# Presentation: 142981

## NOAA Financial Reporting Fluctuation (“Flux”) Analysis

- Presented by
- NOAA’s Finance Office
*April 2008*

## Increased Auditing of Financial Statement and Footnote Fluctuations

- 	How It Will Affect You:
- 	NOAA Budget Office, as well as Line/Staff Offices, will be asked to provide explanations of changes in activity that resulted in material changes to financial statements and footnotes, including:
- Explain material changes in program/operating expenses
- Explain material changes in outlays
- Explain material changes in obligations (direct vs. reimbursable)
- Explain material changes in undelivered orders
- Explain material changes in reimbursable activity
- Explain material changes in stewardship data

## Increased Auditing of Financial Statement and Footnote Fluctuations

- What is Material?
- NOAA is required to explain fluctuations in excess of 10% or $12M by the established DoC/OFM due dates.
- NOTE:  DoC/OFM reserves the right to request explanations for fluctuations below the threshold (NOAA may be the majority of the Department-wide flux).

## Fluctuation Analysis (most)begins withStandard General Ledger (SGL) Account Reporting in Financial Statement Line Items or Footnotes

## Financial Statement and Footnote Fluctuations & SGL Accounting

- Explain material changes in **program/operating expenses**
- USSGL Account 6100
- Statement of Net Cost
- Explain material changes in **outlays**
- USSGL Accounts included:
- 4802 (E-B) & 4882 (E)
- 4902 (E) & 4982 (E)
- Statement of Budgetary Resources (SBR) & SF 133 Report on Budget Execution and Budgetary Resources

## Financial Statement and Footnote Fluctuations & SGL Accounting

- Explain material changes in **obligations (Direct vs. Reimbursable)**
- USSGL Accounts included:
- 4801, 4881, 4831, 4802, 4882, 4832 (All are E-B) *No PY downwards
- 4901, 4981, 4931, 4902, 4982 (All are E-B) *No PY downwards
- Statement of Budgetary Resources (SBR) & SF 133 Report on Budget Execution and Budgetary Resources
- Explain material changes in **undelivered orders**
- USSGL Accounts included:
- 4801, 4881, 4831, 4871, 4802, 4882, 4832, 4872 (All are E-B)
- Statement of Budgetary Resources (SBR) & SF 133 Report on Budget Execution and Budgetary Resources

## What Can Cause Fluctuations?

- Events that can cause fluctuations (examples):
- Changes in the appropriation (impact on obligation, expense &/or outlay flux)
- Increased capitalized property (impact on 6100 flux)
- Increase of items accrued in one year and outlayed in the next (impact on outlay flux)
- Increase in CY UDOs expended in following year (impact on 6100 &/or outlay flux)

## Fluctuation Analysis for SGL Account 6100 – Program and Operating Expenses

- USSGL account 6100 – *Program and Operating Expenses *fluctuation analysis (proprietary activities)
- Does not compare to the Outlays, Obligations or Undelivered fluctuation analyses (budgetary activities) because different USSGL accounts are used in each of these fluctuation analyses.
- A CBS query provides a comparison of current & prior year USSGL account 6100 balances broken out by object class, program codes & FCFY.  LOs must use the query results provided by the 6100 Expense query for this fluctuation analysis.
- Other queries used by LOs could include accounts with activity not part of the USSGL account 6100.  Additionally, queries that contain or do not contain budgetary or proprietary accounts could also cause problems when compared to the 6100 Expense fluctuation analysis for multiple reasons (see notes below).

## Fluctuation Analysis for SGL Account 6100 – Program and Operating Expenses

- 	Brief summary of what the 6100 Expense Flux would include/exclude:
- Includes current FY change in 49X1 Unpaid Expenditures
- Includes current FY 49X2 Paid Expenditures
- Excludes current FY change in 17XX & 18XX capitalized property transactions, including 1720 CWIP transactions
- Excludes current FY interest expenses (63XX accounts) & employer benefit contributions (64XX)
- Excludes all undelivered orders (48XX accounts)

## Fluctuation Analysis for Outlays

- The Outlays fluctuation analysis is based on the outlays line item on the Statement of Budgetary Resources, which is populated by USSGL accounts 49X2 and 48X2 (budgetary cash paid activities)
- Does not compare to the USSGL account 6100 fluctuation analysis (proprietary activities) or the Obligations fluctuation analysis (budgetary activities) requests because different USSGL accounts are used in each of these fluctuation analyses.
- A CBS query provides a comparison of current & prior year USSGL accounts 49X2 – Expended Obligations Paid and the change in USSGL accounts 48X2 – Paid Undelivered Orders broken out by object class, program codes & FCFY.  LOs must use the query results provided by the Outlays query for this fluctuation analysis.
- Other queries used by LOs could include accounts with activity not part of the Outlays financial statement line item.  Additionally, queries that contain or do not contain budgetary or proprietary accounts could also cause problems when compared to the Outlay fluctuation analysis for multiple reasons (see notes below).

## Fluctuation Analysis for Outlays

**Brief summary of what the Outlays Flux would include/exclude:**
**Includes current FY change in**
**48X2 Paid Undelivered Orders; does not include downward PY recovery accounts**
**Includes current FY change in 17XX and 18XX capitalized property transactions (including 1720 CWIP transactions), paid transactions only**
**Includes current FY 49X2 Paid Expenditures; does not include downward PY recovery accounts**
**Includes current FY 6XXX expenses, paid transactions only**
**Excludes current FY change in 49X1 Unpaid Expenditures**
**Excludes 48X1 Unpaid Undelivered Orders & 49X1 Unpaid Expenditures**

## Fluctuation Analysis for Obligations

- An Obligations fluctuation analysis is currently being developed based on the “obligations incurred” line item on the Statement of Budgetary Resources, which is populated by USSGL accounts 49XX and 48XX (budgetary activities)
- Does not compare to the USSGL account 6100 fluctuation analysis (proprietary activities) or the Outlays fluctuation analysis (budgetary cash paid activities) requests because different USSGL accounts are used in each of these fluctuation analyses.
- A CBS query provides a comparison of current & prior year changes in USSGL accounts 49X2 – Expended Obligations Paid and the Change in 48X1 – Unpaid Undelivered Orders, 48X2 – Paid Undelivered Orders and 49X1 – Unpaid Expenditures broken out by object class, program codes & FCFY.  LOs must use the query results provided by the Obligations query for this fluctuation analysis.
- Other queries used by LOs could include accounts with activity not part of the Obligations financial statement line item.  Additionally, queries that contain or do not contain budgetary or proprietary accounts could also cause problems when compared to the Obligations fluctuation analysis for multiple reasons (see notes below).

## Fluctuation Analysis for Obligations

- 	Brief summary of what the Obligations Flux would include/exclude:
**Includes current FY change in 48X1 Unpaid Undelivered Orders & 48X2 Paid Undelivered Orders**
**Does not include downward PY recovery accounts**
**Includes current FY change in 49X1 Unpaid Expenditures & 49X2 Paid Expenditures**
**Does not include downward PY recovery accounts**
**Includes current FY change in 17XX and 18XX capitalized property transactions, including 1720 CWIP transactions, except PY recovery amounts**
**Includes current FY 6XXX expenses**

## Fluctuation Analysis for Undelivered Orders

- An Undelivered Orders fluctuation analysis is currently being developed based on the Statement of Budgetary Resources, which is populated by USSGL accounts 48XX (budgetary undelivered activities)
- Does not compare to the USSGL account 6100 fluctuation analysis (proprietary activities), the Outlays fluctuation analysis (budgetary cash paid activities) or the Obligations fluctuation analysis (budgetary expended and unexpended activities – cash paid and accrued) requests because different or only part USSGL accounts are used in each of these fluctuation analyses.
- A CBS query provides a comparison of current & prior year changes in USSGL accounts 48XX – Undelivered Orders balances broken out by object class, program codes & FCFY.  LOs must use the query results provided by the Undelivered Orders query for this fluctuation analysis.
- Other queries used by LOs could include accounts with activity not part of the Undelivered Orders financial statement line item.  Additionally, queries that contain or do not contain budgetary or proprietary accounts could also cause problems when compared to the Undelivered Orders fluctuation analysis for multiple reasons (see notes below).

## Fluctuation Analysis for Undelivered Orders

- 	Brief summary of what the Undelivered Orders Flux would include/exclude:
- Includes current FY change in 48X1 Unpaid Undelivered Orders & 48X2 Paid Undelivered Orders
- Includes downward PY recovery accounts
- Excludes current FY change in 49X1 Unpaid Expenditures & 49X2 Paid Expenditures
- Excludes current FY change in 17XX and 18XX capitalized property transactions, including 1720 CWIP transactions
- Excludes current FY 6XXX expenses

## Examplesof“Flux” Explanations

## Example – Outlay Fluctuation

- Outlay fluctuation on the SBR:
- For FY07 Qtr 2, NOAA had a decrease of ($287,198) million in outlays, when compared to FY06 Qtr 2.

## Example – Outlay Fluctuation

- Explanation that “needs work” (in Millions):
- There was a decrease of $8,000 that can be attributed to the fact that NOAA received a decrease in appropriations in FY07, when compared to FY06.  As a result, there was a decrease in outlays.
- Good Explanation (in Millions):
- There was a decrease of $8,000 for the Suitland Facility.  The decrease is due to the completion of the NOAA Satellite Operations Facility (NSOF) construction contract in the 2nd Qtr of FY 2006 which resulted in GSA billing the Reimbursable Work Authorizations funded by NOAA, for costs disbursed.  Further, the activities on contracts established ... Consequently, there were increases in the disbursements against these contracts during the 2nd Qtr of FY 2006.

## Example – Required Supplementary Information Fluctuation

- The DoC Office of Financial  Management requested that NOAA explain a change in a performance goal for Research and Development Investments.

## Example – Required Supplementary Information Fluctuation

- Explanation that “needs work”:
- $29.3M in costs associated previously with weather and water research during FY 06 have now been transferred into weather and water development costs during FY 07.
- Good explanation:
- The increase in costs between FY 06 and FY 07 of $29.3M in weather and water is attributed to an increase of $40M for the National Weather Services’ Automated Surface Observing System (ASOS).  Funds were obligated during the 4th quarter of FY 06 with minimal costs being incurred during that timeframe.  A decrease in costs of $10M was as result of the completion of the National Weather Services’ Advanced Weather Interactive Processing System (AWIPS) during the 2nd quarter of FY 07.

## Helpful Tips in Explaining Fluctuations

- Please note that all 3 of the following elements must be addressed when writing each line item flux explanation:
- 1) What caused the change
- 2) Where the change occurred
- 3) When the change occurred
- A breakdown of the “total amount change” must be explained.  For example, if the total amount change is $5 million, a breakdown should be explained as follows:
- An increase of $3 million was due to...
- A decrease of $2 million was due to...
- An increase of $2 million is as a result of...
- An increase of $1.5 million was due to...
- An increase of $.5 million was due to...
- Total amount change of $5 million

## How Can I Learn More?

- OMB Circular A-136 Financial Reporting Requirements: _[http://www.whitehouse.gov/omb/circulars/a136/a136_revised_2006.pdf](http://www.whitehouse.gov/omb/circulars/a136/a136_revised_2006.pdf)_
- DOC FY 2007 Performance and Accountability Report (PAR) _[http://www.osec.doc.gov/bmi/budget/FY07PAR.htm](http://www.osec.doc.gov/bmi/budget/FY07PAR.htm)_
- NOAA System Closing Dates
- 	_[http://www.corporateservices.noaa.gov/%7Ecbs/glinfo.htm](http://www.corporateservices.noaa.gov/~cbs/glinfo.htm)_
- USSGL
- 	_[http://fms.treas.gov/ussgl/index.html](http://fms.treas.gov/ussgl/index.html)_

## Questions?Mark P. Miller,Chief, Financial Statements Branch (Finance Office)301-444-2704Mark.P.Miller@noaa.gov

## End of Presentation

- Next – Additional Information (SGL, Budgetary vs. Proprietary Accounting, Obligations vs. Expense)

## United StatesStandard General Ledger (USSGL)

- Federal Financial Management Improvement Act of 1996 (FFMIA) – required to implement & maintain financial management systems that comply with the USSGL at the transaction level.
- Provides a uniform Chart of Accounts & technical guidance to be used in standardizing federal agency accounting
- The USSGL Supplement (released annually) is composed of five major sections:
- Chart of Accounts
- Account Descriptions
- Accounting Transactions
- USSGL Attributes
- Report Crosswalks

## United StatesStandard General Ledger (USSGL)

- Includes both Proprietary & Budgetary Accounts that are self-balancing (total debits = total credits)
- TWO sets of books
- Proprietary – traditional accounting classifications (assets, liabilities, revenues & expenses)
- Budgetary – accounts to track resources and execution of federal funds
- NOAA is required to use USSGL’s standard report crosswalks for each financial statement line item

## Understanding the USSGL

- 	1010		Fund Balance with Treasury
- 	11xx/12xx 	Cash
- 	13xx		Receivables
- 	1410 		Advances and Prepayments
- 	15xx	 	Inventory; Seized, Forfeited and Foreclosed Property; Commodities:
- 			Stockpile Materials
- 	16xx		Investments
- 	17xx-18xx	General Property, Plant and Equipment (1720 CWIP)
- 	19xx		Other Assets
- 	21xx		Accrued Liabilities – Other
- 	22xx		Accrued Liabilities – Payroll and Benefits
- 	23xx-24xx	Unearned Revenue
- 	25xx		Debt
- 	26xx		Actuarial Liabilities
- 	29xx		Other Liabilities
- 	3xxx		Net Position

## Understanding the USSGL

- 4xxx		Budgetary
- 	4450		Unapportioned Authority
- 	4610		Allotments – Realized Resources
- 	4700		Commitments
- 	48XX		Undelivered Orders, includes
- 				upward & downward adjustments
- 				of prior year Undelivered Orders
- 	49XX		Delivered Orders, includes
- 				upward & downward adjustments
- 				of prior year Delivered Orders

## Understanding the USSGL

- NON-CASH UDOs
- 	4801 		Undelivered Orders - Obligations, Unpaid
- 	4831 		Undelivered Orders - Obligations Transferred, Unpaid
- 	4871 		Downward Adjustments of Prior-Year Unpaid Undelivered Orders - Obligations, Recoveries
- 	4881 		Upward Adjustments of Prior-Year Undelivered Orders - Obligations, Unpaid
- CASH UDOs
- 	4802 		Undelivered Orders - Obligations, Prepaid/Advanced
- 	4832 		Undelivered Orders - Obligations Transferred, Prepaid/Advanced
- 	4872 		Downward Adjustments of Prior-Year Prepaid/Advanced Undelivered Orders - 			Obligations, Refunds Collected
- 	4882 		Upward Adjustments of Prior-Year Undelivered Orders – Obligations, Prepaid/Advanced
- NON-CASH DOs
- 	4901 		Delivered Orders - Obligations, Unpaid
- 	4931 		Delivered Orders - Obligations Transferred, Unpaid
- 	4971 		Downward Adjustments of Prior-Year Unpaid Delivered Orders - Obligations, Recoveries
- 	4981 		Upward Adjustments of Prior-Year Delivered Orders - Obligations, Unpaid
- CASH DOs
- 	4902 		Delivered Orders - Obligations, Paid
- 	4972 		Downward Adjustments of Prior-Year Paid Delivered Orders - Obligations, refunds Collected
- 	4982 		Upward Adjustments of Prior-Year Delivered Orders - Obligations, Paid

## Understanding the USSGL

- 	5xxx 		Revenue & Other Financing 			Sources
- 	6xxx 		Expenses
- 	6100 		Operating Expenses/Program 			Costs
- 	7xxx 		Gains/Losses/Miscellaneous 			Items
- 	8xxx		Memorandum Accounts

## The Difference Between Budgetary and Proprietary Accounting

The Difference Between Obligations and Expenses

Fluctuation Analyses:
Fluctuation Analysis for SGL Account 6100 – Program and Operating Expenses
Fluctuation Analysis for Outlays
Fluctuation Analysis for Obligations
Fluctuation Analysis for Undelivered Orders

**The Difference Between Budgetary and Proprietary Accounting**
**The Difference Between Obligations and Expenses**
**Fluctuation Analyses:**
**Fluctuation Analysis for SGL Account 6100 – Program and Operating Expenses**
**Fluctuation Analysis for Outlays**
**Fluctuation Analysis for Obligations**
**Fluctuation Analysis for Undelivered Orders**

## The Difference Between Budgetary and Proprietary Accounting

- DoC’s financial statements reflect both proprietary & budgetary accounting transactions
- Under the proprietary accrual method of accounting, revenues are recognized when earned; expenses & property capitalizations are recognized when incurred, without regard to the receipt or payment of cash
- The proprietary accrual basis of accounting provides a matching of costs to the production of goods & services
- Budgetary accounting was designed to recognize the obligation of funds according to legal requirements, which, in many cases, is made prior to the occurrence of an proprietary accrual-based transaction
- Budgetary accounting is essential for compliance with legal constraints & controls over the use of federal funds

## The Difference Between Obligations and Expenses

_**Budgetary Accounting**_
**+  Change in Undelivered Orders (48XX)**
**+  Change in Unpaid Delivered Orders (Accruals) (49X1)**
_**+  Change in Paid Delivered Orders (Disbursements) (49X2)      **_
**=  **CY Obligations****

_**Proprietary Accounting**_
**-   Change in Capitalized Property (17XX/18XX)**
**+  Change in Accruals (2XXX)               **
_**+  Disbursements (1010)**_
**=  **CY Expenses** (6XXX/7XXX)**

- NOTE #1 – CY Obligations ties to SF 133, Line 8
- NOTE #2 – Not all obligations are expenses.  For example:
- Delivered Orders – not all expensed, some capitalized (capitalized property, loans, etc.)
- Undelivered Orders – not included in expenses; are included in CY obligations