CBT 1. Participant's Guide 17 April 2009
Participants GuideParticipants Guide for CBT -1Orientation to IPSASiInternational Public Sector Accounting Standards – (IPSAS)IPSAS System-Wide Training CurriculumChief Executives Board (CEB) for Coordination, United Nations System
TRAINING PRODUCTS TO SUPPORT THE ADOPTION OFINTERNATIONAL PUBLIC SECTOR ACCOUNTING STANDARDS(IPSAS) BY UNITED NATIONS SYSTEM ORGANIZATIONSThis material was prepared jointly by:The United Nations IPSAS Implementation TeamUnited Nations HQNew York, NY 10017andInternational Business & Technical Consultants, Inc.8614 Westwood Centre DriveSuite 400Vienna, VA 22182, USAThis material is the property of the United Nations System Chief Executives Board forCoordination.If there is any conflict between the contents of this material and IPSAS, therequirements of IPSAS prevail.iiInternational Public Sector Accounting Standards – (IPSAS)IPSAS System-Wide Training CurriculumChief Executives Board (CEB) for Coordination, United Nations System
Course CBT 1 – Orientation to IPSAS – Participant’s GuideTABLE OF CONTENTSCourse Overview. 1Course Outline . 41. Introduction. 62. Adopting IPSAS. 73. IPSAS Implementation: Changes and Challenges . 104. IPSAS: The Appropriate Standards for United Nations systemorganizations. 145. Accounting on an Accrual Basis. 166. Scope of IPSAS . 207. The IPSAS Implementation Strategy . 238. Making This Change a Success . 259. Summary: Key Learning Points . 27iiiInternational Public Sector Accounting Standards – (IPSAS)IPSAS System-Wide Training CurriculumChief Executives Board (CEB) for Coordination, United Nations System
List of Abbreviations/Acronyms Used in Course CBT ASBITNATOOECDPP&EUNUNSASEnterprise Resource PlanningFederation of European AccountantsGeneral Purpose Financial ReportsGeneral Purpose Financial StatementsHigh Level Committee on ManagementInternational Accounting StandardsInternational Accounting Standards BoardInternational Federation of AccountantsInternational Financial Reporting StandardsInternational Criminal Police OrganizationInternational Public Sector Accounting StandardsInternational Public Sector Accounting Standards BoardInformation TechnologyNorth Atlantic Treaty OrganizationOrganization for Economic Co-operation and DevelopmentProperty, Plant and EquipmentUnited NationsUnited Nations System Accounting StandardsivInternational Public Sector Accounting Standards – (IPSAS)IPSAS System-Wide Training CurriculumChief Executives Board (CEB) for Coordination, United Nations System
COURSE OVERVIEWThis is the first course in a curriculum of 18 courses to provide System-wide training on theimplementation of International Public Sector Accounting Standards (IPSAS). The objectives ofa system-wide approach to IPSAS training are to provide IPSAS training efficiently andeffectively as well as support consistency in implementing IPSAS across the United NationsSystem. This introductory course will build awareness of IPSAS, helping participants tounderstand what IPSAS is and why it is being adopted by the United Nations System, the majorchallenges and changes expected, and what is needed to make the change a successful one.The target audience for this course includes representatives from Member States, governingbodies, management and staff from all levels and areas of the Organization. Because of thewide diversity of the target audience (with course participants including executives, programmeofficials, technical specialists in such areas as information technology, logistics, communicationsand human resources), there is no single profile to describe the target audience. It is expectedthat most participants will have little knowledge of IPSAS and varying levels of comfort withfinancial matters generally.International Public Sector Accounting Standards – (IPSAS)IPSAS System-Wide Training CurriculumChief Executives Board (CEB) for Coordination, United Nations System1
The following suite of 7 Computer Based Training (CBT) courses and 11 Instructor LedTraining (ILT) courses have been developed to support IPSAS implementation in UnitedNations system organizationsIPSAS Training Course NameCourse NumberCBTOrientation to IPSASCBT-1Accrual Accounting under IPSAS – The BasicsCBT-2Accrual Accounting under IPSAS – Beyond the BasicsILTILT-1ILT-2Accounting for Property, Plant & EquipmentCBT-3ILT-3Accounting for InventoriesCBT-4ILT-4Accounting for Employee Benefits – The BasicsCBT-5Accounting for Employee Benefits – The Basics & BeyondILT-5Accounting for LeasesCBT-6ILT-6Accounting for Provisions & Contingent Liabilities & AssetsCBT-7ILT-7Accounting for Intangible AssetsILT-8Accounting for Financial InstrumentsILT-9Advanced Topics in Financial ReportingILT-10Preparing Accrual-Based Financial StatementsILT-11International Public Sector Accounting Standards – (IPSAS)IPSAS System-Wide Training CurriculumChief Executives Board (CEB) for Coordination, United Nations System2
Linkages Between IPSAS ion toIPSASAccrual Accounting: Beyond TheBasicsAdvanced Topics in FinancialReportingAccrualAccounting: TheBasicsProperty, Plant and EquipmentPreparing Accrual FinancialStatementsInventoryEmployee Benefits: The Basicsand BeyondIntangible AssetsFinancial InstrumentsLeasesEmployee Benefits: The BasicsProvisions and ContingenciesInternational Public Sector Accounting Standards – (IPSAS)IPSAS System-Wide Training CurriculumChief Executives Board (CEB) for Coordination, United Nations System3
Course OutlineThe adoption of accounting standards is a critical decision since accounting standards prescribewhat information is to be collected as well as how it is to be recognised and measured forpresentation in the financial statements. The IPSAS Board (IPSASB) has been busy over thepast 15 years developing international accounting standards for governments and public sectororganizations generally. During this course, we will look at the following areas to provide anorientation to the IPSAS:Course ContentLearning Objectives1. Introductiona.b.2. Adopting IPSAS a.b.c.3. IPSASImplementation:Changes andChallengesa.b.c.d.a.4. IPSAS: TheAppropriateStandards forUnited Nationssystemorganizations?b.c.d.e.a.5. Accounting onan Accrual Basisb.c.6. Scope of IPSAS a.b.c.d.a.7. The IPSASImplementationStrategyExplain broadly why organizations adopt accounting standards.Identify the authorisation to adopt IPSAS.Describe IPSAS and its features.List the milestones in the IPSAS adoption decision.Identify the benefits of IPSAS adoption for the Organization and forstakeholders.Identify the major financial reporting changes resulting from IPSAS.Identify wider organizational changes: Identify areas impacted by IPSAS adoption. Describe the impact on Information Systems. Describe how staff will be impacted by IPSAS adoption.Identify major challenges related to IPSAS adoption.Describe why the integration among various functions of theOrganization is necessary for IPSAS implementation.Describe why the adoption of independent accounting standards isimportant.Identify the body responsible for developing IPSAS.Summarise the IPSAS development process.Describe the three key elements of the IPSAS development processthat support development of credible, high quality standards.List the international organizations that have already adopted IPSASor IPSAS-like standards.Explain some of the differences between accounting on a modifiedcash basis and accounting on an accrual basis.Describe major benefits and challenges of accounting on an accrualbasis.Identify areas of the Organization that will be impacted by the changeto accrual accounting.Describe the objective of ‘General Purpose Financial Statements’.Identify examples of areas that IPSAS does not address.Identify how IPSAS will affect budgeting.Identify examples of processes for which IPSAS provides noguidance.Describe the three aspects of IPSAS implementation common to allUnited Nations system organizations.International Public Sector Accounting Standards – (IPSAS)IPSAS System-Wide Training CurriculumChief Executives Board (CEB) for Coordination, United Nations System4
8. Making ThisChange aSuccess9. Summary: KeyLearning Pointsa.b.c.a.b.c.Identify four influential groups critical to the success of IPSAS.List critical IPSAS implementation steps.List what you can do to support this change.Benefits of IPSASChanges and ChallengesWhy IPSAS are the Appropriate Standards for United Nations systemorganizationsd. Implementation Strategye. Critical Success FactorsInternational Public Sector Accounting Standards – (IPSAS)IPSAS System-Wide Training CurriculumChief Executives Board (CEB) for Coordination, United Nations System5
1. INTRODUCTIONThe learning objectives in this unit of the course are to enable the participant to know whatIPSAS is, how IPSAS adoption was authorised, and the benefits of adopting IPSAS.a. Learning Objective—Explain broadly why organizations adopt accountingstandards.Accounting standards, such as IPSAS, establish guidelines on how particular types of economictransactions and events should be reported in the financial statements of an Organization. Theyset ‘ground rules’ for the recognition, measurement, presentation and disclosure of the elementsthat are presented on the face of the financial statements and the information disclosed in thenotes to the financial statements.b. Learning Objective—Identify the authorisation to adopt IPSAS.In July 2006, the General Assembly approved IPSAS adoption for the United Nations based onthe recommendation of the High Level Committee on Management (HLCM). Currently, thefinancial statements of United Nations system organizations are prepared in accordance withUnited Nations System Accounting Standards (UNSAS). By January 2009, ninety six percent(96%) of the United Nations systems organizations had gained support from their governingbodies for the adoption of IPSAS.International Public Sector Accounting Standards – (IPSAS)IPSAS System-Wide Training CurriculumChief Executives Board (CEB) for Coordination, United Nations System6
2. ADOPTING IPSASMost public sector organizations historically have maintained their accounting records on the‘cash basis.’ Cash basis accounting systems only show a very limited picture of anOrganization’s financial resources and performance. United Nations system organizations havebeen using a ‘modified cash basis’ of accounting, which provides more information but is stilllimited in the information that it provides. To provide better information for decision-making andaccountability (as well as better control over their total resources), many public sector entitieshave already moved their accounting onto the full accrual basis, and many more are in theprocess of making this change. United Nations system organizations are now moving in thesame direction. The decision to adopt IPSAS means changing the accounting basis that UnitedNations system organizations use from ‘modified cash’ to ‘full accrual.’ The full accrual basistransparently shows the resources that an Organization controls, how much the Organizationowes, and the full costs of the services that the Organization is providing.a. Learning Objective—Describe IPSAS and its features.International Public Sector Accounting Standards (IPSAS) are a set of independently producedfinancial reporting standards: Designed to apply to Public Sector and not-for-profit entities for preparation of generalpurpose financial statements. Based on International Financial Reporting Standards (IFRS) developed for private sectorprofit-making organizations, which are amended to reflect public sector and not-for profitspecific financial reporting issues. Developed based on a due process that includes the publication of an exposure draft forpublic comment. Issued by an independent standard setting body, the IPSAS Board (IPSASB), which wasestablished by the International Federation of Accountants.b. Learning Objective—List the milestones in the IPSAS adoption decision.In late 2005, HLCM approved IPSAS adoption, following a recommendation by the Task Forceon Accounting Standards. The HLCM consists of representatives from twenty plus UnitedNations system organizations. Members of the Committee include the Under-Secretary Generalfor Management of the United Nations. The Committee has delegated authority from the ChiefExecutives Board for Coordination (CEB) to make decisions on system-wide managementinitiatives. Following this decision, each individual Organization then proceeded to ask forapproval from their governing bodies. The General Assembly approved IPSAS adoption by theUnited Nations in early July 2006. By January 2009, the governing bodies of 96% of UnitedNations system organizations had provided ‘in principle’ approval for IPSAS adoption.International Public Sector Accounting Standards – (IPSAS)IPSAS System-Wide Training CurriculumChief Executives Board (CEB) for Coordination, United Nations System7
MilestonesMarch 2004Nov. 2005HLCMapprovedprojectHLCM approvedrecommendationto adopt IPSASJuly 2006General Assemblyapproved IPSASadoptionJan. 200996% approvedIPSAS adoption‘in principle’IPSAS adoption has strong support from Member States. Member States support IPSASadoption because they see it as a way to maintain and enhance the credibility, transparency andaccountability of the financial processes and transactions of the United Nations. Member Statesalso consider IPSAS adoption to be a basic building block of productive organizational changeand management reform.c. Learning Objective—Identify the benefits of IPSAS adoption for the Organizationand for stakeholders.Benefits of IPSAS adoption by the United Nations system organizations include the following: Improved consistency, comparability and reliability of financial statementsAdoption of the detailed requirements and guidance provided in IPSAS will meanimproved consistency and comparability of financial statements which will provide a basisfor increase in confidence and recognition in the international community Positive contribution to the United Nations reform- adopting IPSAS is part of theUnited Nations ongoing efforts to align United Nations Systems with internationallyrecognized best practices through the application of credible, independent accountingstandards on a full accrual basis. Opportunity to enhanced oversight and internal control – The increased reportingrequirements calls for improved tracking and oversight of assets as well as stewardshipof resources, which can provide an opportunity to enhance the operational delivery. Increased transparency with respect to assets and liabilities- This increase intransparency results in better knowledge and disclosure that will support bettermanagement of assets and liabilities. The IPSAS requirement for full recognition ofemployee benefit obligations, such as annual leave, repatriation grants and healthinsurance, supports better management of these employee-related costs. The integrationof non-expendable equipment into the accounting system will result in improvements inthe accuracy and completeness of Property, Plant and Equipment (PP&E) records. ForInternational Public Sector Accounting Standards – (IPSAS)IPSAS System-Wide Training CurriculumChief Executives Board (CEB) for Coordination, United Nations System8
the first time inventory (or stocks) will be recognised for the purpose of financial reporting,with a basis for improved assurance over inventory records and management.More comprehensive information about costs - Because IPSAS adoption meansmore comprehensive information about assets and liabilities, the resulting information oncosts is much more meaningful, and that will better support results-based management.Better quality financial reporting- The adoption of IPSAS enables Member States tohold United Nations system organizations to a higher level of accountability andgovernance through improved financial reporting.We have seen the benefits of IPSAS adoption for the Organization as a whole. Let us now lookat the benefits to be expected for specific stakeholders: Donors and Member States - a basis for higher confidence in the financial reports andincreased assurance of efficient resource utilization, accountability and financialmanagement. Beneficiaries - improved efficiencies in resource management and effectiveness ofoperational delivery can expedite response to beneficiaries’ needs. Management - better insight in terms of resources needs and uses as well as liabilities,leading to a basis for improved financial and operational decision making. Programme Managers - enhanced knowledge of existing resources, includingequipment and inventories, which supports better oversight and accountability. Staff – will be exposed to best international practises in financial reporting.International Public Sector Accounting Standards – (IPSAS)IPSAS System-Wide Training CurriculumChief Executives Board (CEB) for Coordination, United Nations System9
3. IPSAS IMPLEMENTATION: CHANGES AND CHALLENGESIPSAS adoption has full support from Member States and management because of significantbenefits to be realised. IPSAS adoption will have a wide-ranging impact on the United Nationssystem organizations and the people in them. This unit identifies some of the financial reportingand wider organizational changes and their impact as well as describes in more detail thechallenges of IPSAS adoption.a. Learning Objective—Identify the major financial reporting changes resulting fromIPSAS.IPSAS adoption will have a big impact on the information reported in the financial statements. Itwould take quite some time to list all the different changes, so here are some of the biggestones: IPSAS requires a report on an annual basis- most United Nations system organizationscurrently do not prepare financial statements on an annual basis. Report all assets and all liabilities - Presently United Nations system organizations use‘modified cash’ accounting under UNSAS. ‘Modified cash’ accounting requires some notedisclosure of PP&E as well as of employee liabilities, but does not include these assets andliabilities on the face of the financial statements and does not report expenses associatedwith these items at the time that those expenses are actually incurred. Under UNSAS,PP&E is fully expensed immediately when they are acquired and no expense associatedwith the use of these assets (i.e. depreciation) is reported in subsequent periods. Bycontrast, under IPSAS the value of these items will be shown on the face of the ‘Statementof Financial Position’ (or ‘Balance Sheet’), and explained in further detail in the notes to thefinancial statements. Depreciation expense, to show the on-going costs of using PP&E, willbe included in the ‘Statement of Financial Performance’ (or ‘Income Statement’). Inventory(or ‘stock’) and intangibles are generally not reported at all under UNSAS. Under IPSASthese assets will be shown on the face of the ‘Statement of Financial Position’ andexpensed over time (in the case of intangibles) or when either sold, transferred orconsumed (in the case of inventory). Presently only the cash outlays arising
8614 Westwood Centre Drive Suite 400 Vienna, VA 22182, USA . ERP Enterprise Resource Planning FEE Federation of European Accountants . Describe the three aspects of IPSAS implementation common to all United Nations system organizations. International Public Sector Accounting Standards – (IPSAS) .
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