Section 2, Chapter 2 - Fund Accounting and Reporting Flashcards
What types of reporting do state and local governments use?
Fund basis
Where can foundational accounting and reporting standards for funds be found?
GASB Codification Section 1300 - Fund Accounting
How is a fund defined?
A fiscal and accounting entity with a self-balancing set of accounts recording cash and other financial resources, together with all related liabilities and residual equities or balances, and changes therein, which are segregated for the purpose of carrying on specific activities or attaining certain activities in accordance with special regulations, restrictions or limitations
What is a fund? What are the intended to do?
- a fiscal and accounting entity
- intended to stand alone
How many funds do governments have?
Several or many
Do fund financial statements provide information about the entire reporting entity?
No
What do the fund self-balancing set of accounts include?
- assets (assets and other resources)
- liabilities
- residual equities
How are funds segregated?
- governments can create as many funds as they need to comply with legal and operational requirements
- Some have five or fewer, larger governments (states) hundreds
- Funds aggregated for external reporting purposes (example: several funds that account for grants may be combined into a single fund for external reporting purposes)
What are funds used for?
Carrying on specific activities, established in law or enabling legislation or attaining certain objectives
How many funds should be established?
Only the minimum number of funds consistent with legal and operating requirements should be established
- It’s common for government to consolidate several funds into a single fund for GAAP reporting purposes (example: a government may consolidate several grant funds into a single federal grant fund)
How are fund special regulations, restrictions, or limitations specified?
- By a constitution or statute (ordinance)
- by the individual or organizational providing the monies or other resources
** they specify/limit the purposes for which the monies can be spent
What are the three fund categories used by state and local governments?
- governmental
- proprietary
- fiduciary
What have governmental funds been traditionally used for?
To account for the general services provided to the public (public safety, health, transportation, social service, recreation, and the administration of the government)
What do governmental funds focus on?
- sources
- uses
- balances of current financial resources
What is an important characteristic of governmental funds?
Lack of match between resources and their uses
What are governmental funds supported through?
Nonexchange revenues (taxes, fines, grants, shared revenues)
What method of accounting is used to account for governmental funds?
Current financial resource model (modified accrual)
What focus of accounting is used for governmental funds?
Sources, uses, and balances of current financial resources
What’s the fund balance for governmental funds?
Assets - liabilities
What’s are proprietary funds?
- business-like activities that charge a fee for goods and services provided
- revenue received is matched to the expenses incurred for each business-like activity
What types of proprietary funds are there?
- Enterprise
- Internal Service
What are enterprise fund? Examples?
Provide goods and services to customers external to the primary government and may charge fees sufficient to cover costs
Example:
- utilities
- transportation
- hospitals
How are the revenues of enterprise funds often augmented?
- operating grants
- capital grants
- contributions
What are internal service funds? Examples?
Provide goods and services to customers internal to the primary government and charges fees intended to cover costs fully
Examples:
- HR
- communication
- printing
- IT
What do proprietary funds focus on for reporting?
- operating income
- Changes in net position
- Cash flows
What measurement resources focus and basis of accounting do proprietary funds use??
- economic resources measurement focus
- accrual basis of accounting
What are fiduciary funds?
Report activities and results of operations in the following funds:
1. Funds with trust agreements, or equivalent arrangements (found in law)
2. Funds without a trust
What are some funds with trust agreements, or equivalent arrangements (found in law)?
- Pension and other employee benefit trust funds (defined benefit pension or other postemployment benefits plans (OPEB)
- Investment trust funds (external investment pool managed by state treasurer)
- private purpose trust funds (internal revenue code section 529 prepaid college tuition fund)
What are some funds without a trust?
Custodial funds (pass-through tax collection funds remitted to other governments)
In order to be a trust (or an equivalent arrangement), the activity must have what elements?
- Contributions from the employer(s) that participate in the trust and non-employers that contribute to the trust and their related earnings are irrevocable
- Assets are dedicated to providing benefits in accordance with the terms of the trust.
- Assets are legally protected from creditors of the employers, the non-employer contributing entities, beneficiaries and the administrator
What are some examples of non-employers?
- Larger government, such as state, contributing funds to subsidize other employers
Example: estate may contribute 35% toward teachers pensions. In certain circumstances, an employer may also contribute amounts to the employee/participant may be required to contribute.
What does irrevocable mean?
Once funds are put in the trust, they can only be used for the terms and conditions of the trust
What is the exclusive benefit rule?
- pensions and OPEB rule where are assets are dedicated to providing benefits in accordance with the terms of the trust
- administrative costs are permitted to be paid from the trust without violating the trust terms
What is the objective of fiduciary funds?
To demonstrate the government’s accountability over the assets that are controlled by the government
What measurement focus and basis of accounting is used for fiduciary funds?
- economic resources
- accrual basis of accounting
Is fiduciary fund activities reports on government-wide level?
No
When is fiduciary activity that is not a component unit presented?
If the government controls the assets of the arrangement and any of the following:
1. A pension plan that is administered through a trust
2. An OPEB plan administer through a trust
3. A circumstance which assets from entities are not part of the reporting entity are accumulated for pensions or OPEB (ex: multiple gov may cooperate and contribute to a trust controlled by a different gov)
If the activity is not a pension or OPEB plan, or where assets are accumulated for pensions or OPEB as described, the activity is a fiduciary activity if all of what criteria is met?
- The assets associated with the activity are controlled by the gov
- The assets associated with the activity are not derived solely from gov-owned source resources or from gov-voluntary or mandated non exchange transactions except for pass through grants that the gov fording have admin or direct financial involvement
- Asset
The government controls assets of an activity if the government what?
- Holds the assets
- Can direct the use, exchange, or employment of the assets in a manner that provides benefits to the specified or intended recipients. Restrictions from legal or other external constraints that stipulate the assets can only be used for a specific purpose do not negate control
What are own-source revenues?
Revenues generated by the government itself like water and sewer charges, investment warnings, sales and income taxes, property taxes and other inflows
What are the types of governmental funds?
- General fund
- Special revenue funds
- Capital project funds
- Debt service funds
- Permanent funds
What is the general fund used for?
To account for and report all financial resources, except those required to be accounted for in another fund
What is a special revenue fund used for?
To account for and report the proceeds of specific revenue sources that are restricted or committed to expenditures for specified purposes other than debt service or capital projects
What is the capital project funds used for?
To account for and report financial resources that are restricted, committed or assigned to expenditure for major capital outlays by general government, including the acquisition or construction of capital facilities and other capital assets
What are debt service funds used for?
- To account for and report financial resources that are restricted, committed, or assigned to expenditures for principle and interest.
- should be used to report resources if legally mandated to do so.
- to account for financial resources that are being accumulated for principal and interest maturing in future years
Where are fund not authorized by a government to be reported?
The general fund, not the debt service
What are permanent funds used for?
To account for and report resources that are legally restricted to the extent that only earnings, and not the principle, maybe used for purposes that support the government programs
Likely budgeted endowment
How many general funds can the reporting entity have?
Only one general fund
How many funds (other than governmental funds) should a government create for internal and external reporting purposes?
Internal: additional
External: The minimum needed to satisfy legal specifications and operational requirements
The government may consolidate several grant funds for external reporting but maintain individual funds for budgeting and internal management purposes
What is the most important governmental fund?
The general fund
What should the general fund be used to report?
All flows and balances of current financial resources except those required to be reported in another fund
What is the default fund if resources do not belong in any specific funds?
The general fund because it’s the primary fund of the government
What are the three criteria that provide the basis for using funds other than the general fund?
- GAAP requirements
- Legal requirements
- Demand of sound financial administration
What type of services of the government should be accounted for in the general fund?
- most administrative services including the executive, legislative, and judicial branches because they provide supervision to all other activities conducted by the governmental entity
- services include Human Resources, financial administration and facilities management, and other overhead costs that contribute to the delivery of goods and services by all other components (some govs may use internal service fund)
What are the public services often accounted for in the general fund?
- police and fire protection
- social services
- community development and recreation
- economic development
- planning and zoning
- sanitation and solid waste collection ( governments that collect a fee use enterprise fund)
- street maintenance
What affects the fiscal management of the general fund?
The character and extent of services provided will be different for each governmental entity which will affect financial management
What are the revenues and expenditures reported in the general fund?
- property taxes, sales taxes, and income taxes are the most common revenue source used to finance government activities
- permit and license fees may also be significant resources
- other major resources: intergovernmental grants and shared revenues
- fines, forfeitures, and investment earnings
What form can the general fund make advances to other funds or make permanent transfers?
Subsidies
What are special revenue funds used for?
To account and report for the proceeds of specific revenue sources (other than most capital projects) that are restricted or committed to expenditure for specified purposes
What does the term “proceeds of specific revenue sources” establish?
- That one or more specific restricted or committed revenue(s) should be the foundation for a special revenue fund
Can funds restricted or committed be received in another fund and transferred to the special revenue fund?
Yes
How are funds restricted or committed that are received in another fund and transferred to the special revenue fund recognized?
Not recognized as revenue in the fund initially receiving them; however, those inflows should be recognized as revenue in the special revenue fund from which they will be expended, in accordance with specified purposes
What is expected of restricted or committed proceeds of specific revenue sources?
They’re expected to comprise a substantial portion of the inflows reported in the fund
What other resources can be submitted in the special revenue fund?
If the resources are restricted, committed, or assigned to the specific purposes of the fund
When should governments discontinue report a special revenue fund and instead report the funds remaining resources in the general fund?
If the government no longer expects that a substantial portion of the inflows will derive from restricted or committed, revenue sources
For special revenue funds, what should be disclosed in the notes?
The purpose for each major special revenue fund, identifying which revenue and other resources are reported in each of those funds
How should the general fund of the component unit be reported when a component units general fund is blended with the primary government?
It should be reported as a special revenue fund, and not blended with the general fund of the primary government
What is the most compelling criteria for using special revenue funds?
They need to segregate revenues, and balances outside the general fund
Although these restrictions can be accomplished, using an efficient chart account, there are other administrative reasons to report separate funds
What are some other resources special revenue funds can account for?
- Federal and state grants
- special assessments
- Component units
- Related not for profit organizations
- Special purpose authorities
Who can resources in special revenue funds, be restricted by?
- governments legislative authority
- A third-party, such as a grantor or state statute
What is a frequent use of special revenue funds?
To account for federal financial assistant programs
What can special revenue fund revenues include?
- tax assessments
- Earmarked resources and taxes
- intergovernmental revenues
- License and permit fees
- Charges for services
What are some special revenue fund expenditures?
Expenditures, reflect the nature of the program for which the resources have been restricted, including:
- Personnel
- Operating
- capital outlay
- Debt service
What are capital project funds used to account for?
To account and report for financial resources that are restricted, committed, or assigned to expenditure for major facilities and further capital assets, other than those finance by proprietary and trust funds
What does the use of capital project funds provide for? What are some of its proceeds?
The efficient management of resources for multi year projects. For example, the construction of a government office complex, or a recreation center complex financed with a general obligation bonds.
Proceeds include:
- proceeds from issuing bonds
- intergovernmental revenues
- interest income
- earmarked taxes
- transfers from other funds
How are proceeds from the issuance of bonds reported on the fund operating statement? (Capital projects fund)
As other financing sources
How is the face value of the bond issue reported on the operating statement? (Capital projects fund)
As other financing sources
How are bond premiums or discounts reported? (Capital projects fund)
They reported separately from bond proceeds
How are the cost issue bonds reported? (Capital projects fund)
They reported separately from the proceeds of the issuance of bonds
Where are the acquisition of general capital assets reported, and how are they reported?
- reported on the operating statement of the fund making the acquisition
- Reported as capital outlays
- They are not reported as assets of the capital projects fund, although they are reported as assets of governmental activities on the government wide statement of net position
What is the debt service fund used to account for?
- To account and report financial resources that are restricted, committed, or assigned to expenditures for principal and interest
- Financial resources that are being accumulated for principal and interest maturing in future years
Historically, what have debt service fund been used for primarily?
To report more complex bond issues that are governed by detailed bond indentures
These indentures usually mandate the accumulation of reserves for debt service to protect bondholders and set aside cash for debt retirement
Where can revenue in the debt service funds come from?
- Earmarked taxes
- Grants
- Investment earnings on balances
- resources are often transferred from other funds such as the general fund
What are some expenditures of the debt service fund?
- Debt service principal and interest
- other related servicing fees
How does the modified accrual basis of accounting recognize, as expenditures, the portion of debt service principal and interest?
It only recognizes the principal and interest that is due and payable even if it is unable to make payment (an associated liability for will be recorded for the amount not paid)
This represents one of the modifications to the accrual basis of accounting for state and local governments
Where are revenues and other financing sources for debt service that exceeded the debt service payment recorded? Where are these recorded on the government wide level?
They remain in the debt service fund as a fund balance
Most fund balance of debt service funds are reported as restricted net position at gov wide level
What fund accounts for term bonds?
The debt service fund
What is a term bond?
Bonds that are not require payment of principal until the completion of the term
Example: if a 20-year term bond is issued, the government is only required to pay interest in years 1-19. In year 20, both interest and principal are due.
What is a sinking fund?
- type of debt service fund facilitating the retirement of the long-term debt
When and where are sinking fund payments made?
- result in the accumulation of resources for the period that the financial resources are set aside, rather than when the liabilities are incurred, or payments are due
What is a serial bond?
- bonds that pay principal and interest annually
- the same amount of interest is paid a year so the annual debt service payment declines over life of issue since interest cost is based on outstanding principal
Ex: $1M paid of 20 years. $50k principal retired each year. 1st year interest on $1M, 2nd year interest $950k
What fund can governments use to make principal and interest payments of capital projects financed through special assessments? Where is the asset reported?
- debt service fund
- debt service payments are accounted for in the custodial fund instead if debt service fund if gov is not obligated in any manner
- construction outflows are presented as capital improvements in a capital projects fund or other as appropriate (contributions from property owners)
- capital assets presented in government-wide statements like any capital asset
What is debt refunding? Where is it reported?
- government issues new debt that carries a lower interest rate than older issue (home refinancing)
- A transaction that would be reported in a debt service fund
Where are debt refunding proceeds recorded?
Another financing source on the operating statement
For debt refunding, where are payments to retire old debt recorded?
Another financing use on operating statement under “payments to refunded bond escrow agent”
What is advanced refunding?
The government issues new debt, places the proceeds of the new debt into an escrow account that can invest in special Treasury securities, and uses the return from those securities to pay off the old debt.
Old debt is considered defeased
What did the Tax Cuts and Jobs Act of 2017 do?
Eliminated the tax exempt status of advanced refunding bonds by state and local governments
What are permanent funds used for?
To account for bequests the government receives from individuals stipulating that donated resources are to be invested by the government
Bequests restrict the use of resources so only the earning, not the principal, may be used for activities that benefit the government
What are some examples of bequests?
- higher institutions receive from graduates endowing a chair in some department
- gifts to public libraries that stipulate the earnings can be used to purchase books or other materials
What is the key for establishing a permanent fund compared to a private-purpose trust fund (a type of fiduciary fund)?
The beneficiary
- if the government benefits from the bequest, a permanent fund is used
- if the government is a trustee for the benefit of others, a private-purpose trust fund is used
How should additions to the principal for endowments be reported?
- as a separate line item with other financing sources
- in the government-wide FS, additions should be reported as general revenue
- Not operating revenue by permanent funds
What are the two proprietary funds?
- Enterprise funds
- Internal service funds (ISF)
What are enterprise funds used for?
To report any activity for which a user fee is charged to external users for goods and services
What are internal service funds (ISF) used for?
To account for the financing of goods or services, provided by one department or agency to other departments or agencies of the government unit or other government units on a reimbursement basis if the reporting government is the predominant participant
What determines which proprietary fund type to use?
It depends on the primary customer