CSMFO2012 Annual Conference

Implementing GASB 54 (Fund Balance Reporting)

Presentation byGregory S. Allison, CPA

UNC School of Government

Why Change?

• Traditional focus of fund balance components on resources available for appropriation

• New focus on two objectives– Indication of constraints of how resources can be

spent– Identification of the sources of those constraints

Components of Fund Balance

• Nonspendable

• Restricted

• Committed

• Assigned

• Unassigned

Nonspendable Fund Balance

• Portion of fund balance/net resources not in spendable form or nonspendable for foreseeable future– Inventories– Prepayments– Long-term receivables

• Portion of fund balance/net resources required to remain intact– Permanent fund principle

Restricted Fund Balance

• Resources in a governmental fund subject to externally enforceable constraints on spending– Debt covenants– Grantors– Contributors– Enabling legislation (e.g., taxes raised for a

particular purpose)

Committed Fund Balance

• Formal legal constraints placed by the governing board– Formal action necessary to create OR rescind

• Constraints have to be in place no later than the end of the fiscal period

• Similar to a high level designation• Ability to rescind differentiates committed

from restricted net assets

Assigned Fund Balance

• Reflects a government’s intended use of resources (i.e., earmarking – neither restricted or committed)– Assignments may occur anytime before the issuance of

financial statements• Assignment ability may be delegated by the board

(commitments may not be)– Less formal

• Default category for governmental funds except general fund (unless those amounts are negative)

Unassigned Fund Balance

• Residual category for general fund • Reflects deficit fund balance for other

governmental funds• Impossible to report positive assigned fund

balance and negative unassigned fund balance– Assigned amount has to be eliminated before

negative unassigned may be reported

Why do we need fund balance?

• Volatility of revenues, expenditures, and the economic environment in general

• Exposure to significant one-time outlays (e.g., disasters, capital needs, budget cuts)

• Need for general fund to provide availability to other funds (or vice versa)

• Liquidity needs• Commitment/assignment policies

Fund Balance Policy Sources

• GFOA Best Practices

• Local policies

• Local laws/ordinances

• State laws/ordinances

GFOA Best Practices

• Appropriate Level of Unrestricted Fund Balance in the General Fund– Adopted 2002, updated 2009– Recommends adoption of formal policy– Committee, assigned, and unassigned categories

represent unrestricted fund balance– Focus of most policies will be the general fund– Recommends a minimum of no less than 2 months

revenues or expenditures, regardless of size (~ 16%)

GFOA Best Practices (cont.)

• Appropriate Level...(cont.)– Choice of revenue vs. expenditure should be

based on most reliable/predictable measure– Laws or policies may actually dictate higher

amounts– Some policies may focus on unassigned, rather

than including commitments and/or assignments– Recognize the difference between GAAP and

budgetary fund balance

GFOA Best Practices (cont.)

• Replenishing Fund Balance in the General Fund– Adopted 2011– Reiterates the two-month recommendation of

unrestricted fund balance– Addresses how to replenish fund balance when

minimum amounts are breached– Recommends governments adopt formal fund

balance policy

GFOA Best Practices (cont.)

• Replenishing...(cont.)– Identify purposes for which portions of fund

balance are intended (e.g., working capital, stabilization, unexpected events)

– Potentially identify sources of replenishment (e.g., non-recurring revenues, surpluses, excess resources in other funds)

– Policy should reiterate that fund balance replenishment a priority when conditions allow (generally within one to three years)

GFOA Best Practices (cont.)

• Replenishing...(cont.)– Factors that influence rate and time periods of

replenishment• Budgetary reasons/volatility of revenues• Recovery from an extreme event• Political continuity• Financial planning horizons• Long-term forecasts and economic conditions• Milestones for replenishment• External financing expectations

Common Elements of a Fund Balance Policy

• Policy purpose– General purpose– Applicability to funds

• Definitions and classifications– Governmental fund structure (if policy extends

past the general fund)– Fund balance components• Restricted vs. unrestricted

• Specific policy

Fund Balance Policy Guidance

• New questions in 2011/12 Comprehensive Implementation Guide– Z.54.23 (stabilization versus minimum fund

balance)– Z.54.24 (levels of specificity required)– Z.54.25 (laws dictating minimum fund balance)– Z.54.29 (disclosure details related to minimum

fund balance being violated)

Stabilization Funds

• Represents formal arrangements “setting aside” funds for budget/revenue stabilization, working capital, contingencies, emergencies, etc.– May be restricted or committed– Funds can only be accessed under specified

circumstances that are not considered routine– Minimum fund balance policies generally do not

qualify

Selected Fund Balance Disclosures

• Committed and assigned policies and procedures– Identify highest level of authority– Formal actions to commit– Policies that relate to assignment authority

• Stabilization arrangements• Minimum fund balance policies– Only where governing bodies have formally adopted

a policy (i.e., not if it is imposed upon the government)

Disclosures (cont.)

• Order in which government considers restricted versus unrestricted amounts to be spent when both are available

• Order in which committed, assigned, or unassigned amounts are considered to be spent

• Any aggregate displays on B/S should be disaggregated in sufficient detail in notes

What about....???

• Encumbrances– No longer separately identifiable on the face of

the financial statements– Still considered a component of either

restricted, committed, or assigned• Restricted and committed amounts indirectly

included in the calculations of the respective resources

What about...???(cont.)

• Appropriation for subsequent year’s projected budget shortfall– Currently reflected as designated fund balance– Now will be reflected as an assignment• Formal action to create but no formal action to not use• Limited to the projected deficit

What about...???(cont.)

• Stabilization amounts– Formal establishment of “rainy day” or

“contingency” funds to only be used in specified circumstances

– Categorized as restricted or committed • Circumstances are specific and non-routine (e.g.,

“emergencies” would not qualify)• Unassigned if not restricted or committed

Display Guidelines

• Nonspendable can be displayed in the aggregate or by the two categories– Nonspendable in form– Required to remain intact

• Restricted can be broken down by “major” restrictions or in the aggregate

• Committed and assigned may be reported by “major” limitations or in the aggregate

Sample Balance Sheet Classifications

Nonspendable (any governmental funds)Restricted for (any governmental funds)Committed to (any governmental funds)Assigned to (any governmental funds)Unassigned (General Fund only, used for

negative residuals of other governmental funds)