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2011 Yellow Book: What You Need to Know

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1 2011 Yellow Book: What You Need to Know
Joint meeting Baltimore Chapter of AGA and American Society of Military Comptrollers Baltimore, MD January 17, 2013 Marcia B. Buchanan 1

2 Session Objectives Highlight areas that GAO revised in the 2011 Yellow Book, especially focusing on independence Use of conceptual framework New documentation requirements Walk through a common case study on independence Highlight revisions made for financial audits and attestation engagements Highlight revisions made for performance audits

3 Primary Yellow Book Changes
Updated independence Included a conceptual framework Added documentation requirements Additional documentation in independence Focus on non-audit services Focused on converging where practical Incorporated clarified SASs Fewer differences Made several revisions to details of the performance audit chapters 3 3

4 The 2011 Yellow Book Applicability
Chapters 1, 2, and 3 apply to all GAGAS engagements Chapter 1: Government Auditing: Foundation and Ethical Principles Chapter 2: Standards for Use and Application of GAGAS Chapter 3: General Standards Chapter 4: Standards for Financial Audits – applies only to financial audits Chapter 5: Standards for Attestation Engagements - applies only to attestation engagements 4 4

5 The 2011 Yellow Book Applicability (Continued)
Chapters 6 and 7 apply only to performance audits Chapter 6: Field Work Standards for Performance Audits Chapter 7: Reporting Standards for Performance Audits Appendix: Provides additional guidance (not requirements) for all GAGAS engagements Interpretations: Available on the Yellow Book web page. Provide additional guidance (not requirements) for areas of particular interest or sensitivity. 5 5

6 2011 Yellow Book Effective Dates
Effective for financial audit periods ending on or after December 15, 2012 Effective for attestation periods ending on or after December 15, 2012 Effective for performance audits starting on or after December 15, 2011 Independence may be impacted before the beginning of an engagement Likely periods ending after December 15, 2012 (Chapter 4)

7 Chapter 1: Government Auditing: Foundation and Ethical Principles
Provide a framework for conducting high quality audits with competence, integrity, objectivity, and independence For use by auditors of government entities and entities that receive government awards 7 7 7

8 Chapter 2: Types of GAGAS Engagements
All audits begin with objectives, and those objectives determine the type of audit to be performed and the applicable standards to be followed. The types of audits that are covered by GAGAS, as defined by their objectives, are classified in the Yellow Book as financial audits, attestation engagements, and performance audits. 8 8 8

9 Chapter 2: Financial Audits
Financial audits provide an independent assessment of and reasonable assurance about whether an entity’s reported financial condition, results, and use of resources are presented fairly in accordance with recognized criteria Financial audits performed under GAGAS include Financial statement audits Other types of financial audits 9

10 Chapter 2: Attestation Engagements
In addition to financial audits Attestation engagements can cover a broad range of financial or non-financial objectives and may provide different levels of assurance about the subject matter or assertion depending on the users’ needs. The three types of attestation engagements are: Examination Review Agreed-Upon Procedures 10

11 Chapter 2: Performance Audits
Performance audits are defined as audits that provide findings or conclusions based on an evaluation of sufficient, appropriate evidence against criteria Performance audits provide objective analysis to assist management and those charged with governance and oversight in using the information to Improve program performance and operations Reduce costs Facilitate decision making, and Contribute to public accountability

12 Chapter 2: Use of Terminology
Standardized language to define the auditor requirements Consistent with SAS No. 102: Must indicates an unconditional requirement Should indicates a presumptively mandatory requirement Text not using the above conventions is considered explanatory material Interpretive publications are recommendations on the application of GAGAS specific circumstances

13 Chapter 2: Standards for the Use and Application of GAGAS
Clarified citing compliance with GAGAS Determining appropriate GAGAS compliance statement is a matter of professional judgment Departures from presumptively mandatory requirements Using GAGAS with other standards 13

14 Chapter 3: General Standards
Independence Conceptual framework Provision of nonaudit services to auditees Professional judgment Competence Technical knowledge Continuing Professional Education Quality Assurance System of quality assurance Peer review 14 14 14

15 Chapter 3: General Standards – Independence
The following from the 2007 Yellow Book has been removed from the 2011 revision: definition of independence in terms of personal, external, and organizational independence, and the overarching principles that applied to assessing nonaudit services. The 2011 revision requires “independence of mind” and “independence in appearance” (para 3.03) and establishes a risk-based conceptual framework within which to evaluate seven broad categories of “threats to independence.” Independence of mind The state of mind that permits the performance of an audit without being affected by influences that compromise professional judgment, thereby allowing an individual to act with integrity and exercise objectivity and professional skepticism. Independence in appearance The absence of circumstances that would cause a reasonable and informed third party, having knowledge of the relevant information, to reasonably conclude that integrity, objectivity, or professional skepticism had been compromised. (audit organization or audit team, or an individual)

16

17 Independence Timeframes
Impairment exists during The period of the audit – usually the fiscal year The professional engagement usually starts with earlier of start of planning or engagement agreement. usually ends on the last report date. Depending on the circumstances, independence may be impacted beyond this timeframe. Recurring engagement may mean that some activities or circumstances will always impair.

18 Applying the Framework
New approach combines a conceptual framework with certain rules (prohibitions) Balances principle and rules based standards Serves as a hybrid framework Certain prohibitions remain Generally consistent with Rule 101 AICPA Beyond a prohibition Apply the conceptual framework Will be used more often than AICPA 18 18

19 Chapter 3 – General Standards: Independence
Threats could impair independence Do not necessarily result in an independence impairment Safeguards could mitigate threats Eliminate or reduce to an acceptable level

20 Applying the Framework
Conceptual Framework: Identify threats to independence Evaluate the significance of the threats identified, both individually and in the aggregate Apply safeguards as necessary to eliminate the threats or reduce them to an acceptable level Evaluate whether the safeguard is effective Documentation Requirement: Para 3.24: When threats are not at an acceptable level and require application of safeguards, auditors should document the safeguards applied. 20

21 GAGAS Conceptual Framework for Independence

22 Applying the Framework: Categories of Threats
Management participation threat Self-review threat Bias threat Familiarity threat Undue influence threat Self interest threat Structural threat 22 22

23 Routine Audit Services and Nonaudit Services
Routine audit services pertain directly to the audit and include: Providing advice related to an accounting matter Researching and responding to an audited entity’s technical questions Providing advice on routine business matters Educating the audited entity on technical matters Other services not directly related to the audit are considered nonaudit services 23

24 Routine Audit Services and Nonaudit Services
Services that are considered nonaudit services include: Financial statement preparation Bookkeeping services Cash to accrual conversions (a form of bookkeeping) Other services not directly related to the audit Unless specifically prohibited, nonaudit services MAY be permissible but should be documented In relation to the conceptual framework In relation to the auditor’s assessment of managements’ skill, knowledge or experience 24

25 Nonaudit Services Certain services may be permitted
First, determine if there is a specific prohibition If not, the auditor should assess the nonaudit service’s impact on independence using the conceptual framework

26 Independence: Prohibited Nonaudit Services
Management Responsibilities: setting policies and strategic direction for the audited entity; directing and accepting responsibility for the actions of the audited entity’s employees in the performance of their routine, recurring activities; having custody of an audited entity’s assets; reporting to those charged with governance on behalf of management; deciding which of the auditor’s or outside third party’s recommendations to implement; accepting responsibility for the management of an audited entity’s project; Sometime during the discussion of prohibited nonaudit services, discuss mandates that government organizations may have that would also be considered an independence impairment – how should they handle those

27 Independence: Prohibited Nonaudit Services (cont.)
Management Responsibilities (cont): accepting responsibility for designing, implementing, or maintaining internal control; providing services that are intended to be used as management’s primary basis for making decisions that are significant to the subject matter of the audit; developing an audited entity’s performance measurement system when that system is material or significant to the subject matter of the audit; and serving as a voting member of an audited entity’s management committee or board of directors. In addition to explaining what auditors cannot do, give examples of what they can do. For example, auditors are often requested to design or “approve” an agency’s internal controls. Although auditors cannot do exactly that, they can provide advice on what constitutes a good internal control, leaving it up to the agency to actually design and implement it. Explain the term, “subject matter of the audit.” This phrase confuses some auditors if they are not conducting an audit of that specific function and do not have plans to audit it in the immediate future. The confusion is more likely to be among performance auditors in local governments who have broad audit authority – is there a “cooling off” period, or should they always say no if there is a future possibility of auditing that subject matter even if there are no immediate plans to do so. Mention that auditors cannot sit on interview panels that make recommendations for hiring decisions in departments they audit and that staff in departments they audit should not sit on the auditors’ interview panels. Provide other examples of management committees or boards that auditors should not participate in, or if they do, what the limits of their roles should be (e.g., retirement board, ethics committee).

28 Independence: Prohibited Nonaudit Services (cont.)
Design or develop an IT system that would be subject to or part of an audit. Make significant modifications to an IT system’s source code. Operate or supervise an IT system. Internal Controls May not provide ongoing monitoring services. May not design the system of internal controls and then assess its effectiveness. Full list of prohibited services: para 3.36 and para – 3.58 Since auditors are often asked to help during the design and implementation phases of IT systems, explain the type of services they can provide (e.g., advice on the types of controls the system should have; testing to make sure the implemented controls are working) Explain that the auditor may, however, perform monitoring services that are part of audit work (e.g., continuous auditing)

29 Independence: Nonaudit Services Commonly Requested of Government Auditors
Signing off on an agency’s policies and procedures Establishing a strategic plan for an agency Determining the priority for implementing audit recommendations Participating in human capital decisions for key government staff Participating in committees as a voting member But these are not allowed Again, reiterate that auditors may not be members of interview panels of agencies they audit when that role would involve scoring, ranking, and/or making recommendations in any manner about a candidate

30 Nonaudit Services 1. Determine if there is a specific prohibition. Unless specifically prohibited, nonaudit services MAY be permitted but should be documented. 2. If not prohibited, assess the nonaudit service’s impact on independence using the conceptual framework. 3. If the auditor assesses any identified threat to independence as higher than insignificant, assess the sufficiency of audited entity management’s skill, knowledge, and experience to oversee the nonaudit service. And…

31 Nonaudit Services (Continued)
4. If the auditor concludes that performance of the nonaudit service will not impair independence, document assessments in relation to both: safeguards applied in accordance with the conceptual framework and the auditor’s assessment of sufficiency of audited entity managements’ skill, knowledge or experience to oversee the nonaudit service (paragraph 3.34).

32 Assessing Management’s Skill, Knowledge, or Experience
Factors to document include management’s: Understanding of the nature of the service Knowledge of the audited entity’s mission and operations General business knowledge Education Position at the audited entity Some factors may be given more weight than others GAGAS does not require that management have the ability to perform or reperform the service 32

33 Sufficiency of Skills, Knowledge and Experience
Sufficient skills, knowledge and experience may be judged in part based on: Ability of the identified client personnel to identify material errors or misstatements in a non audit service work product Ability of the client to sufficient background to understand the nature and results of the audit service Ability of management to take responsibility and understand the work Client prepared material in poor condition may indicate the client is not capable of taking responsibility for the service. Significant audit findings and adjustments may also be indicative of this issue.

34 Financial Statement Preparation
Auditors may prepare financial statements Considered by GAGAS a nonaudit service Must apply the conceptual framework Two additional documentation requirements Document application of safeguards Document assessment of management’s skill, knowledge or expertise 34

35 Independence: Documentation Requirements
Para 3.59 summarizes documentation requirements for independence: Threats that require the application of safeguards along with the safeguards applied (3.24) Safeguards in place if an audit organization is structurally located within a government entity (3.30) Consideration of sufficiency of audited entity management’s skill, knowledge, and experience to take responsibility for and effectively oversee the nonaudit services (3.34) The auditor’s understanding with an audited entity regarding nonaudit services to be provided (3.39) 3.30 – e.g., Auditor-Controller functions, which are mandated in certain jurisdictions

36 Case Study #1 Can ABC Audit Firm prepare the financial statements of We Help People (WHP), a not-for-profit organization, and remain independent under the AICPA and Yellow Book Standards? Yes No Maybe

37 Case Study #1 (Continue)
ABC has proposed in excess of 50 adjusting entries to correct WHP financial statements. Is ABC independent with respect to WHP? Yes No Maybe

38 Case Study #1 (Continue)
ABC has also identified the following issues: WHP’s trial balance is not in balance The balance sheet has account balances that appear to be materially wrong—assets with credit balances and liabilities with debit balances Bank reconciliations are materially different thafrom the trial balance ABC has been asked by WHP to do whatever necessary to get the books in order to complete the audit. ABC can take on this role: Yes No

39 Chapter 3 – General Standards: Continuing Professional Education (CPE)
No revision to overall requirements: Minimum of 24 hours of CPE every 2 years Government Specific or unique environment Auditing standards and applicable accounting principles Additional 56 hours of CPE for auditors involved in Planning, directing, or reporting on GAGAS assignments; or Charge 20 percent or more of time annually to GAGAS assignments Minimum of 20 hours of CPE each year 39 39 39

40 Chapter 3 – General Standards: Competence
CPE requirements for external specialists: External specialists are not required to meet GAGAS CPE requirements, but should be qualified and maintain professional competence 40

41 Chapter 3 – General Standards: Competence
CPE requirements for internal specialists: Internal specialists serving as auditors are subject to all CPE requirements Specialized CPE count towards the required 24 hours Internal consulting specialists are not required to meet GAGAS CPE requirements, but should be qualified and maintain professional competence 41

42 Chapter 3: General Standards— Quality Control and Assurance
Each audit organization performing audits or attestation engagements in accordance with GAGAS must: establish a system of quality control that is designed to provide the audit organization with reasonable assurance that the organization and its personnel comply with professional standards and applicable legal and regulatory requirements, and have an external peer review at least once every 3 years.

43 Chapter 3: General Standards— System of Quality Control
Each audit organization must document its quality control policies and procedures and communicate those policies and procedures to its personnel. Added a requirement that the quality control policies and procedures collectively address: Leadership responsibilities for quality within the audit organization Independence, legal, and ethical requirements Initiation, acceptance, and continuance of audit and attestation engagements Human resources Audit and attestation engagement performance, documentation, and reporting Monitoring of quality

44 Chapter 3: General Standards— External Peer Reviews (continued)
Transparency of peer review Audit organization should make the most recent peer review report publicly available Audit organizations seeking to enter into a contract to perform an audit in accordance with GAGAS should provide a a copy of the most recent peer review report and any subsequent peer review reports received during the period of the contract Auditors who are using another audit organization’s’work should request a copy of the audit organization’s latest peer review report. 44

45 Chapter 3: Changes to Quality Control Monitoring Procedures
Audit organizations should analyze and summarize, in writing, the results of monitoring procedures at least annually: Include identification of any systemic issues needing improvement Include recommendations for corrective action Communicate deficiencies noted to appropriate personnel and make recommendations for remedial action

46 Chapter 3: Changes Related to Peer Reviews
The peer review team uses professional judgment in deciding the type of peer review report. The following are the types of peer review reports: Peer review rating of pass Peer review rating of pass with deficiencies Peer review rating of fail 46 46

47 Chapter 4: Financial Audits- Overall Changes
Considered Clarity Project conventions Streamlined language to harmonize with AICPA Clarified additive requirements Combined 2007 GAGAS chapters 4 and 5 into one chapter (2011 GAGAS chapter 4) No new requirements were added for financial audits and attestation engagements 47 47

48 Special Considerations for Government Engagements
Applying certain AICPA standards Materiality Early communication of deficiencies (SAS No. 115) Highlighted considerations for applying certain AICPA standards in a GAGAS financial audit Materiality Auditors may find it appropriate to use a lower materiality level in a governmental environment Early communication of control deficiencies in a GAGAS financial audit For some matters, early communication is important because of significance and the urgency of corrective action May communicate orally to management, and when appropriate those charged with governance, so timely remedial action can be taken to minimize risk of material misstatement 48 48

49 Describe the purpose of the communication, and
Financial Audits: SAS 125 Alert That Restricts the Use of the Auditor’s Written Communication SAS 125 makes a special provision for the GAGAS report on internal control over financial reporting and compliance. Don’t use the communication required for other audits. Instead, the alert should: Describe the purpose of the communication, and State that the communication is not suitable for any other purpose. 49

50 SAS 125: Sample Language for GAGAS Report on ICFR and Compliance
“The purpose of this report is solely to describe the scope of our testing of internal control over financial reporting and compliance, and the results of that testing, and not to provide an opinion on the effectiveness of the entity’s internal control over financial reporting or on compliance. This report is an integral part of an audit performed in accordance with Government Auditing Standards in considering the entity’s internal control over financial reporting and compliance. Accordingly, this report is not suitable for any other purpose.” 50

51 Chapter 5 - Attestation Engagements
Separated attest requirements Examination Review Agreed-Upon Procedures Update considerations Identified practice issue Clarified distinctions between engagement types Emphasized AICPA reporting requirements The additional requirements for government auditing relate to: a. auditor communication; b. previous audits and attestation engagements c. fraud, illegal acts, violations of provisions of contracts or grant agreements, or abuse that could have a material effect on the subject matter or an assertion about the subject matter d. developing elements of a finding; and e. attest documentation.[1] [1] See paragraphs 5.06 through 5.23 for additional discussion of 5.05 a-e.

52 Chapter 5 - Attestation Engagements
Within each section, emphasized Citing compliance with GAGAS Required elements of AICPA reporting Communicating the services to be performed The additional requirements for government auditing relate to: a. auditor communication; b. previous audits and attestation engagements c. fraud, illegal acts, violations of provisions of contracts or grant agreements, or abuse that could have a material effect on the subject matter or an assertion about the subject matter d. developing elements of a finding; and e. attest documentation.[1] [1] See paragraphs 5.06 through 5.23 for additional discussion of 5.05 a-e. 52 52

53 Chapter 6: Field Work Standards for Performance Audits
Guidance for conducting performance audits, including Planning the audit Supervising staff Obtaining sufficient, appropriate evidence Preparing audit documentation

54 Chapter 6: Performance Audits— Overall Framework for Performance Audits
Level of assurance associated with a performance audit Provide reasonable assurance that the evidence is sufficient and appropriate to support the auditors’ findings and conclusions Concept of significance Defined as the relative importance of a matter within the context in which it is being considered, including quantitative and qualitative factors Audit risk Defined as the possibility that the auditor’s findings, conclusions, recommendations, or assurance may be improper or incomplete

55 Chapter 6: Performance Audits— Planning
Auditors must adequately plan and document the planning of the work necessary to address the audit objectives Auditors should assess audit risk and significance by gaining an understanding of: Nature and profile of the program and user needs Internal control Information systems controls Legal and regulatory requirements, contract provisions or grant agreements, fraud, or abuse Previous audits Auditors should prepare a written audit plan Auditors must plan the audit to reduce audit risk to an appropriate level for the auditors to provide reasonable assurance that the evidence is sufficient and appropriate to support the auditors’ findings and conclusions

56 Chapters 6 & 7 Performance Audits
Audit risk Auditors must plan the audit to reduce audit risk to an appropriate level for the auditors to provide reasonable assurance that the evidence is sufficient and appropriate to support the auditors’ findings and conclusions

57 Chapters 6 & 7 Performance Audits
Information systems controls for the purpose of assessing audit risk and planning the audit Consist of those internal controls that are dependent on information systems processing Include general controls and application controls Are significant to the audit objectives if auditors determine that it is necessary to evaluate the effectiveness of information system controls in order to obtain sufficient, appropriate evidence If significant, auditors should evaluate the design and operating effectiveness of such controls by performing audit procedures

58 Chapters 6 & 7 Performance Audits
Legal and Regulatory Requirements, Provisions of Contracts or Grant Agreements Auditors should determine which laws, regulations, and provisions of contracts or grant agreements are significant within the context of the audit objectives and assess the risk that violations of those laws, regulations, and provisions of contracts or grant agreements could occur Auditors should design and perform procedures to provide reasonable assurance of detecting instances of violations of legal and regulatory requirements or violations of provisions of contracts or grant agreements that are significant within the context of the audit objectives

59 Chapters 6 & 7 Performance Audits
Fraud In planning the audit, auditors should assess risks of fraud occurring that is significant within the context of the audit objectives Auditors should Discuss fraud risks among the audit team Gather and assess information to identify risk of fraud that are significant within the scope of the audit objectives or that could affect the findings and conclusions When auditors identify factors or risks related to fraud that has occurred or is likely to have occurred that are significant within the context of the audit objectives, they should design procedures to provide reasonable assurance of detecting such fraud

60 Chapters 6 & 7 Performance Audits
Abuse If auditors become aware of indications of abuse that could be quantitatively or qualitatively significant to the program under audit, auditors should apply audit procedures specifically directed to ascertain The potential effect on the program under audit within the context of the audit objectives However, because the determination of abuse is subjective, auditors are not required to provide reasonable assurance of detecting abuse After performing additional work, auditors may discover that the abuse represents potential fraud or illegal acts

61 Chapter 6: Performance Audits— Sufficient, Appropriate Evidence
Appropriateness is defined as a measure of quality of evidence that encompasses the relevance, validity, and reliability of evidence used for addressing the audit objectives and supporting findings and conclusions. Sufficiency is defined as a measure of quantity of evidence used for addressing the audit objectives and supporting findings and conclusions.

62 Performance Audits Technical Changes
The definition of validity as an aspect of the quality of evidence has been revised: the extent to which evidence is a meaningful or reasonable basis for measuring what is being evaluated. In other words, validity refers to the extent to which evidence represents what it is purported to represent. (6.60b) The assessment the sufficiency and appropriateness of computer-processed information includes considerations regarding the completeness and accuracy of the data for the intended purposes. (6.66) (For additional guidance, see GAO publication, Assessing the Reliability of Computer-Processed Data) Old definition of validity: the extent to which evidence is based on sound reasoning or accurate information

63 Chapter 6: Performance Audits— Overall Assessment
Overall assessment of the collective evidence to support the findings and conclusions Assessment of evidence depends on the nature of the evidence, how it is used, and the audit objectives Evidence is sufficient and appropriate when it provides a reasonable basis for supporting the findings or conclusions within the context of the audit objectives

64 Chapter 6: Performance Audits— Documentation
Auditors must prepare audit documentation related to planning, conducting, and reporting for each audit. Auditors should document the following: the objectives, scope, and methodology of the audit the work performed to support significant judgments and conclusions evidence of supervisory review, before the audit report is issued, of the work performed that supports findings, conclusions, and recommendations contained in the audit report

65 Chapter 7: Performance Audits— Reporting
Guidance for reporting on performance audits, including Reporting Form Report Contents Distributing Reports

66 Chapter 7: Performance Audits— Report Contents
Auditors should prepare audit reports that contain Objectives, scope, and methodology of the audit Audit results, including findings, conclusions, and recommendations, as appropriate Statement about the auditors’ compliance with GAGAS Summary of the views of responsible officials Nature of any confidential or sensitive information omitted

67 Performance Audits Technical Changes
The fraud reporting requirement is now limited to occurrences that are significant within the context of the audit objectives (7.21), with a requirement to communicate in writing other instances of fraud that warrant the attention of those charged with governance. (7.22) Early communication of deficiencies has been added as a consideration auditors may follow in the course of the performance audit. (6.78) Previous fraud reporting requirement --when auditors conclude, based on sufficient, appropriate evidence, that fraud either has occurred or is likely to have occurred, they should report the matter as a finding. Detection responsibility still the same - must still design the audit to provide reasonable assurance of detecting fraud within the context of the audit objectives.

68 Chapter 7: Performance Audits— Citing Compliance in the Audit Report
GAGAS statement in audit report When auditors comply with all applicable GAGAS requirements, they should use the following language in the report: “We conducted this performance audit in accordance with generally accepted government auditing standards. Those standards require that we plan and perform the audit to obtain sufficient, appropriate evidence to provide a reasonable basis for our findings and conclusions based on our audit objectives. We believe that the evidence obtained provides a reasonable basis for our findings and conclusions based on our audit objectives.”

69 Appendix: Supplemental Guidance
Added an appendix to provide supplemental guidance to assist auditors in the implementation of GAGAS Does not establish additional GAGAS requirements Overall supplemental guidance includes examples of Deficiencies in internal control Abuse Fraud Risk Overall guidance includes guidance on determining whether laws, regulations, or provisions of contracts are significant

70 Questions?

71 Where to Find the Yellow Book
The Yellow Book is available on GAO’s website at: For technical assistance, contact us at (202) 71

72 Contact Information Marcia Buchanan Assistant Director Financial Management and Assurance U.S. Government Accountability Office


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