Government Finance Statistics IMF Statistics Department
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Transcript of Government Finance Statistics IMF Statistics Department
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The GFSM 2001 SystemThe GFSM 2001 System
– – An OverviewAn Overview
Rif BasantiRif BasantiDeputy Chief of Government Finance Division
Statistics Department, IMF
Government Finance StatisticsGovernment Finance StatisticsIMF Statistics DepartmentIMF Statistics Department
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ContentsContents
Why revise the GFSM 1986?
Objectives of the GFSM 2001
The GFSM 2001 system• Coverage
• Definitions
• Accounting rules
• Analytic framework
• Statements
• Balances
• Implementation
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Why a revision of the GFS Manual 1986?Why a revision of the GFS Manual 1986?1/31/3
Conceptual framework is ± 20 years old
Cash-based recording, thus ignored inter alia:• arrears
• interest on discounted bonds
• in kind transactions
• consumption of fixed capital
Emphasis was on a single deficit measure• revenue plus grants minus expenditure minus net
lending = deficit/surplus
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Why a revision of the GFS Manual 1986?Why a revision of the GFS Manual 1986?2/32/3
Financing was defined as:• Government liabilities (“net borrowing”) and
changes in cash & deposits (financial asset)
Focus of cash-based system was on govt’s financing constraint• Liquidity constraint viewed as most binding
priority of govt.
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Why a revision of the GFS Manual 1986?Why a revision of the GFS Manual 1986?3/33/3
Recently new topics have assumed importance for fiscal analysis, e.g.,• arrears, transactions in kind, balance sheet items
(stocks, net worth), sustainability of fiscal policy
• world-wide shift toward resource-based accounting, because of dissatisfaction with cash-based accounting
Other related statistics Manuals have been revised, e.g., SNA, BOP
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Objectives of the GFS Manual 2001 Objectives of the GFS Manual 2001 1/31/3
To achieve analytic objectives, the new GFS system should generate data that:
• are directly linked to other macroeconomic statistical systems; harmonized as fully as possible with the 1993 SNA
• enable analysts to do assessments of financial soundness of government in ways applied to other organizations in economy
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Non-financial
assets
Financialassets
Liab
NFA
FA
LiabLiabLiab
FA FA
NFA NFA
Expense
Revenue
Opening balance
Transactions
Other economic
flowsClosing balance
Revenue
Expend-iture
FA
Liab Liab Liabilities
Opening liabilities
Closing liabilities
Transactions
GFSM 2001:GFSM 1986:
Government Finance Statistics systems2/3
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GFSM 2001GFSM 2001 analytical framework analytical framework3/33/3
Expense
Revenue
Statement of Government Operations
Change in net worth Tr
=
=
+
-
-
Liabilities
Financialassets
Non-financial
assets
Change in net worth OEF
Statement of Other Economic
Flows
=
+
-
Net worth
ClosingBalance Sheet
Liabilities
Net worth
OpeningBalance Sheet
=
+ +
- -
=
Stocks Transactions
Net lending/borrowing
+
=
Net finanicalworth
=
Net financial worth
Change in net f.worth OEF
Other flows Stocks
Financialassets
Financialassets
Liabilities Liabilities
Financialassets
Non-financial
assets
Non-financial
assets
Non-financial
assets
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Coverage of the GFSM 2001 SystemCoverage of the GFSM 2001 System
General government
Public non-financial corporations
Public financial corporations
– Nonmonetary– Monetary
(incl. the central bank)
Non-financialpublic sector
Non-monetarypublic sector Public
sector
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The GFSM 2001 SystemThe GFSM 2001 System(1/3)(1/3)
Measures of revenue and expense• revenue
– transactions that increase net worth• exclude sales of assets (which are exchanges of one
asset for another)
• expense– transactions that reduce net worth
• exclude acquisition of assets
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The GFSM 2001 SystemThe GFSM 2001 System(2/3)(2/3)
Transactions in nonfinancial assets
• net acquisition of nonfinancial assets– acquisition
– disposal
• consumption of fixed capital
Financing (transactions in financial assets and liabilities)
• identify financial assets and liabilities separately (by residency, instrument, sector)
– net acquisition of financial assets– net incurrence of liabilities
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The GFSM 2001 SystemThe GFSM 2001 System(3/3)(3/3)
Integrated system• Full integration of flows and stocks (operating
statements and balance sheets)
• Basic principle of GFSM 2001 system:
opening balance sheet value
+ transactions
+ other economic flows
= closing balance sheet value
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OPENINGBALANCE
SHEET
Nonfinancial Assets
Financial Assets
Liabilities
Net WorthChanges in Net
Worth
F L O W S
CLOSINGBALANCE
SHEET
Net Worth
Nonfinancial Assets
Financial Assets
Liabilities
TRANSACTIONS
Revenue
Expense
= NET OPERATING BALANCE
minus
Nonfinancial Assets
= NET LENDING/ BORROWING
minus
Liabilities
FinancialAssets
• cash• other financial assets
minus
OTHER ECONOMIC FLOWS
Holding Gains & Losses
Other Changes inthe Volume of Assets
Nonfinancial Assets
Financial Assets
Liabilities
Nonfinancial Assets
Financial Assets
Liabilities
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Accounting RulesAccounting Rules(1/3)(1/3)
Accrual-based recording• when transaction takes place
– income is earned– resources are used– liabilities are incurred– assets are acquired
• it is a timing and data coverage question
Double-entry accounting
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Accounting RulesAccounting Rules(2/3)(2/3)
Time of Recording• Flows are recorded when:
– economic benefits associated with the events have flowed to or from the unit involved, or
– it is probable that future benefits will flow to or from the unit, and
– the monetary value of the events can be reliably measured
Valuation• All flows and stocks are valued at current market
prices
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Accounting RulesAccounting Rules(3/3)(3/3)
Netting• Generally, flows and stocks are recorded on a
gross basis– For analytic presentations, the net acquisition of assets
or net incurrence of liabilities may be used– Revenue categories are presented net of refunds– Expense categories are presented net of erroneous
and/or unauthorized transactions
Consolidation• In GFS, data presented for a group of units are
consolidated
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GFSM 2001 StatementsGFSM 2001 Statements
Four statements:
• Statement of Government Operations
• Statement of Other Economic Flows
• Balance Sheet
• Statement of Sources and Uses of Cash
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The Statement of Government Operations The Statement of Government Operations 1/61/6
Summarizes government’s transactions in a given accounting period
Transactions are classified according to whether they:• increase net worth (revenue)
• decrease net worth (expense)
• change the stock of a nonfinancial asset (capital asset)
• change the stock of a financial asset or liability (financing)
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Revenue
- Expense
= Net operating balance (gross operating balance)
- Transactions in nonfinancial assets
= Net lending/borrowing
- Transactions in financial assets
+ Transactions in Liabilities
The Statement of Government Operations The Statement of Government Operations 2/62/6
Financing
= zero (because of double-entry recording)
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Revenue
• Taxes
• Social Contributions
• Grants
• Other revenue
The Statement of Government Operations The Statement of Government Operations 3/63/6
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Expense• Compensation of employees
• Use of goods and services
• Consumption of fixed capital
• Interest
• Subsidies
• Grants
• Social benefits
• Other expense
The Statement of Government Operations The Statement of Government Operations 4/64/6
Transfers
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Transactions in nonfinancial assets
• Fixed assets *
• Inventories (net change)
• Valuables
• Nonproduced assets *
* Minus consumption of fixed capital
The Statement of Government Operations The Statement of Government Operations 5/65/6
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Financing• Transactions in (all) financial assets and liabilities
• Multiple ways to classify:– by residency of counter party (domestic, foreign)– by type of financial instrument (securities other than
shares, loans, shares and other equity, etc.)– by “sector” of counter party (general government,
central bank, depository corporations, etc.)
The Statement of Government Operations The Statement of Government Operations 6/66/6
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Statement of Other Economic FlowsStatement of Other Economic Flows1/21/2
Shows influences on govt’s financial position in accounting period from flows other than transactions, i.e.
• Holding gains in assets & liabilities (revaluations)– Changes in the price of the asset or liability
• Other volume changes in assets and liabilities– exceptional or unexpected events (e.g., floods,
earthquakes, wars, etc.)– normal events (e.g., discovery of subsoil asset, registration
of patent)– reclassifications (e.g., unit from central to local govt)
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Changes in nonfinancial assetsHolding gainsOther volume changes
+ Changes in financial assetsHolding gainsOther volume changes
+ Changes in liabilitiesHolding gainsOther volume changes
= Changes in net worth from other economic flows
Statement of Other Economic FlowsStatement of Other Economic Flows2/22/2
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Balance SheetBalance Sheet1/21/2
Shows the stocks of assets, liabilities and net worth at beginning and end of accounting period
• Economic assets are recorded in GFS, i.e., owners of assets can:
– enforce ownership rights
– derive economic benefits
• Valued at current market value
• Assets by type of asset
• Liabilities by type of instrument
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Balance SheetBalance Sheet2/22/2
Nonfinancial assets
Financial assets
Liabilities
Net worth(t)
{= Net worth(t-1)
+ changes in net worth due to transactions [net operating balance](t)
+ changes in net worth due to other economic
flows(t)}
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Statement of Sources and Uses of CashStatement of Sources and Uses of Cash1/21/2
Shows the total amount of cash generated or absorbed by government through• current operations
• transactions in nonfinancial assets
• transactions in financial assets and liabilities (other than cash itself)
Net change in government’s overall cash position is sum of the net cash received from all the above
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Statement of Sources and Uses of Cash Statement of Sources and Uses of Cash (Shortened Version) (Shortened Version) 2/22/2
Cash receipts from government operating activities
− Cash payments for government operating activities
= Net cash inflow from operating activities
− Net cash outflow from investments in NFAs
= Cash surplus/deficit
+ Net cash inflow from financial operations other
than cash:
Net acquisition of financial assets other than cash
Net incurrence of liabilities
= Net change in stock of cash
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Core Balances of the GFSM 2001 SystemCore Balances of the GFSM 2001 System
Multiple balancing items for transactions:
• Net operating balance– Balance of transactions affecting net worth– Closely related to 1993 SNA government saving
• Net lending/borrowing– Net operating balance minus transactions in NFAs
• Cash surplus/deficit– Net cash inflow from operating activities minus net
cash outflow from investments in NFAs
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Other Analytic MeasuresOther Analytic Measures
Some other analytic measures for fiscal policy (see Box 4.1 in GFSM 2001)• Overall fiscal balance
– Net lending/borrowing minus acquisition of financial assets for policy purposes
• Overall primary balance– Overall fiscal balance plus net interest expense
• Net worth– Total stock of assets minus liabilities
• Net financial worth– Total stock of financial assets minus liabilities
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Implementation 1/1Implementation 1/1
It is recognized that full implementation of the new GFS system is a long-term activity
Priorities can only be established by each country taking into account their situation, including available resources
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Implementation 2/2Implementation 2/2
Nonetheless, countries are encouraged to develop a migration path towards the new system.
It is likely that this will include, over time:• improving existing cash-based data systems• adopting the new classification structure• making adjustments to existing data for serious
deficiencies• developing balance sheet information
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FA
Liab
NFA
FA
LiabLiab
FA
Expense
Revenue
Transactions
Revenue
Current and
capital expend-
iture
FA
Liab Liab Liab
Stocks of liabilities
Stocks of liabilities
TransactionsGFSM 2001:GFS 1986:
=>
Step 1: Cash basis => reclassification to new GFS I. Cash data to GFS tables 1 to 5 II. Partial balance sheet (Table 6)
Stocks of financial assets & liabilities
Stocks of financial assets & liabilities
1
2
3
6
3
3
COFOG5
* Net operating balance** Net lending / borrowing
*
**
Migration path:
6
FA bysectors
4
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FA
NFA
FA
LiabLiab
FA
Expense
Revenue
Transactions
Liab
Transactions
=>
Step 2: Full coverage of units and events (approach accrual recording)
I. Statement of Government Operations (Tables 1-5) II. Partial balance sheet (Table 6)
Stocks of financial assets & liabilities
Stocks of financial assets & liabilities
1
2
3
6
3
3
COFOG5
* Net operating balance** Net lending / borrowing
*
**
FA
NFA
Expense
Revenue
Stocks of financial assets & liabilities
Stocks of financial assets & liabilities
Liab Liab Liab
FAFA
Step 1:
Migration path:
6
NW tr
FA by sectors
4
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FA
NFA
FA
LiabLiab
FA
Expense
Revenue
Transactions
Liab
Transactions
=>
Step 3: Full accrual accounting for financial accounts I. Statement of Government Operations (Tables 1-5) II. Other Economic Flows for financial assets III. Partial balance sheet (Table 6)
Stocks of financial assets & liabilities
Stocks of financial assets & liabilities
1
2
3
6
3
3
* Net operating balance** Net lending / borrowing
*
**
FA
NFA
Expense
Revenue
Stocks of financial assets & liabilities
Stocks of financial assets & liabilities
Liab Liab Liab
FAFA
Step 2:
Migration path:
FA
Liab
Other economic
flows
6
6 6
NW tr NW tr
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FA
NFA
FA
LiabLiab
FA
Expense
Revenue
Transactions
Liab
Transactions
=>
Step 4: Accrual accounting for nonfinancial assets I. Statement of Government Operations (Tables 1-5) II. Statement of Other Economic Flows III. Integrated stocks and flows (Table 6)
Openingbalance
Closingbalance
1
2
3
6
3
3
*
**
FA
NFA
Expense
Revenue
Stocks of financial assets & liabilities
Stocks of financial assets & liabilities
Liab Liab Liab
FAFA
Step 3:
Migration path:
FA
Liab
Other economic
flows
6
6 6
NW tr NW tr
FA
NFA NFANFA6 6
NW OEF NW
Liab
Other economic
flows
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NFA
FA
NFA
FA
LiabLiabLiab
FA FA
NFA NFA
Expense
Revenue
Opening balance
Transactions
Other economic
flows
Closing balance
Liab
GFS as a fiscal policy instrument
CurrentAccounts
AccumulationAccounts
BalanceSheet
ESA 95
GFSM 2001
Chart ofAccounts
COA
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Capital transfers &
Non-financialassets
Income account
Production account
Transactions
GDP (value added)
ESA95SNA’93
Financialassets &liabilities
Saving
Revenue account
Expense account
Financialassets &liabilities
Non-financialassets
GFS2001
Transactions
Operating balance
Net lending / borrowing
Currentaccount
Capitalaccount
Financialassets &liabilities
Currentaccount balance
Transactions
BOP’93
Financialassets &liabilities
Transactions
MFS2000
export G&Simport G&Sincome transactionscurrent transfers
capital transferstransactions in NPNFA