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Introduction to International Public Sector Accounting Standards (IPSAS)

SAF

On the Road to Managing for Results

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Table of Contents

I. Drivers for change 3

II. Objectives of the Presentation 11

1. IPSAS Defined 12

2. Viability: Does it work for the OAS 20

3. The Way forward 28

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Drivers for change

An assessment of the internal and external elements which have highlighted the need for change within the OAS and in the wider international context

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Drivers for ChangeBoard of External Auditors

The Board of External Auditors has repeatedly opined that:

OAS’ proprietary accounting standards result in financial reports that do not reflect all of the assets and liabilities of the Organization, and

The GS/OAS [should] adopt an internationally-recognized set of accounting standards, such as IPSAS, and the OAS should engage its external auditors and other experts to advise on the transition to IPSAS.

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1. Standards have fallen out of step with comparable agencies and governmental entities limiting the ability of donors and member states to compare OAS’ results against other institutions.

2. They prevent the GS/OAS from having a complete valuation of the Organization’s assets and liabilities and the cost of operations. This limits effective decision-making and planning and support to a results-based management framework.

Drivers for Change Limitations of OAS’ basis of accounting

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3. Financial statements mostly reflect what is occurring rather than what is expected to occur thereby limiting the measurement of the impact of transactions/decisions.

ExampleOAS only records revenue when cash is received and does not record receivables for agreements that have been signed. Hence potential future cash flows are not captured in reports.

Similarly, termination benefits are recognized at the time an employee separates from service, but the Organization’s commitment to that employee is not recognized over the period of time that the employee earns the benefit.

4. Lack of consistency in accounting treatment across all funds managed by the Organization.

Drivers for Change Limitations of OAS’ basis of accounting (continued…)

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Drivers for Change General Assembly Mandates

AG/RES.1 (XXXVIII-E/09, Section III)

Paragraph 18 a: “…to instruct the General Secretariat to continue studying, the viability of implementing International Public Sector Accounting Standards with a view to adopting them as recommended by the auditors, starting with the fiscal year beginning on January 1, 2011, and in subsequent periods, and to report the General Secretariat’s findings, conclusions, and recommendations to the Permanent Council through the CAAP. …”

Paragraph 19 b: “…the General Secretariat [should] take the necessary measures to ensure that the financial and budgetary reports presented to [CAAP] are consistent with the guidelines provided in International Public Sector Accounting Standards…”

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Worldwide financial crisis underscores the interdependency of economies and financial markets, and highlights the need for a common standard by which entities measure and report what they own and what they owe.

Approximately 113 countries have adopted or are in the process of adopting international standards:

Costa Rica and Uruguay have mandated IPSAS adoption Brazil’s government has announced a plan to adopt IPSAS by 2012 Canada is transitioning to IFRS by 2011, Mexico by 2012 United States has released a roadmap to implementing accrual accounting.

Implementation of IPSAS or International Financial Reporting Standards (IFRS) is already underway in other international organizations and UN system organizations.

World Bank and IMF prepare their financial statements in accordance with IFRS UN will adopt IPSAS in January 2010

Drivers for Change Trends in the Public Sector and International Organizations

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Drivers for Change Benefits to OAS Stakeholders of Adopting IPSAS

1. The use of accrual accounting, standard definitions, measurement criteria and reporting requirements under IPSAS are all geared towards providing more meaningful information for decision-makers.

2. Strategic plans and reports become more meaningful as increased transparency provides a basis for member states to assess whether resources are being used effectively and efficiently.

3. IPSAS supports efficient internal controls and results-based management.

4. Adoption will provide a unified approach to managing all funds (Regular, Specific, Voluntary, Trust and Service funds) and will allow for benchmarking with similar institutions and forecasting future flow of all resources to the Organization.

5. Assets and liabilities that were previously un-quantified or under-reported will now be reflected in the financial statements.

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Drivers for Change Benefits to OAS Stakeholders of Adopting IPSAS

QualityConsistencyComparability

TransparencyAccountability

Results Based ManagementEasy Comparison

Competitive Advantage

IPSAS

Accrual accounting means that the OAS for the first time will recognize past, present and future obligations of Organizational resources. There is nothing new here. These are not new obligations but under OAS- specific accounting rules they remain largely un-quantified; rendering them “invisible” and/or under-reported.

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Objectives of the Presentation

1. IPSAS DefinedInitial Understanding of International Public Sector Accounting Standards (IPSAS).

2. Viability: Does it Work for the OAS?IPSAS Impact on General Secretariat (GS/OAS) operations.

3. The Way Forward

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1. IPSAS Defined

Provides a brief explanation of the International Public Sector Accounting Standards and the expected benefits of complying with them

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IPSAS Defined What Does Accounting Do and Why Does it Matter?

Captures, measures and reports information about the economic events of an entity (i.e., transactions that generate revenue or expense).

Reports are used by stakeholders (member states, donors, management) to evaluate performance and make effective decisions.

In order to maximize the reliability and usefulness of reported financial information, the accounting standards applied should be comprehensive, widely accepted and promote transparency.

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IPSAS Defined Accounting Methods

Accrual accounting is an accounting method that measures the performance and financial position of an organization by recognizing revenue when earned and expense when incurred rather than when cash is received or paid.

Cash-basis accounting is an accounting method in which income is recorded when cash is received, and expenses are recorded when cash is paid out.

OAS uses a hybrid method (“modified-cash”) that combines some elements of cash accounting with some elements of accrual accounting. Revenue is recognized when cash is received and expenses are recognized in full when commitments are entered into.

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IPSAS Defined Why IPSAS?

IPSAS are a set of independently developed, high quality, global accounting standards that require accounting on a “full accruals” basis (i.e., all assets and liabilities are recorded).

IPSAS are issued by the International Public Sector Accounting Standards Board of the International Federation of Accountants (IFAC).

23 OAS Member States are also members of IFAC. Canada, Brazil, Mexico and the US are represented on the IFAC Board.

www.ipsas.org

Canada

Chile

Colombia

Costa Rica

Dominican Republic

Argentina

Bahamas

Barbados

Bolivia

Brazil

Guatemala

Guyana

Haiti

Honduras

Jamaica

Mexico

Nicaragua

Panama

Paraguay

Peru

Trinidad and Tobago

United States

Uruguay

IPSAS are tailored for the public sector and its use is considered best practice for public sector entities (governments, governmental business entities, non-governmental organizations, and international organizations).

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Recording:

Defines what are assets, liabilities, revenues, and expenses and when you should record them.

Measurement/Valuation:

Establishes a standard method for valuing assets, liabilities, revenues and expenses.

Financial Reporting:

Prescribes the format and content of reports including the type of disclosures that should be made in the reports in order to heighten transparency.

IPSAS Defined Broad themes

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IPSAS DefinedFrom Cash Basis Accounting to Accrual Accounting

Moves away from cash accounting which focuses primarily on the receipt and disbursement of cash towards accrual accounting which provides for full costing of an Organization’s activities, regardless of when cash is received or paid out.

Accrual accounting supports efficiency and performance assessment as results are matched to the use of resources.

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IPSAS Defined Modified Cash vs. Accrual Accounting

Modified Cash (current) Y1 Y2 Y3 Y4 Y5 Y6

Obligation/Expense $ 6,000 - - - - -

Accrual Basis (IPSAS) Y1 Y2 Y3 Y4 Y5 Y6

Obligation/Expense $ 1,000 $ 1,000 $ 1,000 $ 1,000 $ 1,000 $ 1,000

At Contractsigning

Period of Performance

Period of Performance

Economic event being recognized is the signing of the contract not the performance.

Costs are matched to the period of the performance.

Expense Recognition: Contracting Services

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Modified Cash (OAS) Y1 Y2 Y3 Y4 Y5 Y6

Employee hired for 6 years - - - - - $ 48,000

Accrual Basis (IPSAS) Y1 Y2 Y3 Y4 Y5 Y6

Employee hired for 6 years $ 8,000 $ 8,000 $ 8,000 $ 8,000 $ 8,000 $ 8,000

Period of Performance

Period of Performance

Cost is recognized upon separation, not as the employee earns the benefit.

Cost is matched to employee services.

Liability Recognition: Employee Termination Benefit

IPSAS Defined Modified Cash vs. Accrual Accounting

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2. Viability: Does it Work for the OAS?

A Gap Analysis between OAS standards and IPSAS and a discussion of the suitability of IPSAS for GS/OAS operations

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NationalGovernments

InternationalStandards

IPSAS: Does it Work for the OAS?

OAS Financial Standards

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GAP AnalysisImpacted elements

Under OAS’ current proprietary basis of accounting, certain economic/financial events are not recognized in a manner consistent with IPSAS.

Employee Benefits(terminations, annual leave)

Expense Recognition(obligations)

Investments(fair value)

FinancialStatements

(cash flow, disclosures, budget reports)

Unexpended Advances

(travel/accountable advances)

Property & Equipment

(capitalization, depreciation)

Revenue (quotas / pledges/

specific fund agreements)

IPSAS

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IPSASWhat Changes?

1. Quotas & Other Income(Regular Fund, FEMCIDI, Specific Funds)

Instead of recording quota/contribution income when cash is received, a receivable is recorded when the commitment becomes binding, regardless of the actual payment date (budget resolution, signed agreements).

2. Staff Benefits(Annual leave, home leave, repatriation)

Accrued benefits will no longer be recognized only when disbursements are made, but will be accrued as the employee earns the benefit.

3. Fixed assets (Buildings, equipment, land)

Purchase amount (including any costs to bring it into operation) are fully expensed under the current system. Under IPSAS this cost will be spread over the asset’s useful life. Assets may be reported at market value.

4. Obligations & Expenses(Contracts)

Currently, commitments to disburse monies in future periods are fully expensed even before services are rendered. IPSAS stipulates that expenses should be recorded when a product or service is delivered.

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IPSASWhat Changes? (continued…)

5. Financial instruments (Investments)

Investments are currently recorded at purchase price, which fails to reflect any possible fluctuations in its market price. Under IPSAS, the fair market value for OAS investments will be adjusted at the end of each reporting period.

6. Unexpended Advances(accountable advances, travel advances)

Instead of immediately expensing cash advances, employee receivables will be recorded. These will be expensed as the underlying good or service is acquired.

7. Financial Statements Financial statements will have enhanced disclosures that heighten transparency and accountability. A Statement of Cash Flows is required and financial statements must be reconciled to budgets.

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For illustrative purposes onlyIPSASWhat Changes?

ASSETS OAS IPSAS

Cash and equity in OAS Treasury Fund $ 13,908 $ 13,908

Quotas/pledges receivable 13,652 13,652

Less: Allowance for quotas/pledges receivable (13,652) -

Other receivables & assets 5,726 5,726

Deferred charges related to future year's appropriations 6,135 -

Investment in fixed assets 55,540 327,288

Total Assets $ 81,309 $ 360,574

LIABILITIES AND NET ASSETS

Unliquidated obligations $ 21,244 $ -

Employee Benefits 6,135 97,360

Other liabilities 1,158 1,158

Mortgage liability 22,730 22,730Total Liabilities 51,267 121,248

Net Assets:

Reserve Subfund 6,149 6,149Restricted for Fellowships 203 203Restricted for Financing 2009 Regular Fund per AG/RES. 1 (XXXVI-E/08) 6,752 6,752Operating subfund surplus (deficit) (15,872) (78,336)

Net Assets (2,768) (65,232)

Restricted for fixed assets 32,810 304,558

Total Liabilities and Fund Balance $ 81,309 $ 360,574

Adjust to market value & recognize unrealized gains and losses

No Outstanding Obligations recognized under IPSAS

Allowance for quotas are credited to quotas revenue

As a result of the fixed assets revaluation income

OAS IPSAS

Investment in fixed assets (Non building) 13,288$ 13,288$

Investment in fixed assets (Building) 42,252 42,252

Fixed Assets revaluation (Building) - 271,748

55,540$ 327,288$

OAS IPSAS

Post retirement plan benefits (health) - 54,600

Post retirement plan benefits (life) 2,600

Estimated retirement plan benefits deficit - 27,000

Annual and special leave - 7,025

Annuities Ex GS and AGS 6,135 6,135

6,135$ 97,360$

ASSETS OAS IPSAS

Cash and equity in OAS Treasury Fund $ 13,908 $ 13,908

Quotas/pledges receivable 13,652 13,652

Less: Allowance for quotas/pledges receivable (13,652) -

Other receivables & assets 5,726 5,726

Deferred charges related to future year's appropriations 6,135 -

Investment in fixed assets 55,540 327,288

Total Assets $ 81,309 $ 360,574

LIABILITIES AND NET ASSETS

Unliquidated obligations $ 21,244 $ -

Employee Benefits 6,135 97,360

Other liabilities 1,158 1,158

Mortgage liability 22,730 22,730Total Liabilities 51,267 121,248

Net Assets:

Reserve Subfund 6,149 6,149Restricted for Fellowships 203 203Restricted for Financing 2009 Regular Fund per AG/RES. 1 (XXXVI-E/08) 6,752 6,752Operating subfund surplus (deficit) (15,872) (78,336)

Net Assets (2,768) (65,232)

Restricted for fixed assets 32,810 304,558

Total Liabilities and Fund Balance $ 81,309 $ 360,574

Adjust to market value & recognize unrealized gains and losses

No Outstanding Obligations recognized under IPSAS

Allowance for quotas are credited to quotas revenue

As a result of the fixed assets revaluation income

OAS IPSAS

Investment in fixed assets (Non building) 13,288$ 13,288$

Investment in fixed assets (Building) 42,252 42,252

Fixed Assets revaluation (Building) - 271,748

55,540$ 327,288$

OAS IPSAS

Post retirement plan benefits (health) - 54,600

Post retirement plan benefits (life) 2,600

Estimated retirement plan benefits deficit - 27,000

Annual and special leave - 7,025

Annuities Ex GS and AGS 6,135 6,135

6,135$ 97,360$

Cash and equity in OAS Treasury Fund

Quotas/pledges receivable 13,652 13,652

Less: Allowance for quotas/pledges receivable (13,652) -

Other receivables & assets 5,726 5,726

Deferred charges related to future year's appropriations 6,135 -

Investment in fixed assets 55,540 327,288

Total Assets $ 81,309 $ 360,574

Unliquidated obligations

6,135 95,087

Other liabilities 1,158 1,158

Total Liabilities 51,267 118,975

Reserve Subfund 6,149 6,149Restricted for Fellowships 203 203Restricted for Financing 2009 Regular Fund per AG/RES. 1 (XXXVI-E/08) 6,752 6,752Operating subfund surplus (deficit) (15,872) (76,063)

Net Assets (2,768) (62,959)

Restricted for fixed assets 32,810 304,558

Total Liabilities and Fund Balance $ 81,309 $ 360,574

(in thousands)As of September 30, 2009

STATEMENT OF ASSETS, LIABILITIES AND FUND BALANCES

Adjust to market value & recognize unrealized gains and losses

No Outstanding Obligations recognized under IPSAS

Allowance for quotas are credited to quotas revenue

As a result of the fixed assets revaluation income

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IPSASWhat Changes?

For illustrative purposes only

REVENUE OAS IPSAS

Quotas/Pledges $ 67,661 $ 78,150

Revaluation and other income 1,868 280,137

69,529 358,287

EXPENSES

Expenditures and obligations: 85,273 164,747

Other Decreases 128 12885,401 164,875

Change during year (15,872) 193,412

Balance at beginning of period 13,104 13,104

Surplus/deficit for the period: $ (2,768) $ 206,516

For the period from January 1 to September 30, 2009STATEMENT OF CHANGES IN FUND BALANCE

(in thousands)

OAS IPSAS

Quotas/Pledges Collections during the period 68,104$ -$

Less prompt payment credits (443) (443)

Quotas/Pledges Assessment for 2009 - 78,593

67,661$ 78,150$

OAS IPSAS

Other income 1,868$ 1,868$

Fixed Assets revaluation (Building) - 271,748

2008 Unliquidated obligations - 3,359

Quotas in arrears DEC-08 - 3,162

1,868$ 280,137$

OAS IPSAS

Quotas/Pledges Collections during the period 68,104$ -$

Less prompt payment credits (443) (443)

Quotas/Pledges Assessment for 2009 - 78,593

67,661$ 78,150$

OAS IPSAS

Other income 1,868$ 1,868$

Fixed Assets revaluation (Building) - 271,748

2008 Unliquidated obligations - 3,359

Quotas in arrears DEC-08 - 3,162

1,868$ 280,137$

OAS IPSAS

Actual expenditures & Obligations BY09 in Oracle 85,273$ 63,588$

Annual and special leave - 7,025

Annuities Ex SG and ASG - 6,135

Estimated retirement plan benefits deficit - 27,000

Post retirement plan benefits (health) - 54,600

Post retirement plan benefits (life) 2,600

Expenditures from other periods - 3,799

85,273$ 164,747$

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Cash and equity in OAS Treasury FundQuotas/pledges receivable 13,652Other receivables & assets 5,726Total current assets 33,286

Furniture, fixtures and equipment 13,288Land and Buildings 314,000Total non-current assets 327,288

Accounts payable and deferred income 1,158Mortgage liability (short term) 440Total current liabilities 1,598

97,360Mortgage liability (long term) 22,290Total non-current liabilities 119,650

Reserve Subfund 6,149Restricted for Fellowships 203

6,752Restricted for fixed assets 32,810Net surplus for the period 193,412

(in thousands)As of September 30, 2009

STATUS OF FINANCIAL POSITION

OPERATING REVENUES

Quotas/Pledges $ 78,150

Revaluation of fixed assets 271,748 Other income and prior year adjustments 8,389 Total operating revenues 358,287

OPERATING EXPENSES

Expenditures 164,747Other 128Total operating expenses 164,875

SURPLUS FOR THE PERIOD $ 193,412

STATEMENT OF FINANCIAL PERFORMANCE

(in thousands)For the period from January 1 to September 30, 2009

ASSETSCurrent assetsCash and equity in OAS Treasury Fund $ 13,908Quotas/pledges receivable 13,652Other receivables & assets 5,726Total current assets 33,286

Non-current assetsFurniture, fixtures and equipment 13,288Land and Buildings 314,000Total non-current assets 327,288Total Assets $ 360,574

LIABILITIESCurrent liabilitiesAccounts payable and deferred income 1,158Mortgage liability (short term) 440Total current liabilities 1,598

Non-current liabilitiesEmployee Benefits 97,360Mortgage liability (long term) 22,290Total non-current liabilities 119,650Total Liabilities $ 121,248

NET ASSETS 239,326

Reserve Subfund 6,149Restricted for Fellowships 203Restricted for Financing 2009 Regular Fund per AG/RES. 1 (XXXVI-E/08) 6,752Restricted for fixed assets 32,810Net surplus for the period 193,412TOTAL NET ASSETS $ 239,326

IPSASFinancial Statement Format under IPSAS

For illustrative purposes only

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3. The Way forward

Describes the progress achieved to date as the foundation of this larger modernization effort and in particular the Organization’s transition to IPSAS

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Progress report Actions taken at OAS

1. Project Planning Developed project plan for IPSAS Implementation.

2. Analysis • IPSAS GAP Analysis: Public accounting firm performed a detailed comparison of OAS Standards vs. IPSAS Standards (2007).

• Began quantifying existing employee liabilities as part of the standardization of human resource hiring and contracting mechanisms.

3. Technical Capacity • Joined the UN IPSAS Task Force in order to keep abreast of developments, share knowledge and develop solutions.

• Initial training efforts: Joint orientation session with PAHO on IPSAS adoption, IPSAS Technical Update Seminars, Training and Certification programs for financial managers (CGFM).

4. Implementation • Documented existing business processes and assessed changes required in order to transition to accrual-based accounting.

• Standardized project costing and budget formats.

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Next Steps

SAF and GS/OAS’ External Auditors work to quantify financial implications of IPSAS adoption.

Recent appraisals value OAS properties at $343 million. Unrecorded liabilities (annual leave, post-employment health benefits, etc.) approximate $100 million.

Perform assessment of changes required to existing ERP to support IPSAS based financial statements.

2009 Annual Report will include certain IPSAS required reporting formats and disclosures.

Second progress report to CAAP by March 2010.

Obtain Governing Bodies approval to adopt standards by June 2010.

Recommend and adopt changes to the General Standards by June 2011.

Commence accounting and reporting under IPSAS Standards in Jan 2012.