay.
69 COA Circular No. 2013-007 dated September 18, 2013 “Guidelines for the Use of Electronic Official Receipts (eORs) to Acknowledge Collection of Income and Other Receipts of Government”
70 Legal Basis n COA Circular No. 2004-006 dated Sept. 9, 2004, setting the guidelines and principles on the acceptability of evidences of receipt of payments Section 7 of R.A. No. 8792, otherwise known as the Electronic Commerce Act of 2000
71 Rationale/Scope n A system for receiving, sending, storing, generating, or otherwise processing electronic data messages or electronic documents pertaining to receipt and deposit of government collections. Electronic Collection System is an active online facility provided by government agencies that enables debtors, creditors and other clients to pay government dues and charges tharough a computer or telephone n Due to the growing adoption of electronic transactions, there is a need for guidelines on what maybe considered an electronic forms of evidence of payment for collections of income and other receipts.
72 Salient Features n For evidentiary purposes, an electronic document shall be the functional equivalent of a written document under existing laws. The electronic document maintains its integrity and reliability and can be authenticated.
73 Definition of Terms Authorized Government Depository Bank (AGDB) – refers to a bank where Government Entities are allowed by law to deposit their funds and maintain depository accounts, or by way of exception, a bank authorized by the Department of Finance and Monetary Board to be a government depository bank. n Digital Signature – is an electronic signature consisting of a transformation of an electronic document or an electronic data message using an asymmetric or public cryptosystem such that a person having an initial untransformed electronic document and the signer’s public key can accurately determine: (i) whether the transformation was created using the private key that corresponds to the signer’s public key; and (ii) whether the initial electronic document had been altered after the transformation was made.
74 Electronic Data Message – refers to information generated, sent, received or stored by electronic, optical or similar means. n eOR – refers to a proof of payment generated/issued through an Electronic Payment and Collection System (EPCS) with unique or sequential reference numbers that can be validated using the same system. More specifically, the eOR refers to an evidence of payment for collection received by the agency from clients generated through the agency’s electronic collection system. Electronic Document– refers to information or the representation of information, data, figures, symbols or other modes of written expression, described or however represented, by which a right is established or an obligation extinguished, or by which a fact may be proved and affirmed, which is received, recorded, transmitted, stored, processed, retrieved or produced electronically.
75 EPCS – refers to a system that accepts and processes Electronic Payments, authenticates the payor and payee, validates availability of funds and executes the appropriate debit and credit instructions for the fund source and destination accounts, generated and forwards electronic proof of payment or eOR to the payor, or allows secure access thereto and creates, retains and safeguards the resulting detailed electronic transaction records which are accessible by authorized personnel. Electronic Signature – refers to any distinctive mark, characteristic and/or sound in electronic form, representing the identity of a person and attached to, or logically associated with, the electronic data message or electronic document or any methodology or procedures employed or adopted by a person and executed or adopted by such person with the intention of authenticating or approving an electronic data message or electronic document.
76 Payor or Originator – refers to a person or entity by whom, or on whose behalf, the electronic data message or electronic document has been created, generated and/or sent. The term does not include a person acting as an intermediary with respect to that electronic data message or electronic equivalent.
77 General Guidelines 1.All collections shall be acknowledged by the government agency concerned through the issuance of official receipts to establish that these have been received. 2.Receipt of collections/revenue through electronic means shall be acknowledged by an eOR. 3.The eORs shall have met the minimum data content. 4.Collections of NGAs shall be deposited to the national Treasury while those f or LGUs and GOCCs shall be deposited to their respective accounts.
78 General Guidelines 5.All collections through electronic system shall be recorded/accounted for in the books of the concerned government agency. 6.The government agency concerned shall comply with the Joint Administrative Order No. 02, s.2006, “Guidelines Implementing R.A. No. 8792 on EPCS in Government”. 7.The government agency shall provide the Auditor the read/view and print access rights in the computerized system.
Other Matters A.Updates on Accounting Reforms 1.Twenty-five (25) Philippine Public Sector Accounting Standards (PPSASs) prepared, discussed with users and are now presented to the COA Commission Proper for adoption thru the issuance of a CP Resolution. 2.Six (6) remaining PPSASs are 45% completed.
Scope The PPSAS shall apply to all NGAs and LGUs while GOCCs and subsidiaries under their ownership and control follow the PFRS, codified and issued by the PICPA Philippine Public Sector Accounting Standards (PPSAS)
The PPSAS set out the recognition, measurement, presentation and disclosure requirements for financial reporting in the Philippine Government. Objective of PPSAS
Methodology Evaluation of IPSAS Development of PPSAS Preparation/Update of GAS Manual Revision of the Chart of Accounts Conduct of Training
Phased Implementation Phase 1 (25 PPSAS for implementation in 2014) Phase 2 (3 PPSAS for implementation in 2015) Approach to Implementation
Phase 1 – for implementation in 2014 1.PPSAS 1 – Presentation of Financial Statements (IPSAS 1) 2.PPSAS 2 – Cash Flow Statements (IPSAS 2) 3.PPSAS 3 – Accounting Policies, Changes in Accounting Estimates and Errors (IPSAS 3) 4. PPSAS 4 – The Effects of Changes in FOREX rates (IPSAS 4)
5. PPSAS 5 – Borrowing Costs (IPSAS 5) 6.PPSAS 6 – Consolidated and Separate Financial Statements (IPSAS 6) 7.PPSAS 8 – Interests in Joint Venture (IPSAS 8) 8.PPSAS 9 – Revenue from Exchange Transactions (IPSAS 9) 9.PPSAS 12 – Inventories (IPSAS 12) 10.PPSAS 13 – Leases (IPSAS 13) Phase 1 – for implementation in 2014
11.PPSAS 14 – Events after the Reporting Date (IPSAS 14) 12.PPSAS 16 – Investment Property (IPSAS 16) 13.PPSAS 17 – Property, Plant and Equipment (IPSAS 17) 14.PPSAS 19 – Provisions, Contingent Liabilities and Assets (IPSAS 19) 15.PPSAS 20 – Related Party Disclosures (IPSAS 20) Phase 1 – for implementation in 2014
16.PPSAS 21 – Impairment of Non-Cash Generating Assets (IPSAS 21) 17.PPSAS 23 - Revenue from Non-Exchange Transactions (Taxes and Transfers) (IPSAS 23) 18.PPSAS 24 – Presentation of Budget Information in Financial Statements (IPSAS 24) 19.PPSAS 26 – Impairment of Cash Generating Assets (IPSAS 26) Phase 1 – for implementation in 2014
Phase 2 – for implementation in 2015 1.PPSAS 18 – Segment Reporting 2.PPSAS 22 – Disclosure of Information About the General Government Sector 3.PPSAS 25 – Employee Benefits
Phase 2 – For implementation in 2015 1.PPSAS 18 – Segment Reporting 2.PPSAS 22 – Disclosure of Information About the General Government Sector 3.PPSAS 25 – Employee Benefits
eNGAS Rollout in the LGUs Will now resume with the assistance of the eNGAS Users’ Circle (EUC), the lone organization who signified interest in helping COA with the rollout in the LGUs. Memorandum of Agreement (MOA) will be made to embody the terms and conditions for the rollout. This activity to be headed by the COA Information Technology Office (ITO) and with the active participation of the Government Accountancy Sector (GAS).
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