Source: http://www.treasury.tas.gov.au/BudgetPapersHTML/Budget2017/BP1/2017-18-BP1-7-Assets-and-Liabilities.htm
Timestamp: 2017-11-18 17:43:02
Document Index: 786242559

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7 Assets and Liabilities
· General Government Net Worth is estimated to be $11 723.5 million as at 30 June 2018. Net Worth is estimated to increase over the Forward Estimates period to $12 843.8 million by 30 June 2021.
· General Government Net Debt is estimated to be negative $451.8 million as at 30 June 2018, an improvement of $150.5 million on the 2016‑17 Budget estimate of negative $301.3 million as at 30 June 2017. General Government Net Debt is expected to remain negative over the Forward Estimates period (as relevant assets continue to exceed liabilities) to 30 June 2021.
· The most significant liability on the General Government Balance Sheet is the General Government Superannuation Liability, which is estimated to be $6 266.3 million as at 30 June 2018. The liability is expected to be extinguished by 30 June 2078.
· The Government continues to meet the cash cost of the defined benefit superannuation schemes on an emerging basis ($285.8 million in 2017‑18). While forecast to be manageable, a key ongoing Budget risk is that the cash cost to the Budget will increase significantly in the coming years, with cash payments anticipated to increase over the next 14 years, peaking in 2031‑32 ($442.6 million).
· The present value of superannuation liabilities is particularly sensitive to discount rate movements, although these movements do not impact on the cash costs that require funding.
· As part of the reform of public sector superannuation, the Government has implemented a more efficient model for defined benefit scheme operating expenses, providing estimated savings of $2.5 million per annum across the Budget and Forward Estimates period.
The Balance Sheet presented in this chapter provides assets and liabilities estimated as at 30 June 2017 to 2021 and reports key indicators for the same period. By providing information on the nature of assets and liabilities held by the Government, this Statement gives an indication of the State's financial strength.
The key measures presented in the Balance Sheet are Net Worth, Net Financial Worth, Net Financial Liabilities and Net Debt.
Table 7.1 details the estimated General Government Sector Balance Sheet as at 30 June from 2017 to 2021.
Table 7.1: General Government Balance Sheet as at 30 June
1 075.5
1 092.3
Equity Investment in PNFC and PFC Sectors
4 482.8
5 654.0
5 715.6
5 757.5
5 807.6
6 608.9
7 975.7
8 032.4
8 130.7
8 212.7
6 098.6
6 265.3
6 535.8
6 644.9
6 705.4
4 779.3
4 816.5
5 108.1
5 343.5
5 553.0
11 696.0
11 888.1
12 449.5
12 798.0
13 075.5
18 304.9
19 863.8
20 481.9
20 928.8
21 288.2
6 345.5
6 266.3
6 345.7
6 412.6
6 465.3
8 055.7
8 140.3
8 423.4
8 483.7
8 444.4
10 249.2
11 723.5
12 058.5
12 445.0
12 843.8
Table 7.1: General Government Balance Sheet as at 30 June (continued)
5 293.3
6 761.4
6 828.0
6 926.0
7 029.9
4 955.9
4 962.1
5 230.5
5 813.9
NET FINANCIAL WORTH4
(1 446.7)
(391.0)
NET FINANCIAL LIABILITIES5
5 929.6
5 818.6
6 106.6
6 110.5
6 039.4
(339.6)
1. The increase in Cash and Deposits in 2017‑18 primarily reflects a change in timing of Australian Government Funding together with higher estimated cash balances at the end of 2016‑17.
2. The decrease in Superannuation in 2017‑18 reflects the latest actuarial assessment of the defined benefits schemes.
3. Net Worth represents Total Assets less Total Liabilities.
4. Net Financial Worth represents Financial Assets less Total Liabilities.
5. Net Financial Liabilities represents Total Liabilities less Financial Assets, excluding Equity Investment in the PFC and PNFC sectors.
6. Net Debt represents Borrowings less the sum of Cash and Deposits and Investments.
Total Assets are estimated to be $19 863.8 million as at 30 June 2018, an increase of $1 558.9 million from the 2016‑17 Budget estimate of $18 304.9 million as at 30 June 2017. The increase primarily reflects an increase in the Equity Investment in PNFC and PFC Sectors of $1 171.2 million, which is primarily due to the equity contribution of $730.4 million to the Tasmanian Public Finance Corporation relating to the one-off payment received for the transfer of ownership of the Mersey Community Hospital from the Australian Government (expected to occur by 30 June 2017). Total Assets are estimated to increase across the Forward Estimates period from $19 863.8 million as at 30 June 2018 to $21 288.2 million as at 30 June 2021.
This item consists of the Government's investment in the net assets of the Public Non‑Financial Corporations and Public Financial Corporations sectors.
The Government's equity investment is estimated to be $5 654 million as at 30 June 2018, an increase of $1 171.2 million from the 2016‑17 Budget estimate of $4 482.8 million as at 30 June 2017. This primarily reflects an increase in the PFC Sector as a result of the $730.4 million equity contribution the State Government will make to the Tasmanian Public Finance Corporation related to the transfer of the Mersey Community Hospital (expected to occur by 30 June 2017). In addition, there is a forecast increase in net assets for Hydro Tasmania of $195.7 million and the Motor Accidents Insurance Board of $114.2 million.
Chart 7.1 illustrates the components of the Government's Equity Investment holdings.
Chart 7.1: Equity Investment in PNFC and PFC Sectors as at 30 June 2018
Other Financial Assets primarily includes Income Tax Equivalents Receivable and Prepayments. Other Financial Assets is estimated to be $815.4 million as at 30 June 2018, a decrease of $31.6 million on the 2016‑17 Budget estimate of $847 million as at 30 June 2017. The decrease primarily reflects a $23.1 million decrease in the Income Tax Equivalents estimate and a decrease of $8.6 million in Prepayments.
Table 7.2 provides a summary of Other Financial Assets.
Table 7.2: Other Financial Assets as at 30 June
Income Tax Equivalents Receivable1
1. Income Tax Equivalents Receivable is an asset held by the General Government Sector that mirrors the Income Tax Liabilities held by Government Business Enterprises and State‑owned Companies within the PNFC and PFC sectors. The receivable reflects timing differences in the payment of income tax equivalents in accordance with Australian Accounting Standards.
Non‑Financial Assets
Non‑Financial Assets include the value of Crown Land and other land holdings, including national parks and conservation areas, schools, hospitals and other buildings held by the Government for the provision of goods and services. Non‑Financial Assets also includes Plant and Equipment, Intangibles, Assets Held for Sale and Other Non‑Financial Assets.
Land and Buildings is estimated to be $6 265.3 million as at 30 June 2018, an increase of $166.7 million on the 2016‑17 Budget estimate of $6 098.6 million as at 30 June 2017. Land and Buildings is estimated to increase by $440.1 million to $6 705.4 million as at 30 June 2021.
Infrastructure is estimated to be $4 816.5 million as at 30 June 2018, an increase of $37.2 million on the 2016‑17 Budget estimate of $4 779.3 million as at 30 June 2017. Infrastructure is estimated to increase by $736.5 million to $5 553 million as at 30 June 2021.
The increase in Land and Buildings and Infrastructure over the 2017‑18 Budget and Forward Estimates period reflects the implementation of the Government's infrastructure investment program. Further information regarding infrastructure investment is provided in chapter 6 of this Budget Paper.
Total Liabilities is estimated to be $8 140.3 million as at 30 June 2018, increasing over the Forward Estimates period, with estimated Total Liabilities of $8 444.4 million as at 30 June 2021.
The estimated Borrowings of $711.8 million as at 30 June 2018 include an estimated end of year borrowing of $499.1 million to be undertaken on 30 June 2018. The end of year borrowing has no impact on the Government’s Net Debt as the same amount will be borrowed and invested overnight on 30 June with the Tasmanian Public Finance Corporation, grossing up the amount of cash held and borrowings.
Other Liabilities (which includes Tasmanian Risk Management Fund liabilities) is estimated to be $409.7 million as at 30 June 2018, an increase of $51 million compared to the 2016‑17 Budget of $358.7 million as at 30 June 2017. The increase primarily reflects the impact of 2016 actual balances that were not known at the time of preparing the 2016‑17 Budget.
General Government Superannuation Liability
The Government's superannuation liability is an estimate of the obligations of the State with respect to liabilities arising from the current and former members of unfunded or partially funded Public Sector defined benefit superannuation schemes, which were closed to new members with effect from May 1999.
The superannuation liability is an estimate of the Net Present Value of the Government's share of meeting current and future benefit payments for scheme members. The superannuation liability differs from many other financial liabilities, such as Borrowings, which can be called on for repayment in full at any point in time.
The superannuation liability has arisen over many decades because benefits are funded on an emerging basis when scheme members become entitled to a pension or lump sum benefit. That is, the Government's portion of the final benefit is paid when it falls due, with the remaining part of the benefit being funded from the scheme's assets. The major schemes currently operating in the General Government Sector that have an unfunded liability are those established under the Retirement Benefits Act 1993, the former Parliamentary Superannuation Act 1973, the former Parliamentary Retiring Benefits Act 1985 and the Judges' Contributory Pensions Act 1968.
While these schemes have been closed to new members, because of the long‑term nature of superannuation benefits, the superannuation liability continues to increase as existing members accrue additional years of service as they approach retirement age. The liability is projected to increase until 2023‑24 and then gradually decline over the following five or six decades.
As part of the reform of public sector superannuation, the Government has established the Superannuation Commission, from 1 April 2017, to replace the RBF Board and be responsible for the management of the defined benefit schemes. In conjunction with that important reform, the Government has implemented a more efficient and transparent model for defined benefit scheme operating expenses, whereby these costs are now directly funded by the Government, through the Department of Treasury and Finance, as part of the annual Budget development process, rather than being incurred at the RBF Board’s discretion and charged directly against the Plan Assets. The average annual operating expenses incurred by the RBF Board over the past six years (being the two most recent triennial review periods) was $19.4 million, while the average annual cost for the new funding arrangement is $16.9 million across the Budget and Forward Estimates period, resulting in an estimated saving of $2.5 million per annum, without impact on the level of service offered to members. This saving has a direct impact on the General Government Net Operating Balance across the Budget and Forward Estimates period through a reduction in the superannuation expense.
The Government recognises that superannuation is a significant liability and will continue to ensure that it manages this critical ongoing funding task in the most prudent way and in accordance with the recommendations of the State Actuary.
The estimated General Government Superannuation Liability as at 30 June 2018 is $6 266.3 million, which is comprised of the estimated present value of the liability of $8 057.2 million less the estimated fair value of plan assets of $1 790.8 million.
Table 7.3: General Government Superannuation Liability as at 30 June
) Budget)
Present Value of Superannuation Liability
8 057.2
8 130.4
8 187.4
8 221.2
(1 790.8)
(1 784.7)
(1 774.8)
(1 755.8)
Chart 7.2 projects the General Government Superannuation Liability (net of plan assets) over the total life of the defined benefit schemes. The Chart shows the liability is expected to be extinguished by 30 June 2078.
Chart 7.2: General Government Superannuation Liability Projection, 30 June 2018 to 30 June 2078
Independent actuarial assessments are prepared by the State Actuary to provide reporting and disclosure information, relating to the General Government Superannuation Liability, in respect of current and former employees who have defined benefits arising from membership of the closed defined benefit superannuation schemes.
The actuarial assumptions are used for the variables that will determine the ultimate cost of providing long‑term superannuation benefits. Actuarial assumptions must be unbiased (i.e. neither imprudent nor excessively conservative) and should reflect the economic relationships between factors such as inflation, rates of salary increase, the return on scheme assets and discount rates.
Key assumptions used by the State Actuary in preparing the most recent actuarial estimate of the General Government Superannuation Liability are:
· Discount Rate ‑ 4.75 per cent;
· Salary Increase Rate ‑ 3.0 per cent;
· Pension Increase Rate ‑ 2.5 per cent; and
· Investment Earnings ‑ 4.75 per cent.
It is important to recognise that the actuarial estimate is a snapshot of a scheme's estimated financial position at a particular point in time, and that the actuarial results do not predict a scheme's future financial position or its ability to pay benefits in the future. Over time, a scheme's total cost will depend on a number of factors, including the amount of benefits the scheme pays, the number of people paid benefits (for example mortality and marital status are estimated), scheme expenses and the amount earned on any assets invested to pay the benefits. These variables will change over the life of the liability. The variables are uncertain at the valuation date and are estimated by the State Actuary.
The superannuation liability is particularly sensitive to discount rate movements. Since 2009‑10, due to the volatility of the bond market and the long‑term nature of the liability, the Budget projections of the Superannuation Liability do not use the current Australian Government long‑term bond rate. The 2017‑18 Budget projections are based on a discount rate of 4.75 per cent.
There is a strong inverse relationship between the discount rate and the valuation of the liability. Chart 7.3 shows the impact of an increase or decrease of one per cent in the average discount rate used to value the General Government Superannuation Liability. The base rate column represents the estimated Present Value of the superannuation liability (gross) as at 30 June in each year valued by the State Actuary using a discount rate of 4.75 per cent.
Chart 7.3: Sensitivity Analysis of the General Government Superannuation Liability as at 30 June
Currently, the emerging cash cost of defined benefit superannuation payments is met from the Consolidated Fund, funded partly by agency contributions and by a Reserved by Law contribution, which comprises the balance of the Government's share of pension and lump sum benefit costs.
Chart 7.4 shows the estimated employer contribution payments, made up of both pension and lump sum benefit costs, over the period 2017-18 to 2077-78.
Chart 7.4: Defined Benefit Superannuation Costs, 2017‑18 to 2077‑78
A key budget risk is that the cost to the Budget will increase significantly in coming years, increasing by 54.8 per cent over the next 14 years and peaking in 2031‑32. The estimated cost to the Budget is based on the most recent actuarial estimates. The change from the projections in the 2016-17 Budget reflects a 2 per cent decrease in the expected peak cost to $442.6 million ($451.6 million in the 2016‑17 Budget).
In 2017‑18, defined benefit superannuation costs are estimated to be 4.7 per cent of Cash Receipts from Operating Activities in the General Government Sector. Defined benefit superannuation costs, as a percentage of General Government cash receipts, is estimated to peak at 5.4 per cent in nine years (2026‑27), followed by a decrease to 4.7 per cent in fifteen years (2032-33) and 3.8 per cent in 20 years (2037-38).
While movements in discount rates have a significant impact on the valuation of the superannuation liability at any point of time, those discount rate movements do not impact on the nominal cash flows required to meet the emerging cost of benefits paid to members.
Table 7.4 shows the estimated nominal cash flows required to meet the emerging cost of superannuation benefits payable to members. This represents the estimated total cost of benefits payable and includes the General Government share, together with the share of benefits that are funded from Plan Assets.
Table 7.4: Undiscounted Defined Benefit Obligations Payable to Employees of the General Government Sector
Estimated total benefit payments to be made in the period
Later than 1 year and no later than 2 years
Later than 2 years and no later than 5 years
Later than 5 years and no later than 10 years
Later than 10 years and no later than 15 years
Later than 15 years and no later than 20 years
Later than 20 years and no later than 25 years
Later than 25 years and no later than 30 years
Later than 30 years and no later than 35 years
Later than 35 years and no later than 40 years
Later than 40 years and no later than 45 years
Later than 45 years and no later than 50 years
Undiscounted defined benefit obligation
After 50 years there is expected to be a reducing level of cash for a further 25 years totalling approximately:
Total State Superannuation Liability
The estimated Total State Superannuation Liability as at 30 June 2018 is $6 776 million, which is comprised of the estimated present value of the liability of $8 706.5 million less the estimated fair value of plan assets of $1 930.5 million. Total State includes Government Business Enterprises and State‑owned Companies.
Table 7.5: Total State Superannuation Liability as at 30 June
8 706.5
8 786.0
8 847.8
8 884.6
(1 930.5)
(1 924.0)
(1 913.3)
(1 892.8)
6 862.0
6 934.5
6 991.8
Chart 7.5 shows the impact of an increase or decrease of one per cent in the discount rate used to value the Total State Superannuation Liability. The base rate column represents the estimated present value of the superannuation liability (gross) as at 30 June in each year valued by the State Actuary using a discount rate of 4.75 per cent.
Chart 7.5: Sensitivity Analysis of the Total State Superannuation Liability as at 30 June
Table 7.6 shows the estimated nominal cash flows required to meet the emerging cost of superannuation benefits payable to members. This represents the estimated total cost of benefits payable and includes the Total State share, together with the share of benefits that are funded from Plan Assets.
Table 7.6: Undiscounted Defined Benefit Obligations Payable to Employees of the Total State Sector
The Tasmanian Risk Management Fund was established on 1 January 1999 to provide a whole‑of‑government approach to funding and managing the insurable risks of inner‑Budget agencies.
Agencies are covered for the majority of insurable risks to which they are exposed or for which they choose to accept responsibility and the Fund agrees to cover, including:
· personal injury (including workers' compensation and personal accident);
· property (including buildings and contents, business interruption, motor vehicles, machinery, marine hull, transit and fraud);
· liability (including public and products, professional, and directors' and officers' liability);
· medical liability; and
All classes are self‑insured by the Fund apart from marine hull, travel, and some property claims, which remain insured through the private sector, as this is more cost-effective than self‑insurance for these categories of risk. From 1 July 2015, an Industrial Special Risks Insurance Policy has been purchased in the external market to cover catastrophic risk for property claims above $5 million.
The Fund operates on a cost recovery basis with all inner Budget agencies making contributions each year in order to build up reserves to meet current and emerging costs. Contributions are based on advice from an independent Actuary and are adjusted over time according to the claims experience of agencies. Overall, total agency contributions are expected to increase from $56.7 million in 2016‑17 to $60.2 million in 2017‑18.
The expected overall increase in contributions for 2017‑18 is mainly due to an anticipated increase in both workers' compensation and property contributions. The increase in workers' compensation contributions and expenses is primarily as a result of anticipated higher claim costs in recent years and a deterioration in the funding level of this risk. The contribution of property has increased significantly, reflecting poor claims experience in 2016‑17 and projected higher claims costs for both large and small claims in 2017‑18. These increases will be marginally offset by a decrease in both general and medical liability contributions, which is mainly due to the improved funding position of these risk categories. Contributions for motor vehicles will also increase moderately to take account of the higher number of claims expected in 2017‑18 over 2016‑17.
In terms of the financial position of the Fund, the Fund's Actuary takes into account the level of assets and liabilities in each risk category when determining annual contributions. The net assets of the Fund are expected to increase over time mainly reflecting improvement in the funding position of workers' compensation risks, a rebuilding of the large claim funding reserve of $5 million for property risks and a significant pre‑2001 medical liability risk provision. This provision is being maintained in medical liability risks as claims can take many years to be reported and many more years to reach a settlement. These reporting and settlement delays mean that the outstanding claims liability in this risk is subject to considerable uncertainty.
Table 7.7: Financial Position of the Tasmanian Risk Management Fund as at 30 June
1. Liabilities are calculated by the Fund's actuary as at 31 December 2016.