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GOVERNMENTAL ACCOUNTING.

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Presentation on theme: "GOVERNMENTAL ACCOUNTING."— Presentation transcript:

1 GOVERNMENTAL ACCOUNTING

2 Governmental Accounting
Many concepts are similar to financial accounting, but terminology and procedures differ. Governmental Accounting Standards Board (GASB) generates standards.

3 Governmental Accounting User Needs
Concepts Statement #1, GASB Basic Groups of Users Citizenry Legislative and Oversight Bodies Investors and Creditors

4 Nature of of Governmental Activities
Charter Extensive Legal Requirements: Constitutions, charters, and statutes regulate governmental units. Some legal provisions pertain to accounting and financial reporting matters: Keeping separate set of books for certain activities. Being audited by outside CPAs.

5 Nature of Governmental Activities
Absence of a Profit Motive Question of What to Measure? Revenues & Costs of Providing Services? Inflows and Outflows of all Resources? Inflows and Outflows of certain Resources?

6 Government Finance Officers Association (GFOA)
Equivalent to the AICPA for the private sector. To enhance and promote professional management of governmental units --- publishes/provides the following : Books, periodicals, monthly newsletter. Services to members. Software.

7 GAAFR: “The Blue Book ” GAAFR
Stands for Governmental Accounting, Auditing and Financial Reporting Published by the GFOA. Neither prescribes nor authoritatively interprets GAAP for governmental units. Provides detailed guidance (many examples) for applying governmental GAAP. Widely used by governmental units.

8 Governmental Accounting Standards Board (GASB)
Created in 1984 Sister organization to the FASB Establishes GAAP for state and local government No authority to establish GAAP for the federal government. Seven members--simple majority vote needed

9 Jurisdictional Arrangement Between GASB and FASB
GASB --- primary responsibility for state and local governmental units. Must follow FASB rules if GASB says so. May elect to follow a FASB rule if GASB has not addressed a specific issue --- if election made, must use ALL such rules.

10 Basic Principles of the GASB Codification: Grouped into 7 Categories
Accounting & Reporting Capabilities Types of Funds Basis of Accounting Financial Reporting Long-Term Liabilities Capital Assets Budgets and Budgetary Accounting

11 Accountability and Governmental Accounting
Governmental Accounting Statements attempt to answer 3 questions related to Accountability: Where did the financial resources come from? What amount of financial resources is presently held? Where did the financial resources go?

12 Reporting Diverse Governmental Activities - Fund Accounting
Governmental units have many different types of activities. No common motivation links these activities. Each activity operates quasi-independent, self-balancing sets of accounts called funds. Examples include: Public Safety Sanitation Health & Welfare Education Parks & Recreation Judicial System Water and Sewer Employee Pensions

13 Fund Accounting Fund Accounting: Accounting for certain activities/operations separately from all other operations. Fund --- self-balancing set of accounts Reporting Entity --- focus on service Financial Statements --- focus on accountability

14 Fund Accounting Classification
Governmental Funds Proprietary Funds Fiduciary Funds Accounting for activities related to serving the public. Accounting for business-type activities. Accounting for financial resources held for others in a trustee capacity.

15 Fund Accounting Classification Governmental Funds
Let's Talk About Each Fund

16 Governmental Funds General Fund
Used to account for all financial resources except those accounted for in other funds. In 2011, 60% of Baltimore’s governmental funds were accounted for in the General Fund.

17 Governmental Funds Special Revenue Fund
Expenditures are legally restricted. Revenues that must be spent for specific purposes. St. Paul, MN, requires that money received for the sale of zoo animals, must be spent to acquire NEW animals for the zoo.

18 Governmental Funds Capital Projects Fund
Used to account for costs to acquire or build major governmental facilities. The asset is not recorded in this account, but the funds to acquire or build it are accounted for here.

19 Governmental Funds Debt Service Fund
Used to account for financial resources collected to pay long-term liabilities and interest. In 2011, Birmingham reported paying out $11 million in principal payments and $15 million in interest from its Debt Service Funds.

20 Governmental Funds Permanent Fund (Endowments)
Used to account for funds donated to the government by external donors. In 2008, Dallas reported nearly $8 million in funds donated to take care of city parks.

21 Fund Accounting Classification Proprietary Funds

22 Proprietary Funds Enterprise Fund
Used to account for any government activity that is financed by user charges. An activity MUST be accounted for here if, any one of the conditions below are met Net revenues provide the security for the activity’s debts. The the law requires costs to be recovered from user fees. Fees are set high enough to recover costs..

23 Proprietary Funds Internal Service Fund
Used for any unit that provides services to the OTHER governmental departments. Inter-departmental fees are charged. Tennessee Tech University charges the departments for the use of University vehicles.

24 Fund Accounting Classification

25 Account Groups No longer reported on the Financial Statements
Used to keep track of general capital assets and long-term debt Types: General Fixed Asset Account Group (GFAAG) General Long-Term Debt Account Group (GLTDAG)

26 Basis of Accounting Modified Accrual Basis Used for Governmental Funds: General Fund Special Revenues Fund Capital Projects Funds Debt Service Funds Permanent Funds

27 Basis of Accounting Modified Accrual Means:
REVENUES: Recognize in period in which they become available and measurable. Available means: Collectible within the current period or soon enough thereafter to be used to pay current period liabilities.

28 Basis of Accounting Full Accrual (when earned) Basis Funds:
Proprietary Funds --- Enterprise Funds Internal Service Funds Fiduciary Funds --- Trust Agency

29 Governmental Fund Accounting Major Account Classification
Recording the Budget Controlling Accounts: Revenues Other Financing Sources Appropriation/Expenditures Other Financing Sources/Uses Encumbrances

30 Fund Accounting Equity Section
ASSETS minus LIABILITIES = Governmental and Proprietary Fiduciary Funds Funds FUND BALANCE NET ASSETS Reserved Invested in Capital Assets Unreserved net of related debt Restricted Unrestricted

31 Budgets and Budgetary Accounting
Annual Budgets for the General Fund and the Special Revenue Funds --- always recorded in the general ledger for control purposes. Optional for Capital Projects Funds and Debt Service Funds.

32 Recording the Budgetary Entries
Fund Balance Composition + Estimated Revenues + Estimated Other Financing Sources - Appropriations - Estimated Other Financing Uses = Fund Balance Journal Entry: Estimated Revenues xx Estimated Other Financing Sources xx Appropriations xx Estimated Other Financing Uses xx Fund Balance (Derived) xx

33 REVENUE AN INFLOW OF ASSETS

34 Common Revenue Sources
Taxes Licenses and Permits Intergovernmental Revenues Charges for Services Fines and Forfeits Miscellaneous Interest, Rents, Sales of Fixed Assets Other Financing Sources (OFS)

35 Income from Legal Claims
Property Taxes --- Levy of Taxes Charges for Services --- Performing Services Sales Taxes --- Taxable Sale by Business Income Taxes --- Taxpayer Earning Income

36 GUIDE TO RECOGNIZING REVENUES:
Revenues STAND ALONE. Not “earned” as in the private sector. Delivery of services requires expenditures Delivery of service does not “generate” revenues. Come from outside the government unit

37 Property Taxes Local governments derive most revenue from property taxes - based on value (ad valorem taxes) Recognize as Revenue when levied Collected in the current period or soon enough thereafter… Need allowance for uncollectible Deferred revenue if not “available”

38 Sales Taxes Charges for Services
Recognize when merchant files sales tax return Measurable Available Charges for Services Recognize revenue when billing for services rendered

39 Licenses and Permits Fines Difficult to predict accurate amounts
Normally recognize revenue when cash is received Fines Options: when tickets are issued date fine is due actual payment date Common practice - when cash is received

40 Investment Income Record all investments at Fair Value
“mark-to-market” unrealized gains/losses are recognized as revenue in period Interest and dividends accrued as earned

41 Grants & Other Intergovernmental Revenues
Restricted Grants --- Expenditure Driven Food Stamps, Pass-Through Grants (if administered) On-Behalf Payments Unrestricted Grants --- recognize upon award Entitlements --- recognize upon award

42 Deferred Revenues Donations Liability recorded if unearned or
not legally available Donations Treatment by Type of Asset Current Assets --- FMV Fixed Assets to be used --- Account Groups at FMV Fixed Assets to be sold --- Short-Term Investments at FMV

43 Tax Anticipation Notes
Recorded as a liability Always short-term Will not be converted into long-term so never in the account group

44 Other Financing Sources
Not a Revenue Proceeds from Issue of Long-Term Debt Sale of a Fixed Asset (up to original cost) Transfer of Resources from Another Fund

45 EXPENDITURES OUTFLOW OF ASSETS

46 Examples of Expenditures
Wages and Salaries Compensated Absences Vacations Sick Leave Pensions Claims and Judgments Supplies Prepayments Fixed Assets Leases Debt Service Principal Interest

47 Accounting for Expenditures
Recognize --- when liability is both measurable and incurred Current Liabilities Funded by Current Taxpayers Use Available Financial Resources Exception: Interest on Long Term Liabilities Long Term Liabilities go in the Long Term Account Group

48 Other Financing Uses Not an Expenditure
Operating Transfers of Resources to Other Funds Not classified as “Expenditures” in remitting fund to avoid double counting

49 ENCUMBRANCES RESERVING ASSETS

50 Encumbrances --- commitments related to unperformed/executory contracts for goods or services.
Special General Ledger Accounts --- purpose which is to prevent spending more than has been appropriated. ENTRIES HAVE NO EFFECT ON REPORTED OPERATIONS.

51 Commit to Future Expenditure
Encumbrances - Year 1 Commit to Future Expenditure Encumbrance Control xx F.B. Reserve for Encumbrances xx When Invoice is Received F.B. Reserve for Encumbrances xx Encumbrance Control xx Expenditures Control xx Vouchers Payable xx Year-End Fund Balance xx Expenditures Control xx

52 Encumbrances - Year 2 At Beginning of the Year: Reinstate Encumbrances
Encumbrances xx Fund Balance xx When Invoice is Received F.B. Reserve for Enc. xx Encumbrances xx Expenditures xx Vouchers Payable xx At year-end Fund Bal xx Expenditures xx

53 Inventories of Supplies
Consumption Method: Preferred Method-- parallels business practice. ACQUISITION of inventory is treated as the conversion of resources (debit Inventory). USE of inventory is treated as an outflow of resources (credit Inventory and debit Expenditures or Expenses). Purchases Method: ACQUISITION of inventory is treated as an outflow of resources (debit Expenditures or Expenses).

54 Supplies Expenditure Consumption Method
Acquisition: Inventory - Supplies xx Vouchers Payable xx Record Expenditure Upon Consumption: Expenditures - Supplies xx Inventory - Supplies xx Year end Fund Balance - Unreserved xx Fund Balance -Reserve for Supplies xx

55 Supplies Expenditure Purchase Method
Record expenditure upon acquisition: Expenditure - Supplies xx Vouchers Payable xx Inventory - Supplies xx Fund Balance - Reserve for Supplies xx

56 Prepayments Purchases Method: Expenditure - Insurance xx
Vouchers Payable xx Consumption Method: Prepaid Insurance xx Prepaid Insurance xx

57 Year End Closing Entries
Close the Budget: Appropriations xx Budgetary Fund Balance xx Estimated Revenues xx Close the Actual Accounts: Revenues xx Expenditures xx Encumbrances xx Fund Balance xx

58 Special Revenue Fund Same accounting as the General Fund
May have expenditure-driven grants If “on behalf” payments are administered by the government, activities are accounted for here Accounts for expendable trust fund activity where both principal and earnings are used to support government activities or programs

59 CAPITAL PROJECT FUND (CPF)
Acquisition of major General Fixed Assets through Purchase Construction Capital lease Same basic accounting and reporting model as General Fund or Special Revenue Funds

60 CPF: Funding Sources Sources
Interfund Operating Transfers (Credit OFS) Long-Term Borrowing (Credit OFS) Intergovernmental Grants (Credit Revenue) Special Assessments (Credit Revenue) --- levied against property owners or other beneficiaries

61 CPF: ACCOUNTING ACTIVITIES
Record Budget on an annual basis Interim Financing (Bond Anticipation Notes) Record Costs Charged to Projects Interest on Temporary Investments is Revenue Intergovernmental Grants are Revenues Disposition of Bond Premiums/Discounts, Accrued Interest, and Issuance Costs

62 CPF Resources: Bond Issued at Premium
Issue Bond: Cash 1,509,000 OFS - Bond Proceeds 1,509,000 Transfer Premium to Debt Service Fund: Other Financing Uses 9,000 Cash (or Due to Debt Service Fund) 9,000

63 CPF Resources: Bond Issued at Discount
Issue Bond: Cash 1,491,000 OFS - Bond Proceeds 1,491,000 Additional financing may have to come from a transfer from the general fund or project may have to be scaled back.

64 CPF Resources: Bond Anticipation Notes (BANS)
Issued as short-term “interim” financing Accounted for in GLTDAG if: maturity > 1 year or maturity  1 year and all steps have been taken to refinance on long-term basis intent is supported by ability to consummate refinancing All other BANS are current (Fund Liabilities)

65 CPF Resources: Special Assessments
Compulsory levy made against certain property to defray part or all of the cost of an improvement service Assume general/specific benefit to property owners assessed If proceeds from special assessment are related to debt --- is government obligated in some manner? yes: credit OFS-Bond Proceeds no: credit Contributions from Property Owners Debt not issued --- Credit OFS-Transfer from Other Funds

66 CPF: Capital Project Funds: Year End
Project Complete --- Close Revenues and Expenditures to Fund Balance --- Transfer any residual fund equity to source(s) Project Incomplete Close revenues & OFS, Expenditures & OFU to the Fund Balance Close open encumbrances against F. B. -- leave F.B.- Reserve for Encumbrance Reestablish at beginning of next year: Encumbrance xx F.B. xx

67 CPF Acquisition: Capital Lease
Use FASB 13 criteria to assess lease contract Entries: Expenditure - Fixed Asset xx Other Financing Sources xx (Lease Liability recorded in GLTDAG) Expenditure - Lease Principal xx Expenditure - Lease Interest xx Cash xx (Fixed Asset recorded in GFAAG)

68 Debt Service Fund Used to account for the financial resources accumulated to cover the payment of principal and interest on general government obligations Used when legally mandated, or Accumulating resources to satisfy term bond indenture requirements for future years’ debt service payments

69 Debt Service Fund: Types of Debt Serviced
Most common are Bond Issues usually serial debt term bonds are rare Capital Lease Obligations Notes and Warrants Payable Other

70 Debt Service Fund: Sources of Financing
Property Taxes (usually transferred in from another fund) Sales Tax Special Assessments Income from Investments (net of any arbitrage) Refunding or Defeasance

71 Debt Service Fund Special Assessment
Levied to provide for indebtedness incurred for general government special assessment projects. Noncurrent Special Assessments Receivable: included in fund assets are offset by deferred revenue and do not result in revenue or affect fund balance

72 Debt Service Fund Expenditure Recognition
Modified Accrual: report principal and interest expenditures when legally payable (i.e., does not accrue unmatured principal or interest) Accrual permitted, but not required, if: resources for debt service accumulated in fund by year end and payment due early next year if accrual option is used, must accrue entire debt service payment due early next year

73 Debt Service Fund: Fund Balance Reserves
Excess of Assets over Liabilities Fund Balance Reserved for Debt Service Amount usually equal to highest year’s principal plus interest payments “Amount Available” in GLTDAG at year end should equal amount in debt service fund for future principal payments If not, then adjusting entry is made: Amount Available xx Amount to be Provided xx

74 Debt Service Fund Refunding Defined
Issuance of new debt to finance payment of interest and principal of existing debt Current Refunding - use refunding proceeds to retire debt immediately Advance Refunding - place proceeds in escrow and use to pay interest and principal in future (in-substance defeasance) Reasons for Refunding or Defeasance: Lower Effective Interest Rates Extend Maturity Dates Revise Payment Schedules Remove or Modify Restrictions

75 Debt Service Fund: Reporting Refunding & Defeasances
Debt Service Fund Entry: Cash xx OFS-Proceeds of Refunding Bonds xx Refunding issue is reported in General Long Term Debt Account Group Defeased/Retired Debt is removed from General Long Term Debt Account Group

76 Account Groups General Fixed Assets - GFAAG
General Long-Term Debt - GLTDAG Common Features: Focus on general government as whole Accounting procedures List and Offset Accounting Entries Primarily “add to/remove from” list

77 Classification of Fixed Assets
Land Building (or Building and Improvements) Infrastructure (or Improvements other than Buildings) Machinery and Equipment Construction in Progress (no capitalized interest)

78 General Fixed Asset Account Group
Acquisition and initial valuation Cost Estimated Cost Gifts: Fair Market Value Foreclosure: Lower of FMV or Amount Due for Taxes Eminent Domain: Compensation to Owner Escheat: FMV

79 Fixed Assets Not all funds account for & report capital assets
General Fixed Assets --- Fixed assets not accounted for in a specific fund are reported in the General Fixed Asset Group Depreciation Expense --- not reported in the operating statement of the governmental funds Accounting Equation for Fixed Assets Fixed Asset = Investment in GFA---(Source of funding)

80 Classification of Investment in GFA by Financing Source
General Fund and Special Revenue Funds General Revenues Special Revenues Capital Projects Funds Long-Term Borrowing Special Assessments Intergovernmental Grants-in-Aid Interfund Transfers

81 Fixed Asset Acquisition
Expenditure - Fixed Assets xx Vouchers Payable (Cash) xx (then fixed asset is recorded in account group) If borrow to acquire the asset: Cash xx Other Financing Sources xx (then long-term debt is recorded in account group)

82 Long-Term Liabilities
Certain funds account for and report long-term liabilities. Long-term liabilities not accounted for in a specific fund are General Long-Term Liabilities (GLTL) Accounted for in the General Long Term Debt Account Group Liability of the government as a whole and not that of any specific fund.

83 General Long Term Debt Account Group
All unmatured debt except that of the Proprietary Funds Unmatured Principal Secured (typically) by Full Faith & Credit Not a liability of any one fund

84 GLTD --- Examples General Government: Bond Issue
Special Assessment Debt Long-term Notes Claims and Judgments Compensated Absences Capital Lease Liabilities Unfunded Pension Contributions Unfunded Landfill Closure and Postclosure Care

85 GLTDAG: Accounting Equation
When Incurred: Amount to be provided = Long-term obligation While Debt is Outstanding: (Amount available + Amount to be provided) = Long-term obligation When Debt Matures: Reverse Accounts from Account Group

86 PROPRIETARY FUNDS

87 Proprietary Funds Pertaining to a Proprietor: Users of goods or services --- charged on the basis of consumption Types Enterprise: Goods or Services provided to the General Public Internal Service: Goods or Services provided Inter or Intra- Governmental Units

88 Proprietary Funds: Common Features
Accounting - Full Accrual Fixed Assets and Long-Term Debt maintained in the fund Applicability of Pertinent Business (i.e., FASB) Pronouncements Reporting Interfund Transactions Financial Statements Required

89 Proprietary Funds Accounting Principles
Similar to For-Profit Enterprises GAAP applied except where it has been specifically overridden by a GASB pronouncement GASB #20: Must apply all pertinent GAAP (ARBs, APBs, SFASs, etc.) through SFAS 102 unless conflict May apply GAAP from SFAS 103 to present --Choices apply ALL, unless conflict or apply NONE, unless adopted by GASB GASB #34: May apply those FASB standards and interpretations limited to NFP organizations

90 Proprietary Funds Financial Statements
Balance Sheet Statement of Revenues, Expenses, and Changes in Net Assets Statement of Cash Flows Plus: Combining Statements Segment Information

91 Enterprise Funds Fund use is mandatory to account for operations financed or operated like a business Provide goods/services, to the public, on continuing basis for a fee Intended to recover (most of) the full costs of providing goods/services Use is optional when the entity engages in activities for which the governing body deems net income type information appropriate

92 Examples of Enterprise Funds:
Public Utilities Public Transportation Systems Recreational Facilities Parking Facilities Lotteries Airports Hospital/Healthcare Facilities Landfills

93 Enterprise Funds Non-operating Revenues
Capital Contributions Operating Transfers Loans Others Grants Tap Fees Impact Fees Internal and External Subsidies Debt Forgiveness from General Government

94 Enterprise Funds Capital Contribution
Recorded as Interfund Transfer Included in the Statement of Revenues, Expenses, and Changes in Net Assets as Nonoperating Revenue No separate Contributed Capital on Balance Sheet Not “Residual Equity Transfers”

95 Enterprise Funds Restricted Assets
Way to have a “Fund within a Fund” Distinctively titled Restricted Asset, Liability and Equity Reserve Accounts Customer Deposits Construction Financed by Bond Issue Debt Service Contingencies

96 Internal Service Fund Services to Other Governmental Departments
Cost-Reimbursement Basis Intermediary Fiscal and Accounting Entity Economy/Efficiency Equitable Cost Sharing

97 Internal Service Fund Pricing Policies
Charges should be Based on Cost Charges cannot be excessive Pricing often includes Total Costs and Total Consumption of Goods or Services

98 Fiduciary Funds

99 Fiduciary Funds Used to account for assets received and held by government acting as trustee or custodian for individuals, organizations, businesses, or other governments Difference - Duration of Fiduciary Responsibility Agency Fund – Short-Term Fiduciary Responsibility Trust Funds – Long-Term Fiduciary Responsibility

100 Types of Trust Funds Private Trust Expendable Nonexpendable
Investment Trust Pension Trust

101 Trust Funds Private Purpose Expendable
Can spend both Principal (Corpus) and Earnings Financial Statements Statement of Net Assets Statement of Changes in Net Assets

102 Trust Funds: Private Purpose Nonexpendable
Can Spend Only Earnings Principal (Corpus) Stays Intact Financial Statements Statement of Net Assets Statement of Changes in Net Assets

103 Investment Trust Funds
Used to Account for Pooled Investment Funds and Other Investment Activity Financial Statements Statement of Net Assets Statement of Changes in Net Assets

104 Pension Accounting GASB 25 Annual Pension Cost - Actuarial Method
Acceptable Annual Required Contribution (ARC) Determination of Normal Cost Unfunded Actuarial Accrued Liability and Amortization

105 Pensions ARC - Actuarial Required Contribution
Portion of ARC that will be paid from current resources Expenditures - Pension Benefits xx Accrued Wages and Salaries xx Portion of ARC that will be paid in future Amount to be provided... xx Long-term liability for pension benefits xx

106 Pension Claims and Judgements
Follow FASB 5: Accrue if probable and reasonably estimable Amount to be paid from current resources Expenditures - Claims/Judgments xx Accrued Claims and Judgments xx Amount to be paid in the future Amount to be Provided... xx Long-term Liability for Claims and Judgments xx

107 Pension Reporting Statement of Net Plan Assets Investments at FMV
Fixed income securities not amortized Fixed assets reported at depreciated cost No liability reported for actuarial present value of future benefits Actuarial information (must comply with established parameters & assumptions) reported as Required Supplementary Information (RSI) Statement of Changes in Net Plan Assets Reports on additions and deductions Identifies changes in net plan assets

108 Agency Funds Used for Tax Collections for Other Governments
Payroll Deductions Pass-Through Grants Grants, Entitlements, Shared Revenue GASB required Agency Funds Government has no program/discretion No obligation special assessment debt service

109 Agency Funds Assets = Liabilities Statement of Net Assets
Accounting Equation Assets = Liabilities Financial Statement Statement of Net Assets

110 FINANCIAL REPORTING

111 Coverage of Fund Accounting Procedures

112 The Operating Statement for Governmental Fund
REVENUES: Always classified by source. EXPENDITURES: Classified by character: Current, Capital Outlay, or Debt Service Then by function (for example): Health, Welfare, Sanitation, Public Safety

113 OPERATING STATEMENT FORMAT
OPERATING STATEMENT--Use the “all-inclusive” format which includes the analysis of the fund balance (modified accrual basis funds) or net assets (accrual basis funds) for the period: Revenues (Inflows) Expenditures (Outflows) Excess of Revenues over Expenditures Fund Balance, 1/1/11 Fund Balance, 12/31/11

114 Balance Sheet Format BALANCE SHEET--Display restrictions of the fund balance in the following manner: Fund Balance: Reserved for encumbrances…$ 33, Unreserved , Total Fund Balance $450,000 Numerous types of restrictions can exist--thus several types of “reservations” may be used.

115 Time to Clear Things Up --- Any Questions?


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