Description
The primary objective of the financial management process is to optimize financial and economic benefits from an investment. Financial management systems include the policies and practices regarding financial planning, programming, accounting, reporting, auditing, funding, organization, and personnel of a project or of an EA
Financial Management
and Analysis of Projects
2006
Handbook for Borrowers on the
Foreword
S
ound financial management arrangements help ensure that
investment projects are successfully implemented and are
operationally sustainable. This Handbook contains information
and instructions for borrowers on the financial management of projects
financed by the Asian Development Bank (ADB).
This Handbook reflects ADB policies as set out in the Financial
Management and Analysis of Projects (the Guidelines) as updated in 2005.
It supersedes all previous handbooks on financial management and takes
effect immediately.
To ensure that financial management arrangements for
investment projects meet ADB requirements, borrowers and project
executing agency staff should study this Handbook, particularly during
project preparation.
Asian Development Bank
December 2006
Acknowledgements
T
he original publication entitled, Handbook for Borrowers on the
Financial Governance and Management of Investment Projects
financed by the Asian Development Bank was prepared by Sarath
Lakshman Athukorala (Financial Management Specialist, ADB) and Barry
Reid (consultant).
The original handbook has been updated to conform with the
revised Financial Management and Analysis of Projects, 2005. This was
undertaken by a team comprising Kathleen Moktan, Director, Capacity
Development and Governance Division, with assistance from Andrew
Head, Principal Financial Management Specialist, Anouj Mehta, Financial
Management Specialist, Lizzette Francisco, Yvonne Osonia, Ma. Carolina
Faustino-Chan, and Portia Gonzales.
iv iv iv iv iv
Acronyms
ADB Asian Development Bank
ADTA advisory technical assistance
AFS audited financial statements
APA audited project accounts
DMC developing member country
EA executing agency
FI financial institution
IA implementing agency
IAASB International Auditing and Assurance Standards Board
IAS International Accounting Standards
1
IASB International Accounting Standards Board
IFAC International Federation of Accountants
INTOSAI International Organization of Supreme Audit Institutions
ISA International Standards on Auditing
MDFI multilateral development finance institution
MFI microfinance institution
OGAU Anticorruption Unit of the Office of the General Auditor
PAI project administration instruction
PCR project completion report
PMR project management report
PPAR project performance audit report
PPTA project preparatory technical assistance
RETA regional technical assistance
RRP report and recommendation of the President
SOE statement of expenditures
TA technical assistance
TOR terms of reference
1
In 2001, the IASB assumed responsibility from the International Accounting Standards
Committee for promulgating IAS. While the IASB standards are called International Finan-cial
Reporting Standards (IFRS), this Handbook uses the term IAS (in the interest of continuity).
v vv vv
Contents
1 Introduction 1
The Asian Development Bank 1
The Guidelines 1
MDFI Harmonization Efforts 2
ADB Approach to Anticorruption 2
This Handbook 3
Further Assistance 4
2 User Instructions 5
ADB Lending and Technical Assistance 5
EA Classifications and General Treatments 6
3 Preparing and Appraising Investment Projects 9
Introduction 9
Forecasting 9
The Project Cost Estimates Table 10
The Project Financing Plan 13
Financial Cost-Benefit Analyses 14
Financial Loan Covenants 15
4 Financial Management of Executing Agencies 17
Introduction 17
ADB Financial Management Assessments 18
General ADB Financial Management Expectations 19
Expectations of Revenue-Earning EAs 21
Expectations of Nonrevenue-Earning EAs 24
vi vi vi vi vi
5 Financial Reporting and Auditing 27
Introduction 27
Accounting Standards and Policies 27
Financial Reporting 30
Auditing Standards and Auditor Engagement 41
Submission of Financial Reports 50
Auditor Reports and Opinions 53
ADB Assistance to Improve Accounting and Auditing 58
6 Financial Institutions 59
Introduction 59
General Approaches and Expectations 59
ADB Approach to FI Reviews and Monitoring 60
Assessing FI Performance 61
FI Reporting and Auditing Issues 64
Appendixes
Appendix 1: Contents of the Guidelines 67
Appendix 2: Project Investment Plan 71
Appendix 3: Project Financing Plan 72
Appendix 4: Example of Accounting Policies 73
Appendix 5: Sample Project Monitoring Report 75
Appendix 6: Model Financial Statements: Service Organization 76
Appendix 7: Model Financial Statements:
Manufacturing Organization 80
Appendix 8: Model Auditor Terms of Reference:
Executing Agency Audit 85
Appendix 9: Model Auditor Terms of Reference:
Annual Project Accounts Audit 94
Appendix 10: Model Auditor Opinion for a Nonrevenue-Earning
Project 105
Appendix 11: Model Auditor Opinion for a Revenue-Earning
Agency 107
Appendix 12: Useful Reference Materials 109
1. Introduction
The Asian Development Bank
1.01. ADB is a multilateral development finance
institution (MDFI) dedicated to reducing poverty in
Asia and the Pacific. Our Charter (Articles of
Agreement) requires us to take measures to ensure
that the proceeds of any loan made, guaranteed or
participated in by ADB are “used only for the
purposes for which the loan was approved with due
attention to consideration of economy and
efficiency.” Moreover, ADB’s operations must be
guided by sound banking principles. Accordingly, we
have developed specific financial management and
reporting requirements for our borrowing members,
including their executing agencies (EAs), where
applicable.
The Guidelines
1.02. Financial Management and Analysis of
Projects, 2005 (the Guidelines) sets out ADB’s
requirements and procedures for the financial
management of ADB-Financed projects (see
Appendix 1). They also provide guidance on applying
these requirements.
1.03. The Guidelines are primarily for internal
ADB use, but are available to external parties in hard
copy, via the Internet (www.adb.org/documents/
guidelines/financial), and on CD-ROM.
Our poverty-fighting
operations in Asia and
the Pacific …
… are guided by sound
banking principles
We have internal
financial management
policies and
guidelines …
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2 22 22 Handbook for Borrowers on the Financial Management and Analysis of Projects
MDFI Harmonization Efforts
1.04. ADB and the other MDFIs—including the
World Bank—have similar objectives and engage in
similar activities, but have different financial
management approaches and requirements. These
variances create confusion among our developing
member countries (DMCs). They also impose
unnecessary compliance costs and divert limited
resources away from key priorities. In 2000, the work
began to reduce these differences. As of 2006,
agreements have been reached on common
diagnostics, auditing arrangements, financial
reporting arrangements, definitions of key ratios and
commitment to work together to improve financial
management of DMCs.
ADB Approach to Anticorruption
1.05. ADB defines corruption as the abuse of
public or private office for personal gain. This means
any behavior in which people in the public or private
sectors improperly and unlawfully enrich
themselves or those close to them, or induce others
to do so, by abusing their positions.
1.06. The purpose of ADB’s Anticorruption Policy
is to reduce the burden corruption exacts from the
governments and economies of the region. The
policy has three objectives: (i) support competitive
markets and effective public administration; (ii)
support explicit anticorruption efforts; and (iii)
ensure ADB-financed projects and its staff adhere
to the highest ethical standards.
1.07. The requirements and procedures set out
in this Handbook support the implementation of our
Anticor ruption Policy, which is available at
www.adb.org.
Corruption places a
burden on governments
and economies ……
which ADB’s
anticorruption approach
is intended to reduce
… and are working
hard to harmonize these
policies with other MDFIs
to reduce compliance
burdens on our DMCs
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1.08. ADB’s integrity is one of its strongest assets.
ADB affirms a zero tolerance policy when credible
evidence of fraud and corruption exists among ADB-
financed projects or its staff. You may report
allegations of fraud and corruption by contacting the
Anticorruption Unit of the Office of the General
Auditor (OGAU) by e-mail, telephone or facsimile.
Communication sent by these methods is accessible
only by OGAU staff:
E-mail : [email protected]
Telephone : (632) 632-5004
Fax : (632) 636-2152
1.09. You may also contact OGAU at the
following addresses. Please mark correspondence
“Strictly Confidential”.
Anticorruption Unit (OGAU)
Office of the General Auditor
Asian Development Bank
6 ADB Avenue
Mandaluyong City
1550 Metro Manila, Philippines
Mailing Address : P.O. Box 789, 0980 Manila
Philippines
This Handbook
1.10. This Handbook reflects progress on MDFI
harmonization, explains ADB financial management
policies and procedures, and is aimed at borrowers
and their EAs. These policies and procedures are
fully consistent with our anticorruption approach.
1.11. The provisions of this Handbook apply to
investment projects and project EAs and
implementing agencies (IAs). For the purposes of
this Handbook, investment projects include ADB-
Introduction 3 33 33
The requirements and
procedures set out in this
Handbook support the
implementation of our
Anticorruption Policy
This Handbook explains
our financial
management policies
and requirements
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4 44 44 Handbook for Borrowers on the Financial Management and Analysis of Projects
loan-financed projects and the identifiable
investment components of program and sector
loans. Please note that—unless stated otherwise—
the requirements for EAs also apply to IAs.
1.12. This Handbook is cross-referenced to the
Guidelines. For instance, [5.2.3.1.1] refers to that
Guidelines’ paragraph or section.
Further Assistance
1.13. For further information and guidance,
readers are encouraged to refer to the Guidelines in
the first instance; see
http://www.adb.org/documents/guidelines/financial
1.14. If you cannot resolve your question, please
contact the responsible ADB project officer.
Otherwise contact:
The Principal Financial Management Specialist
Regional and Sustainable Development Department
Asian Development Bank
Manila, Philippines
General Information : [email protected]
Telephone : (632) 632-4444
Fax : (632) 636-2193
Mailing Address : P.O. Box 789, 0980 Manila
Philippines
Further guidance on
applying these
requirements is available
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2. User Instructions
ADB gives technical
assistance and loans for
projects and programs of
high-development
priority
ADB Lending and Technical Assistance
2.01. Our Charter permits us to make,
participate in, or guarantee loans to our DMCs, to
any of their agencies or political subdivisions, and
to public or private enterprises operating within such
countries, as well as to international or regional
entities concerned with economic development in
the region. Loans are made only for projects or
programs of high development priority [2.2.1–2.2.2].
2.02. We have four primary lending types:
(i) project loans; (ii) sector loans; (iii) program
loans; and (iv) private sector loans, equities, and
guarantees. ADB’s technical assistance (TA)
operations are classified into three development
activities: (i) project preparatory technical assistance
(PPTA) to prepare a project, program loan, or sector
loan for financing by ADB and other external sources;
(ii) advisory technical assistance (ADTA) to finance
institution-building; plan-formulation; or
implementation, operation and management of an
ADB-financed project; or a sector-, policy-, or issues-
oriented study; and (iii) regional technical assistance
(RETA). We encourage cofinancing from official
funding agencies, export credit agencies and
commercial finance institutions [2.2.3–2.2.5].
2.03. In order to sharpen ADB’s capacity to
mobilize development finance and knowledge for
its DMCs, ADB has also recently introduced several
new financial instruments and modalities under the
“Innovation and Efficiency Initiative”. These are
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6 66 66 Handbook for Borrowers on the Financial Management and Analysis of Projects
aimed at reinforcing flexibility and client orientation
of ADB’s financial products.
EA Classifications and
General Treatments
2.04. EAs are agencies that may be involved in
designing, implementing, and/or operating a project.
Such agencies may be broadly classified as:
• public sector agencies, which include
central government line ministries,
departments, or agencies; and
provincial or state government
departments or agencies; and local
governments; or
• semiautonomous government
agencies, public sector enterprises, or
parastatal bodies such as agriculture or
industrial credit banks, fertilizer
corporations, public utilities, railways,
and port authorities.
2.05. ADB also classifies projects and EAs into
two distinct groups: nonrevenue-earning and
revenue-earning.
2.06. The term revenue-earning is applied to EAs
and projects that are implemented, and in most
cases operated, by autonomous or
semiautonomous EAs that are commercially
oriented, or that generate substantial revenues either
by consumer charges or by forms of sector-specific
local taxation (such as water supply or drainage
taxes, and have authority to decide the use of these
funds). EAs and projects that do not meet these
criteria are termed nonrevenue-earning.
ADB classifies EAs on the
basis of their autonomy
from government…
… and whether they are
commercially oriented or
generate substantial
revenues
Although ADB treats
revenue-earning and
nonrevenue-earning EAs
and projects
differently…
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2.07. Together with other MDFIs, ADB
encourages borrowers and EAs to adopt uniform
accounting and financial reporting standards.
However, some time will be required to achieve a
high level of uniformity. The following table illustrates
these categories and associated treatments [2.4].
…we encourage the
adoption of uniform
accounting and financial
reporting standards
User Instructions 7 77 77
Sector State-Owned (Public Sector) Private Sector
Type of Project, Nonrevenue-Earning Revenue-Earning (e.g., Power Supply)
Executing Agency or (e.g., Health, Education)
Implementing Agency Financial Institutions
Broad Approach and • Sound financial policies • Move toward best practice private
Requirements • Adequate accounting records sector management, internal
control and governance
• Proper internal control systems arrangements
• Timely reporting to management • Ensure that ongoing operations are
• Sound and timely auditing sustainable
• Gradual improvements in • Comply with National Accounting
financial reporting as capacity Standards
allows • Move toward reporting in
accordance with International
Accounting Standards
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3. Preparing and
Appraising Investment
Projects
Once investment projects
have been designed, ADB
generally appraises them
to ensure that they are
viable
Introduction
3.01. In some cases, ADB will appraise (review)
investment projects to ensure that they are
technically, financially and economically viable. We
consider: (i) national, sectoral, and local needs for
the investment; (ii) economic and financial
justifications for the proposed project;
(iii) sustainability; (iv) the extent to which the project
contributes to human and technological
advancement; (v) good governance aspects; and
(vi) whether we will be fulfilling our own
responsibilities as set out in the ADB Charter [3.1.1].
Forecasting
3.02. Forecasts are prepared of project
expenses, revenues, cash flows and other financial
items. ADB works with borrower’s agencies during
project identification, preparation and appraisal to
ensure that these forecasts are meaningful.
3.03. These forecasts should, ideally, be
prepared by the borrower’s agencies. However,
where ADB staff or PPTA consultants prepare
forecasts, it is essential that the borrower’s agencies
The forecasts of project
costs and revenues …
… are the borrower’s
responsibility
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10 10 10 10 10 Handbook for Borrowers on the Financial Management and Analysis of Projects
own these forecasts because they are ultimately
responsible for their accuracy [3.4.1.1].
3.04. ADB requires EAs to provide updated
forecasts after loan signing and at the start of project
implementation. These will be updated forecasts-
to-completion or—in the case of revenue-earning
projects—updated forecasts for a specified period.
The updated forecasts provide early warnings of
project problems so that timely corrective actions
can be taken. For revenue-earning projects, ADB will
determine the period during which EAs will be
required to provide updated forecasts, and the
requirement will be specified in the loan agreement
[3.4.1.2].
The Project Cost Estimates Table
3.05. A Project Cost Estimates Table, which
includes all project costs, is prepared at the PPTA
stage (see Appendix 2). It should provide an
understanding of the principal project cost
components during appraisal, and useful
information for project cost control purposes during
implementation. It includes an allowance for
contingencies. The information provided in the
Project Cost Estimates Table is considered at project
appraisal and during implementation by the
borrower, the EA and ADB [3.4.3.1–3.4.4.4.5].
Eligible Cost Under ADB Guidelines
3.06. Under amended cost eligibility guidelines,
ADB can now finance reasonable costs of taxes and
duties related to project expenditures, acquisition
of land and rights of way, late payment charges
imposed by suppliers and contractors, bank charges,
food expenditures, interest during construction on
non-ADB loans, second hand goods, lease financing
costs and local transport and insurance costs.
These forecasts will be
revised periodically…
…so that potential
problems can be
identified and addressed
in a timely manner
All project costs are
presented in the Project
Cost Estimates Table…
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However, ADB financing of these is subject to the
requirements as laid out in the Cost Sharing and
Eligibility of Expenditures for ADB Financing, Staff
Instructions paper, 15 March 2006.
Local and Foreign Costs
3.07. There is no longer a distinction between
local and foreign currency costs for purposes of ADB
financing and disbursement. However, for the purpose
of presentation, a summary of the costs by component
is to be provided in the main Report and
Recommendation of the President (RRP), as “Project
Investment Plan”, while detailed costs breakdown, by
local and foreign currency and per component and/or
expenditure category, is to be shown in the core RRP
appendices as “Detailed Cost Estimates” [3.4.3.1.1].
Date of the Base Cost Estimates
3.08. The date of the estimates presented in the
Project Cost Estimates Table will be specified in the
project RRP. ADB requires that these estimates are
reasonably current. If the date of the estimates:
• is less than 6 months before the loan is
presented to ADB’s Board of Directors—
the estimates are acceptable.
• is 6-18 months before Board
presentation—the estimates should be
revised by indexation.
• is more than 18 months before Board
presentation—the costs should be re-
appraised [3.4.3.3.1].
Treatment of Financial Charges
During Development
3.09. Financial charges during development
(FCDDs) can include interest, commitment charges
and front-end fees. FCDDs must be shown in the
Project Cost Estimates Table [3.4.3.4.1].
There is no longer a
distinction between local
and foreign currency
costs ...
The Project Cost Estimates
Table may have to be
revised so that the
estimates are up-to-date
Preparing and Appraising Investment Projects 11 11 11 11 11
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12 12 12 12 12 Handbook for Borrowers on the Financial Management and Analysis of Projects
Requests for Retroactive Financing
3.10. Retroactive financing refers to ADB
financing of project expenditures incurred and paid
for by the borrower or recipient during or after
appraisal but before an ADB loan or TA agreement
becomes effective.
3.11. Generally, no funds can be disbursed for
expenses incurred before the loan agreement
becomes effective. However, based on a prior
agreement between ADB and the borrower, a special
clause authorizing the financing of certain expenses
incurred before this date may be included in the loan
agreement. This clause will show the amount of the
retroactive financing, the category of expenses
concerned, and the date from which the expenses
may be incurred [3.4.3.5].
Determining Contingencies
3.12. Contingencies are an integral part of the
expected total project cost and normally are
necessary for all project items involving significant
expenditures. Contingency allowances should
reflect probable (forecast) physical and price
changes and costs arising from special risks that can
reasonably be expected to increase the base cost
estimate. Contingency allowances should be
separately identified in the Project Cost Estimates
Table [3.4.4.1].
3.13. Allowances for physical contingencies
reflect expected increases in the base cost estimates
due to changes in quantities, methods, and period
of implementation. Physical contingencies should
be calculated in foreign and local cost terms, and
expressed as percentages of the foreign and local
base costs in the Project Cost Estimates Table
[3.4.4.2].
We may agree to
retroactively finance
project expenditures
… on the basis of prior
agreement and a special
clause in the loan
agreement
The Project Cost Estimates
Table will include
allowances for
contingencies, comprising
…
… physical
contingencies and …
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3.14. Allowances for price contingencies reflect
forecast increases in project base costs and physical
contingencies due to changes in unit costs for the
various project components beyond the date of the
base cost estimates. Price contingencies should be
expressed as percentages of the base costs plus
physical contingencies, separately for the local and
foreign expenditures of the project, and for the
project as a whole [3.4.4.3].
The Project Financing Plan
3.15. The Project Cost Estimates Table identifies
the total financing required for a project. The Project
Financing Plan illustrates project-funding
requirements and identifies proposed funding
sources (see Appendix 3) [3.4.6].
3.16. Funds required for the proposed project
will typically be classified into:
• capital expenditures,
• operating expenditures, and
• financial charges during development
[3.4.6.6].
3.17. Proposed project-funding sources may
include:
• the proposed ADB loan,
• other loans,
• equity or capital contributions,
• subsidies for operations, and
• internally-generated cash [3.4.6.6].
… price contingencies
The Project Financing
Plan …
… illustrates project-
funding requirements
… and identifies
proposed funding sources
Preparing and Appraising Investment Projects 13 13 13 13 13
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14 14 14 14 14 Handbook for Borrowers on the Financial Management and Analysis of Projects
Financial Cost-Benefit Analyses
3.18. ADB requires that financial and economic
analyses be undertaken of projects. Both analyses
have the same objective—to assess whether the
proposed investment is viable. Project financial
analysis examines the adequacy of returns to the
project-operating entity and to the project
participants. Economic analysis measures the effect
of the project on the national economy, as a whole
[3.5.1.1].
3.19. In financial analysis, all project-related
expenditures and revenues are considered. This is
necessary to: (i) assess the degree to which a project
will generate revenues sufficient to meet its financial
obligations; (ii) assess the incentives for producers;
and (iii) ensure that demand or output forecasts on
which the economic analysis is based are consistent
with financial charges or available budget resources
[3.5.1.3].
3.20. Economic analysis attempts to assess a
project’s impact on improving economic welfare. It
assesses a project in the context of the national
economy, rather than for the project participants or
the EA implementing the project [3.5.1.1–3.5.1.3].
3.21. ADB’s financial analysis process has six
steps:
• preparing project cost estimates [3.4.3],
• forecasting incremental project net
cash flows [3.4.7],
• determining the appropriate discount
rate [3.5.2],
• calculating the financial net present
value (FNPV) [3.5.3],
ADB-financed projects
must be financially and
economically viable …
… because DMCs should
not take on unproductive
debt
ADB has a systematic
approach to financial
cost-benefit analyses
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• calculating the financial internal rate of
return (FIRR) [3.5.3], and
• undertaking risk and sensitivity
analyses [3.5.4].
Financial Loan Covenants
3.22. Most DMCs are underserved by
infrastructure services, particularly in poor and rural
areas. In areas that do have service, systems are
often badly maintained and service is unreliable.
Common problems include: (i) below-cost tariffs
and inappropriate tariff design; (ii) inefficient
operations, with little incentive to improve efficiency;
(iii) low billing and collection levels; and
(iv) significant, but poorly-targeted subsidization.
These problems can lead to financial losses,
deterioration of facilities and limited funding for new
investment.
3.23. To assist EAs to achieve their financial
objectives—as well as governmental economic
objectives that are being supported by ADB loans—
ADB seeks assurance that the operational objectives
of an EA agreed with the borrower would be met at
least through the life of the project. These objectives
are translated into loan covenants [3.6.1.1–3.6.4.4.2].
3.24. ADB financial loan covenants are classified
into:
• operating covenants [3.6.2],
• capital structure covenants [3.6.3], and
• liquidity covenants [3.6.4].
3.25. Financial loan covenants are designed to:
(i) support socioeconomic development;
(ii) promote financial viability, financial performance
and prudent financial management of the EA;
We seek assurance that
projects will be
sustainable …
… by agreeing financial
loan covenants that are
designed to…
… enhance EA
performance, and
… ensure that loan
proceeds are used
effectively
Preparing and Appraising Investment Projects 15 15 15 15 15
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16 16 16 16 16 Handbook for Borrowers on the Financial Management and Analysis of Projects
(iii) develop local capability; (iv) assist the EA to
achieve a creditworthy status to facilitate
acceptance in capital markets; (v) protect the
borrower ’s and ADB’s financial interests; and
(vi) provide a basis for monitoring by government
regulatory agencies, and ADB, of the EA’s financial
performance [3.6.1.2].
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4. Financial Management
of Executing Agencies
Introduction
4.01. The primary objective of the financial
management process is to optimize financial and
economic benefits from an investment. Financial
management systems include the policies and
practices regarding financial planning,
programming, accounting, reporting, auditing,
funding, organization, and personnel of a project or
of an EA [4.1].
4.02. EAs should plan, develop and maintain
financial management systems that can provide
timely and reliable information suitable for
monitoring the project’s and the EA’s progress
toward ADB-agreed objectives. The information
should also provide early warnings of project
implementation and EA management problems.
4.03. EAs should also have an effective control
environment, including internal control systems that
provide assurance that financial records are reliable
and complete, including adherence to management
policies, orderly and efficient conduct of the
borrower’s business, and proper recording and
safeguarding of assets and resources [4.2.1].
4.04. ADB assesses the financial policies and the
capacity of the financial systems practiced or
proposed by the borrower/EA to support project
Sound financial
management systems
help ensure that project
benefits are optimized
They should provide
timely and accurate
information …
… and operate within
an effective control
environment
We assess the
effectiveness of these
systems
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18 18 18 18 18 Handbook for Borrowers on the Financial Management and Analysis of Projects
implementation and operation. The EA should be
capable of providing correct and timely information
on project implementation progress and, where
appropriate, on its operation. ADB must also be
assured that the expenditures incurred on a project
are used for the purposes stated in the loan
agreement [4.1–4.2.1.7].
ADB Financial Management
Assessments
Assessment Objectives
4.05. The general objective of ADB assessments
is to ensure that EAs are technically, managerially,
and financially capable of efficiently and effectively
implementing the proposed projects or programs.
The specific appraisal objectives are to: (i)
determine whether institutional capacity, in terms
of financial management, justifies loan approval; (ii)
identify the institution’s financial management
development needs—both project related and long
term—that should be addressed either as a project
component or by TA; and (iii) confirm that the
financial management system is sustainable [4.1.3].
Assessment Scope and General Approach
4.06. The scope of the financial management
assessment will depend upon the extent and type
of dealings ADB has with the EA concerned, the EA’s
experience in implementing projects, and the extent
and nature of previous institutional strengthening
[4.2.1.7].
4.07. The financial management assessment
will generally include: (i) analyzing the EA’s structure
and management framework with regard to
financial management; (ii) assessing the agency’s
resources, including the number, quality, and
Our objective is to assess
the EA’s financial
management capacity to
implement projects
While the assessment’s
exact scope will depend
on our involvement with
the EA …
… it will involve a
review of the EA’s financial
management capacity
and identification of any
specific deficiencies
Mainbody.pmd 08/11/2006, 1:46 PM 18
technical capabilities of its staff, the extent of
financial and budgetary support it obtains, the nature
of technology, equipment, and software in use;
(iii) assessing the agency’s operating results; and
(iv) identifying specific performance shortfalls or
variances [4.2.1.7].
4.08. Finally, ADB will examine performance
shortfalls to identify specific institutional deficiencies
and possible institutional-strengthening actions.
Deficiencies will be classified into those relating to
the management framework and those due to
resource constraints [4.2.1.7].
General ADB Financial
Management Expectations
Financial Policies
4.09. ADB requires that projects be designed,
developed and operated within the framework of
the financial policies, strategies and systems
prescribed by those government institutions that are
responsible for national and sectoral economic and
financial planning [4.2.4].
Project Objectives
4.10. Project objectives should be clearly
defined. They should include sustainable economic
goals, financial objectives, time-bound delivery of
benefits, and financial viability. As a minimum,
financial viability means that adequate funds will be
available to finance day-to-day operations and
maintenance [4.2.4.1.2].
Project Implementation Plans
4.11. ADB also recommends that borrowers
develop project implementation plans. Project plans
help borrowers set realistic goals for each operating
ADB then considers
possible actions to
address those identified
deficiencies
Project operations should
be consistent with
government financial
policies …
… project objectives
should be clearly
defined …
… and project
implementation plans
should be developed
Financial Management of Executing Agencies 19 19 19 19 19
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20 20 20 20 20 Handbook for Borrowers on the Financial Management and Analysis of Projects
period. They also establish the basis for preparing
and implementing project financial management
requirements, internal controls, and financial
reporting arrangements.
4.12. Project plans should include:
• time-bound implementation tasks for
each project component (including TA
and training);
• procurement actions with target dates
for each step;
• disbursement schedules for each
project component and expenditure
category;
• funding schedules reflecting expected
ADB financing, government
counterpart funds and cofinancing
arrangements;
• actions required to achieve project
development objectives; and
• actions to establish project accounting
and financial management systems
(including auditing arrangements).
Disbursement Procedures and
Fund-Flow Mechanisms
4.13. Loan disbursement is a key element in the
project cycle. ADB expects that proposed
disbursement procedures and fund-flow
mechanisms will be suitable for the particular
project. ADB procedures for withdrawal of loan
proceeds are standardized to facilitate
disbursements under most loans. Disbursement
procedures comprise four major types:
• direct payment procedure where ADB,
at the borrower ’s request, pays a
designated beneficiary directly;
Disbursement procedures
and fund-flow
mechanisms should be
appropriate to DMC and
project circumstances
Mainbody.pmd 08/11/2006, 1:46 PM 20
• commitment procedure where ADB, at
the borrower’s request, provides an
irrevocable undertaking to reimburse
a commercial bank for payments made
or to be made to a supplier against a
letter of credit financed from the loan
account;
• reimbursement procedure where ADB
pays from the loan account to the
borrower’s account or, in some cases,
to the project account for eligible
expenditures which have been
incurred and paid for by the project out
of its budget allocation or its own
resources; and
• imprest fund procedure where ADB
makes an advance disbursement from
the loan account for deposit to an
Imprest Account to be used exclusively
for ADB’s share of eligible
expenditures.
1
Expectations of Revenue-Earning EAs
4.14. This section describes relevant ADB
expectations of revenue-earning EAs and projects
(see paragraphs 2.05–2.07).
Planning and Budgeting
4.15. Long-, medium- and short-term planning
should be the primar y elements in financial
1
The Loan Disbursement Handbook describes ADB loan
di sbursement procedures i n detai l (see www.adb.org).
Furthermore, the Loan Financial Information Web Service (http://
lfis.adb.org) is designed to meet users’ needs for accurate, on-
demand financial information about loans to facilitate decision-
making. The website provides detailed loan portfolio data and
selected reports with facilities for downloading. Estimated debt
service payments and disbursement manuals directly related to
loan operations are also available to specified users.
We expect revenue-
earning EAs and
projects …
… to have satisfactory
planning and budgeting
procedures …
Financial Management of Executing Agencies 21 21 21 21 21
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22 22 22 22 22 Handbook for Borrowers on the Financial Management and Analysis of Projects
management. Long- and medium-term plans are
often referred to as corporate plans. Short-term
financial plans are usually called budgets. ADB will
seek assurance that satisfactory plans and budgets
will be prepared in a regular, orderly and timely
manner [4.2.8.3].
Accounting Policies
4.16. ADB will consider the acceptability of
accounting policies, including standards of financial
reporting and general accounting practices. ADB
expects these policies to be materially consistent
with accepted national or international standards
and practices [4.2.8.4].
Financial Regulations
4.17. A sound accounting system is under-
pinned by financial regulations. These are usually
designed to define the objectives of—and responsi-
bilities within—the financial management system.
ADB expects acceptable financial regulations to be
in place [4.2.8.5, 4.2.8.9].
Accounting Information Systems
4.18. To ensure accountability for project
implementation funds, each project (and, where
applicable, each EA) should have an adequate
accounting and internal control system for recording
and reporting project-related financial transactions
from the time that project expenditures
commence—which could be before ADB Board
approval of the loan. There are no exceptions to this
requirement [4.2.8.6.3].
… and consistent
accounting policies
Acceptable financial
regulations should be in
place …
… and accounting
information systems must
be adequate
Mainbody.pmd 08/11/2006, 1:46 PM 22
4.19. Specifically, accounting information
systems should:
• be simple to operate;
• require staff to operate with minimum
supervision, and have the necessary
personnel trained to operate the system
from project start-up;
• at a minimum, provide records of
project receipts and expenditures
generally from the date of first
transactions;
• where available, have information
technology systems that are modern,
efficiently managed, and fully
responsive to the needs of
management of the EA and the
proposed project;
• have adequate internal checks and
controls; be able to balance financial
data frequently and to report project
financial results at intervals and within
the time frame required by ADB;
• where needed, meet requirements for
Statements of Expenditure (SOEs) and
Imprest Fund records; and
• be capable of expansion, when
necessary, to meet the increasing
demands for financial data arising from
expanding project activities or entity
operations.
Internal Controls and Internal Audit
4.20. ADB’s primary concern is to be assured
that internal controls exist and are monitored
regularly to ensure they are efficient and responsive
to current operations [4.2.8.7–4.2.8.8.5].
Accounting information
systems should be simple
to operate and be
appropriate to EA and
project needs
Internal controls should
be effective …
Financial Management of Executing Agencies 23 23 23 23 23
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24 24 24 24 24 Handbook for Borrowers on the Financial Management and Analysis of Projects
Management Accounting
4.21. A management accounting system should
collect and promptly report financial and related
statistical information on all aspects of the operating
performance of an agency’s operations to the
various management levels, supplying each level
with the necessary details at the appropriate times.
4.22. ADB seeks assurance that the EA’s
management accounting system can produce the
annual and periodic financial statements, including
the statements for audit. It should also incorporate
procedures for recording current budgeting and
financial planning data, record keeping and reports,
and cost accounting (including cost control and
analysis) for recording costs [4.2.8.10].
Expectations of Nonrevenue-Earning EAs
4.23. The financial management arrangements
of nonrevenue-earning projects and EAs can vary
substantially between DMCs. Many will use simple,
cash-based accounting. This section describes
relevant ADB expectations of nonrevenue-earning
projects and EAs (see paragraphs 2.05–2.07).
Financial Management and Accounting Systems
4.24. For nonrevenue-earning EAs, the financial
management system should support accounting
procedures throughout project implementation [4.2.9.2].
4.25. In nonrevenue-earning projects, the system
should be kept simple. An analytical cashbook,
showing receipts and payments (classified by project
activity and payee), could form a satisfactory basic
accounting tool. It could be supplemented by
additional documents (e.g., asset registers, contract
registers, and inventory systems) as the needs for
these arise during implementation [4.2.9.2.3].
… and management
accounting systems
should be adequate
Many nonrevenue-
earning projects will have
simple financial
management
arrangements
Nevertheless, basic
accounting records should
be maintained…
Mainbody.pmd 08/11/2006, 1:46 PM 24
4.26. A basic system should include internal
controls, which separate responsibilities between
those who approve budgets, authorize allotments,
approve budgeted expenditures, make cash
payments, keep the books of account, and reconcile
cash and bank balances with the books of account.
Where staff numbers are too small to adequately
separate responsibilities, alternative arrangements
should be implemented. For instance, actions might
be jointly executed by two people (e.g., two
signatures on checks) [4.2.9.2.5].
Planning and Budgeting
4.27. ADB’s expectations of planning and
budgetary control for revenue-earning EAs (see
paragraph 4.15) are the same for nonrevenue-
earning EAs [4.2.9.5].
Financial Accounting and Costing
4.28. ADB prefers that an EA maintains at least
the records described in paragraphs 4.31–4.33, but
in some accounting systems many such records—
particularly control accounts—may not be
maintained [4.2.9.6.1].
4.29. EA systems must support timely disclosure
of: (i) cumulative and annual project costs by
components agreed on between ADB and the EA
for each project, (ii) operating costs analyzed in
sufficient detail to provide control of incremental
current expenditures, and (iii) the basis for all types
of claims for disbursement of ADB loans [4.2.9.6.4].
Internal Control
4.30. If internal control mechanisms are
unsatisfactory, and the effectiveness of the external
audit is not established, then the project will generally
not be allowed to proceed until the borrower/EA
agrees to strengthen these mechanisms [4.2.9.7].
… appropriate internal
controls should be
established …
… and planning and
budgeting systems should
be adequate
EA systems should
support timely disclosure
of project transactions
Projects will generally not
proceed until control
mechanisms are
satisfactory
Financial Management of Executing Agencies 25 25 25 25 25
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26 26 26 26 26 Handbook for Borrowers on the Financial Management and Analysis of Projects
A Simple System for a Nonrevenue-Earning Project
4.31. The following is a simple system for a
nonrevenue-earning project. It should be modified
as necessary to meet specific project and ADB
requirements.
• Project Entity Bank Account Record, by
categories of expenditures
• Project Entity Cash Payment Record, by
categories of expenditures¡ Record of
Project Expenditures incurred but not
paid by categories of expenditures
• Record of Project Expenditures by Third
Parties by categories of expenditures
• A Summary of the above to produce
Total Project Expenditures by
categories of expenditures
• Record of Sources of Project Financing
including ADB (and other lenders’)
loan disbursement claims [4.2.9.8.1]
4.32. It is also desirable that a simple general
ledger be used to record payment totals and receipt
totals (by week or by month). This ledger, in addition
to recording summary amounts for the above
accounts, should record assets, liabilities, contracts
and currency transactions [4.2.9.8.2].
4.33. Corrections and adjustments to the data
entered in the basic records can be made at any
time before entries are summarized in general
ledger entries. Changes to data already recorded in
the General Ledger will need special entries in that
ledger, preferably using journals [4.2.9.8.3].
A simple system for a
nonrevenue-earning
project will be based on
unsophisticated
accounting records…
…which will ideally be
supplemented by a
general ledger that
includes additional
balances and information
Mainbody.pmd 08/11/2006, 1:46 PM 26
5. Financial Reporting
and Auditing
Introduction
5.01. ADB requires accurate and timely financial
information from its borrowers to be assured that
project expenditures were used for the purposes
stated in the loan agreement and to satisfy ADB
regarding project and EA economy and efficiency.
5.02. To support this requirement, ADB reviews
accounting and auditing arrangements during
project preparation to ensure that these meet
acceptable standards and practices. Moreover, ADB
loan and project agreements include relevant
financial management and audit covenants.
Accounting Standards and Policies
Introduction
5.03. ADB is concerned about the accurate
interpretation of the financial position and
performance of its borrowers and EAs. However, the
preparation and reporting of accounting information
vary widely among countries and contributes to a
substantial lack of transparency and consistency in
financial reporting [5.2.1].
5.04. ADB, together with other MDFIs,
encourages borrowers and EAs to adopt uniform
standards of accounting and financial reporting. In
this respect, ADB recommends that:
To ensure that ADB
receives accurate and
timely financial
information…
… we review accounting
and auditing
arrangements and agree
relevant covenants
Because financial
reporting practices vary
widely among DMCs …
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28 28 28 28 28 Handbook for Borrowers on the Financial Management and Analysis of Projects
• Revenue-earning EAs comply with
national accounting standards and
move toward reporting in accordance
with the International Accounting
Standards (IAS), as capacity and
resources allow. However, some time
will be required to achieve a high level
of uniformity.
• Nonrevenue-earning EAs in the public
sector should follow and maintain
sound financial policies, adequate
accounting records, proper internal
control systems, timely reporting to
management, and sound auditing
practices [5.2.1.3].
ADB Accounting Policy Requirements
5.05. Accounting policies are the specific
principles, bases, conventions, rules and practices
adopted by an entity in preparing and presenting
financial statements. Financial statements must
include a Statement of Accounting Policies. An
example is presented in Appendix 4 [5.2.3.5].
5.06. ADB will seek to agree the acceptable
accounting standards and policies governing the
preparation of financial statements not later than at
loan negotiations [5.2.3.1.2].
Nonrevenue-Earning EAs
5.07. In the case of nonrevenue-earning EAs,
Statements of Accounting Policies are likely to be
simple. For instance, they may cover only cash-
recognition policies [5.2.3.5].
… ADB encourages the
adoption of uniform
standards of accounting
and financial reporting
Financial statements
must include a statement
of accounting policies
… that is acceptable to
ADB
This may be quite simple
for a nonrevenue-earning
EA
Mainbody.pmd 08/11/2006, 1:46 PM 28
Revenue-Earning EAs
5.08. In general, financial statements for private
sector companies and organizations, and for
revenue-earning public sector EAs, should be
prepared in accordance with IAS-compliant
accounting policies. Alternatively, ADB may accept
audited annual financial statements of projects or
EAs that are based on national or other defined
standards, provided that the Notes to the Financial
Statements include realignments and adjustments
of the financial information in the audited annual
financial statements to provide a report in
accordance with IASs [5.2.3.1.2].
5.09. ADB therefore recommends that all public
and private sector revenue-earning EAs should move
to account and report for ADB-financed projects on
the basis of IAS-compliant accounting policies
current at the date of loan negotiations, or any other
date in the project implementation period agreed
between ADB and the borrower (see paragraph
5.04). Borrowers and EAs should adopt IAS-
compliant accounting policies by an agreed date.
Until this time, financial statements should be
prepared in accordance with a set of accounting
policies acceptable to ADB and noted in the minutes
of loan negotiations [5.2.3.1.3].
5.10. In some cases, national accounting
standards and practices will not conform to
accepted international standards. Where only minor
items are involved (for instance, overhead allocation
methods or inventory-valuation policies), the
continued use of these standards and practices may
be acceptable so long as the variances are quantified
and disclosed in the Notes to the Financial Statement
and in the Auditor’s Report [5.2.3.2.2–5.2.3.2.3].
But, for most revenue-
earning EAs, ADB expects
IAS-compliant accounting
policies …
… these may take time
to be introduced
All significant variances
should be quantified
Financial Reporting and Auditing 29 29 29 29 29
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30 30 30 30 30 Handbook for Borrowers on the Financial Management and Analysis of Projects
5.11. ADB recognizes that some time will be
required for borrowers and EAs to adopt IAS-
compliant accounting policies and will negotiate
with existing borrowers on a project-by-project basis
for the timing of their introduction [5.2.3.2.4].
Financial Reporting
Introduction
5.12. To ensure that adequate, timely, and
reliable information is provided for project
monitoring purposes, ADB seeks early agreement
to receive acceptable interim and annual Audited
Financial Statements for each financial year [5.3.1.1].
5.13. ADB typically requires the submission of
periodic progress reports, including financial reports,
covering:
• the progressive interim, annual, and
final costs of a project;
• the financial performance and financial
position of an EA (where appropriate);
• accountability for the funds, including
ADB loans, provided for project
implementation;
• the bases for disbursements of ADB
loan proceeds;
• the extent of compliance with financial
and related covenants; and
• the effectiveness of project-related
financial management and accounting
systems as specified by ADB and
agreed to by the borrower [5.3.1.2].
5.14. Borrowers and EAs should notify relevant
parties of ADB’s requirements, including:
(i) responsible government ministries;
(ii) government auditors mandated by law to audit
For existing projects, the
introduction of these
requirements will be
negotiated on a case-by-
case basis
ADB seeks to receive
acceptable interim and
annual audited financial
statements
Periodic progress reports
are required on financial
matters and compliance
with agreed covenants
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EA accounts; and (iii) private auditors acting on
behalf of government auditors [5.3.1.4].
Content and Timing of Financial Reporting
Universal ADB Requirements
5.15. The following basic principles apply to all
interim and annual project financial statements
issued by borrowers:
• English-language presentation [5.3.2.6
and 5.3.2.8];
• disclosure of full accountability for all
funds of the borrower, other donors
and lenders, and ADB;
• compliance with loan covenants and ADB
requirements for project management;
• adequate disclosure of all material
information; and
• a true and fair view, or a fair
presentation in all material respects, of
the financial performance and status
of the project and of the EA (where
applicable) [5.3.2.2].
5.16. In addition, the following fundamental
principles apply to annual financial statements: (i)
a clear statement on the accounting policies and
accounting standards adopted; and (ii) the results
of an independent review of the financial accounts
and financial management systems by an auditor
acceptable to ADB [5.3.2.3].
5.17. Interim and annual financial statements
relating to each project should show sufficient
information to identify separately the transactions
relating to the reporting year and the cumulative
transactions from the start-up date [5.3.2.4].
All interim and annual
financial statements
must be presented in
English …
… and annual financial
statements must be
audited
Annual and cumulative
balances should be
disclosed ...
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32 32 32 32 32 Handbook for Borrowers on the Financial Management and Analysis of Projects
5.18. Interim and annual statements may
combine financial transactions of a project with
those of the EA, where the EA was established solely
to develop the project [5.3.2.6].
5.19. Where an EA is responsible for
implementing defined subprojects, separate
financial statements should be provided for each
defined component together with a consolidated
financial statement for the complete project. Where
an EA is responsible for developing more than one
project, common or joint project financial
transactions of the agency may be apportioned and
allocated to each project on a basis defined in the
Notes to the Financial Statements [5.3.2.7].
5.20. Borrowers are asked to provide interim
and audited Annual Financial Statements in
accordance with an ADB-agreed timetable. Interim
financial reports are normally required at intervals
of 3, 4 or 6 months of each financial year. Audited
financial statements (for the EA, project accounts,
and imprest fund as applicable) should be submitted
to ADB not more than 6 months following the end
of the fiscal year or project closing date (whichever
is first) [5.3.2.9].
5.21. Where Audited Financial Statements are
to be first submitted to a government legislature—
with the risk of delaying provision of the Audited
Financial Statements to ADB—a draft thereof
(certified by the chief financial officer and the
auditor) should be submitted to ADB within the
required reporting timetable, with subsequent
confirmation after they have been ratified by the
legislature [5.3.2.10].
… and separate
financial statements
should be provided for
each subproject
Audited Financial
Statements should be
submitted to ADB not
more than 6 months
following the end of the
fiscal year or project
closing date
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5.22. Interim and annual financial statements
should normally be presented in the local currency,
with the basis for translation of any foreign exchange
transactions or commitments explicitly stated
[5.3.2.11].
Specific Requirements for
Nonrevenue-Earning Projects
5.23. ADB recognizes that many project
financial statements—particularly those prepared for
nonrevenue-earning projects—are of a special
purpose nature. Consequently, ADB requires that
financial information submitted by nonrevenue-
earning entities adhere to an appropriately designed
format acceptable to ADB [5.3.2.1].
5.24. Audited annual financial statements of
nonrevenue-earning projects are required for each
financial year of project development and
implementation [5.3.2.6].
Specific Requirements for Revenue-Earning Projects
5.25. For a revenue-earning project, ADB
requires audited annual financial statements of the
project and of the EA for the period of the loan. Along
with the audit report which expresses the audit
opinion following the audit of the annual financial
statement, ADB also requires a management letter,
by agency if there is more than one EA, from the
auditors. The reports on the project may be
incorporated within EA financial statements
provided that the statements explicitly describe the
project’s financial status and performance for the
financial year, the previous financial year and from
start-up. Interim financial reporting should follow the
format of the annual financial statements, but should
cease on completion of ADB disbursements
[5.3.2.8].
Financial statements should
(normally) be presented in
the local currency
For nonrevenue-earning
projects, audited annual
statements are required
for each year of project
development and
implementation
The financial statements
of revenue-earning
projects may be
incorporated within the
EA’s financial statements
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34 34 34 34 34 Handbook for Borrowers on the Financial Management and Analysis of Projects
Accounting Statements and Financial Reports
5.26. The table on the opposite page summa-
rizes the financial reporting requirements for
projects and EAs. While the reporting requirements
for revenue-earning projects and EAs are uniform,
those for nonrevenue-earning projects and EAs are
not [5.3.3.1].
5.27. The most significant difference among the
financial reports of nonrevenue-earning projects and
EAs depends on whether entities use the accrual or
the cash accounting basis.
• Under the cash basis of accounting,
nonfinancial assets (for instance, fixed
assets, receivables, and inventories)
will not be systematically recorded.
Consequently, the information that is
necessar y to prepare Income
Statements and Balance Sheets will not
be available; instead, Statements of
Cash Receipts and Payments will be
prepared.
• Where accrual accounting is used,
Statements of Income and Expenses
will be prepared along with Balance
Sheets. Accrual statements should
always be supplemented with a Cash
Flow Statement. While many ADB
DMCs have signaled their intention to
adopt the accrual basis of accounting,
this will take many years. However,
nonrevenue-earning entities in some
countries that have historically used the
Soviet Accounting System (e.g.,
Uzbekistan), may prepare accrual-
based financial statements [5.3.3.2].
The financial reporting
requirements for revenue
and non-revenue
projects…
… and EAs usually
differ…
… the most significant
difference is that many
nonrevenue-earning
projects and EAs use cash
accounting
Mainbody.pmd 08/11/2006, 1:46 PM 34
Accounting Statement
Nonrevenue-Earning
Projects and EAs
Revenue-Earning
Projects and EAs
Interim
(PMRs)
Annual
Audited
Interim
(PMRs)
Annual
Audited
Statement of Accounting/
Financial Policies
… …
Statement of Income
(Cash Receipts)
… …
Statement of Expenses
(Cash Payments)
… …
Cash Flow Statement note (a) note (a)
Imprest Account
Statement
Statement of Expenditures
Income Statement
These statements are
usually not prepared, as
most nonrevenue-earning
projects cur rently use the
cash basis of accounting
Balance Sheet
Notes to the Financial
Statements
note (b) note (b) note (b) note (b)
Other Information note (c) note (c) note (c) note (c)
5.28. Statement of Accounting or Financial Policies.
Irrespective of whether the cash or accrual
accounting basis is used, a clear statement of the
accounting or financial policies that underlie the
accounting statements must be provided [5.3.3.4].
5.29. The Statement of Income (Cash Receipts)
shows the year’s complete financial information and
cumulative data from project start-up. Where the
cash accounting basis is followed, the opening and
closing cash balances should be shown [5.3.3.5]
A clear statement of
accounting policies must
be provided
EA = executing agency; PMR = project management report.
(a) The content and format of Cash Flow Statements for nonrevenue-earning projects (and EAs) will
not necessarily conform to IAS or to national accounting standards.
(b) The notes to the financial statements provide further breakdowns or explanations of the information
provided in the main financial statements.
(c) The scope and nature of other information will be negotiated between ADB and the borrower.
Accounting Statements and Financial Reports
Financial Reporting and Auditing 35 35 35 35 35
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36 36 36 36 36 Handbook for Borrowers on the Financial Management and Analysis of Projects
5.30. The Statement of Expenses (Cash
Payments) shows the year’s financial information
and cumulative totals from project start-up to the
current date. Where the accrual basis of accounting
is used, this statement will include noncash items,
such as depreciation [5.3.3.6].
5.31. The Cash Flow Statement should include:
• sources of project financing (for
example, ADB and government
contributions) by disbursement
methods (for example, direct payment,
imprest account);
• uses of funds summarized under
project disbursement categories as per
the loan agreement (for example:
equipment, civil works, consultant
services and training;
• others, which may be further
subdivided following start of project
implementation); and
• the opening and closing cash balances
[5.3.3.7].
5.32. The Imprest Account Statement
summarizes ADB’s advances and replenishments,
less amounts withdrawn by the project entity,
showing the remaining cash balance in the Imprest
Account [5.3.3.8].
5.33. Bank statements should be provided for
each Imprest Account (where used). Each bank
statement should summarize the current year’s
advances and replenishments, interest earned on
balances, less withdrawals for project expenditures.
The first account is used to receive money from ADB
for the credit of the “Project Imprest Account” and
the second may be used by the project for local
The Cash Flow Statement
should disclose financing
sources and payments in
accordance with
disbursement categories
The Imprest Account
Statement summarizes
advances and
replenishments, less
withdrawals and the
remaining cash balance
in the Imprest Account
Mainbody.pmd 08/11/2006, 1:46 PM 36
operating purposes (Second Generation Imprest
Account, SGIA). The Project Imprest Account is to
be used to replenish the SGIA (when used). It is
necessary to attach Reconciliation Statements to
reflect in-transit items between ADB and the Imprest
Account and between Imprest Account and the
SGIA. The third financial statement is a detailed
statement of transactions of the Imprest Account’s
Operating Account(s). This is to be generated by the
EA, where the Imprest Account is used to make
direct payments in local and foreign currency
[5.3.3.9].
5.34. The Statement of Expenditures (SOE)
procedure is an ADB reimbursement procedure that
does not require submission of supporting
documentation. The SOE form should include
certification, confirming existence of registration for
mobilization and secured advances/deposits. ADB’s
Loan Disbursement Handbook describes the use of
this method and associated reporting and auditing
procedures [5.3.3.10].
5.35. Income Statements and Balance Sheets
may not be necessary where cash accounting is
used. Income Statements show the financial results
of activities for a period. Balance Sheets show all
financial items owned and owed at a certain point
in time [5.3.3.11].
5.36. The Notes to the Financial Statements
should be explanatory notes and/or supplementary
financial statements that analyze or qualif y
important heads of account, or that present the
information in conformity with generally accepted
accounting practices of the country [5.3.3.12].
Income Statements reflect
financial performance…
… and Balance Sheets
show financial position
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38 38 38 38 38 Handbook for Borrowers on the Financial Management and Analysis of Projects
Interim Financial Statements and
Project Management Reports
5.37. During the course of each financial year,
ADB requires project management reports (PMRs)
as part of the system for monitoring a project’s
performance. The PMR is required on a periodic
basis, and is designed to assist the EA to maintain
regular control of project performance. The PMR
financial statement is an interim financial statement
that is a useful tool for reviewing progress and for
planning, and is recommended for all projects. A
sample PMR is attached as Appendix 5 [5.3.4.1].
5.38. The information in the PMR should be
provided in respect of: (i) the most recent completed
financial period (normally a quarter or half-year),
(ii) the year-to-date totals, and (iii) cumulative
totals-to-date from the beginning of the project
[5.3.4.2].
5.39. The PMR should also show, for each line
item, the planned or budgeted amounts for
comparison with the actual reported information,
with variances shown between actual and the plan.
Explanations should be attached to the PMR with
respect to significant variances for use in managing
and monitoring the project [5.3.4.3].
Audited Annual Financial Statements
5.40. Audited annual financial statements
should be provided to ADB to fulfill the fiduciary
requirements of the borrower, cofinanciers, donors
and ADB. These financial statements may be
classified into two broad categories:
• Annual financial statements for nonrev-
enue-earning projects. The statements
may also include information on the
performance and status of the EA
ADB requires regular
submission of PMRs
Appendix 5 provides an
example of a PMR
PMRs compare actual
and budgeted
amounts …
… and identify and
explain significant
variances
Our expectations of
audited annual financial
statements depend on
whether projects are
revenue or nonrevenue
earning
Mainbody.pmd 08/11/2006, 1:46 PM 38
where the EA has no other financial
performance commitments to ADB
under a loan agreement; and
• Annual financial statements for rev-
enue-earning projects and for project
EAs, where the EA is an autonomous
or semiautonomous revenue-earning
entity with responsibility for project
implementation [5.3.5.1].
Annual Statements for Nonrevenue-Earning Projects
5.41. EAs should only prepare annual financial
statements for projects, particularly where the
project is nonrevenue-earning and is implemented
by organizations of national, provincial, state or
regional and/or local governments. EA-related
financial transactions may be included as line items
in project income and expenses [5.3.6.1].
5.42. The statements may take the following
forms and may be produced in the local budgetary
and accounting formats for the project and, where
applicable, for the EA concerned:
• Statement of Income (or Cash Receipts),
• Statement of Expenses (or Cash Pay-
ments), and
• Notes to the Financial Statements
[5.3.6.2].
Annual Statements for Revenue-Earning
Projects and EAs
5.43. Borrowers are asked to provide ADB with
annual financial statements in respect of each
autonomous or semiautonomous EA that plays a
substantive role in implementing and/or operating
a project having revenue-earning characteristics.
These financial statements should contain details
sufficient to identify the financial performance and
For nonrevenue-earning
projects, ADB generally
expects financial
statements only for the
project—not for the EA
… whereas, for revenue-
earning projects, we
generally expect EA financial
statements that incorporate
project information
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40 40 40 40 40 Handbook for Borrowers on the Financial Management and Analysis of Projects
status of the project or EA. Normally these should
comprise:
• a Balance Sheet showing the financial
position of the entity, including the
project, at financial year-end,
• an Income (or Operating, or Income
and Expenditure, or Profit and Loss)
Statement,
• a Cash Flow Statement that should
disclose the cash flows during each
financial year, and
• notes to the Financial Statements [5.3.7.1].
5.44. Financial statements should include
comparative figures for the preceding financial year
together with supporting schedules and explanatory
notes. Supplementary financial statements should
be provided containing ADB-requested information
regarding items requiring additional disclosure or
explanation [5.3.7.2].
Supplementary Financial Statements
5.45. ADB will normally specify the form and
content of supplementary financial statements to be
attached to the standard annual financial
statements, but borrowers should include all
information that is considered informative and
appropriate to illustrate the performance of project
implementation and operation [5.3.8.1].
Model Financial Statements for
Revenue-Earning EAs
5.46. Appendix 6 and Appendix 7 present model
financial statements for a service and a
manufacturing organization, respectively [5.3.11,
7.16–7.17].
In both cases, financial
statements should
include comparative
figures and explanatory
notes
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Auditing Standards and
Auditor Engagement
Introduction
5.47. An audit’s overall objective is for the
auditor to express an opinion as to whether the
financial statements present a true and fair view of
the project(s) and, where applicable, of the EA, or
are similarly presented fairly in all material respects,
in conformity with IAS or other ADB-accepted
standards, and applied on a basis consistent with
that of the preceding year [5.4.1.1].
5.48. The auditor’s opinion is necessary to
establish the credibility, or otherwise, of the financial
statements of an EA. The examination should be of
such scope and depth to allow the auditor to give
an opinion and make a report on the veracity,
accuracy and fairness as regards the presentation
of the financial statements of an EA or a defined part
thereof (such as a project, a project unit, or a
department or division). These financial statements
may be annual, periodic, or ad hoc (i.e., relating to
special reports) [5.4.1.2].
ADB Audit Requirements
5.49. ADB requires the borrower and the EA to
have the required financial statements for each year
audited by an independent auditor acceptable to
ADB, and in accordance with standards on auditing
that also are acceptable to ADB. An audit of such
financial statements includes:
• an assessment of the adequacy of
accounting and internal control
systems with respect to project
expenditures and other financial
Auditors examine
financial statements …
… and express an
opinion on their veracity,
accuracy and fairness
We require annual
financial statements to be
audited …
… in accordance with
acceptable auditing
standards
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42 42 42 42 42 Handbook for Borrowers on the Financial Management and Analysis of Projects
transactions, and to ensure safe
custody of project-financed assets;
• a determination as to whether the
borrower and project implementing
entities have maintained adequate
documentation on all relevant
transactions;
• confirmation that expenditures
submitted to ADB are eligible for
financing and identification of any
ineligible expenditures; and
• compliance with loan covenants and
ADB’s requirements for project
management [5.4.2].
Auditing Standards
5.50. ADB recognizes the International
Standards on Auditing (ISA) promulgated by the
International Auditing and Assurance Standards
Board (IAASB) of the International Federation of
Accountants (IFAC) and the auditing standards of
the International Organization of Supreme Audit
Institutions (INTOSAI). ISAs are widely adopted by
the international accounting profession and many
national professions. They form the benchmark for
standards on auditing acceptable to ADB for audits
in the public and private sector. Many auditors
general and their equivalents use the INTOSAI
auditing standards [5.4.2.2].
5.51. ADB prefers borrowers to engage auditors
who will conform to ISA. However, it recognizes
that—in some countries—auditors apply local,
generally accepted auditing standards that may not
conform to, or fully comply with, the ISA, but that
have been prescribed by a country’s law, or have
been adopted by public accountants or associations
of accountants in the country concerned [5.4.2.3].
ADB recognizes IAASB
and INTOSAI auditing
standards …
… and prefers that
auditors conform to these
standards
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5.52. Supplementary auditing and reporting
procedures may be requested by ADB, if necessary,
to confirm accountability and financial performance
in cases where ADB considers that local auditing
standards need to be supplemented. ADB would
expect auditors to indicate in their report the extent
of differences, and the impact of the audit, of use of
local auditing standards compared with the
application of ISAs [5.4.2.4].
Auditing Procedures
5.53. Auditors should understand the project
and the entity being audited, including the contents
of the RRP and legal agreements. Further guidance
is available from the: (i) ADB Loan Disbursement
Handbook; (ii) ADB Sample bidding documents;
and (iii) ADB Procurement Handbook [5.4.3.2].
5.54. Auditors should ensure that any country-
specific variations in accounting standards and
practices that are adopted by the borrower, and that
differ substantially from IAS, should be disclosed.
Any significant effects on project financial
performance or status, because of non-
conformance with IAS, should be disclosed [5.4.3.7].
5.55. ADB expects audits to include: (i) an
examination of assets and liabilities; (ii) an
examination of commitments and contingent
liabilities; (iii) confirmation of debtors, creditors and
inventory; (iv) an examination of variations from IAS;
(v) a review of the periodic PMR for each year; (vi)
an audit of SOEs (where required) as a part of the
overall project audit; and (vii) an audit of the Imprest
Accounts [5.4.3].
ADB may require
supplementary auditing
procedures in some cases
ADB expects auditors …
… to understand the
auditee and ADB policies
and procedures …
… to identify the
impacts of variances in
accounting practices …
… and to conduct work
of acceptable scope
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44 44 44 44 44 Handbook for Borrowers on the Financial Management and Analysis of Projects
Auditor Selection and Appointment
5.56. ADB will ask borrowers to remove
unacceptable restrictions, or otherwise arrange for
an acceptable audit to be conducted. A borrower is
responsible for the selection, appointment and
performance of an auditor. ADB wishes to be
informed by a borrower of an ongoing or proposed
appointment of an auditor, who should meet
required standards in terms of independence,
experience and competence. More specifically, ADB
will indicate the acceptability of an auditor in the
form of a “no objection” [5.4.4.2].
5.57. To be acceptable to ADB, auditors must be:
• impartial and independent of the
control of the entity to be audited and
of the person appointing them. In
particular, they should not—during the
period covered by the audit—be
employed by, serve as directors of, or
have family, financial, or close business
relationships with the entity, except as
auditors, during the period of the audit;
• well established and reputable, use
procedures and methods conforming
with ISA or INTOSAI standards, and
employ adequate staff with appropriate
skills and competence required for
their responsibilities;
• experienced in the types of
assignments they are to undertake for
the ADB project; and
• able to fulfill their terms of reference
(TOR) within the specified timetable
[5.4.4.2].
Although borrowers are
responsible for auditor
selection, appointment
and performance …
… auditors must be
acceptable to ADB
ADB expects auditors …
…to be independent…
… to be reputable …
… and to have relevant
experience
Mainbody.pmd 08/11/2006, 1:46 PM 44
5.58. ADB requires that the borrower and EA
select and appoint an acceptable auditor within
sufficient time to carry out its responsibilities,
including a review of the financial management
systems at the beginning of project implementation,
and periodically thereafter [5.4.4.3].
5.59. ADB does not normally advise on the
selection of auditors, but prefers to review a list of
several auditors submitted from whom an
appointment will be made by the borrower, and
indicate any auditor who may not meet ADB’s
criteria. ADB will indicate its agreement to a proposal
to engage an auditor when it is satisfied that an
existing auditor, or the auditor under consideration
for engagement, would be acceptable to ADB in
terms of independence and competence to carry
out the audit [5.4.4.4].
Issues in Auditor Selection
5.60. The scope and detail of an audit may
depend upon laws or regulations that constrain a
government auditor from providing the depth of
examination required by ADB [5.4.5.1].
5.61. The following are unlikely to be acceptable
auditors for ADB lending operations:
• government auditors whose staff may
be required by laws or regulations to
participate in the processing of
financial transactions,
• auditors who assist EAs to prepare the
annual financial statements, or
• auditors who design and construct
components of the EA’s financial
management system [5.4.5.1].
ADB requires that auditor
appointments be made in
a timely manner …
… and prefers to review
a list of auditors and
indicate those who may
not meet our criteria
We expect auditors to act
independently …
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46 46 46 46 46 Handbook for Borrowers on the Financial Management and Analysis of Projects
5.62. In certain instances, resource constraints
may cause the borrower and EA to request auditors
to compile part or all of the financial statements.
When this occurs, to be eligible to carry out the audit,
the auditor should have no part in any aspect of EA
decision-making or management. The extent of the
auditor’s involvement in accounting should be
discussed in the Management Letter [5.4.5.2].
5.63. Auditors must be able to commence work
at project start-up. Therefore, borrowers should
appoint auditors before the start of each financial
year. Borrowers are expected to provide ADB with
an assurance that the auditor has been notified of
ADB’s requirements, including the timing of the audit
and issuance of the auditor’s report. This will be no
later than the project start date, or the date on which
the ADB Board approves the loan, whichever is
earlier [5.4.5.3].
5.64. Where a government auditor is to serve
during execution and operation of a revenue-earning
project until the loan period expires, the borrower
is expected to assure ADB that the government
auditor will begin and complete the audit operations
within the required timetable [5.4.5.4].
5.65. Auditors for public sector projects and
public sector EAs may be drawn from commercial
or state audit practitioners. Government auditors will
not be acceptable for private sector projects and for
public sector EAs of revenue-earning entities, unless
confirmed by ADB when a review of capacity,
capability, and ongoing performance has been
conducted [5.4.6.1].
5.66. The EA (or its controlling authority) is
normally responsible for selecting and appointing
auditors, except where a government auditor is
… but where this is just
not possible, we expect
auditors to distance
themselves from decision
making and
management
Auditors must be able to
commence work at
project start-up
ADB will accept
government auditors for
revenue-earning projects
on the basis of a capacity
review
Mainbody.pmd 08/11/2006, 1:46 PM 46
required by law to provide the service. Therefore,
where no auditor is currently engaged, early steps
should be taken to ensure that borrowers engage
an acceptable auditor by the date of loan signing or
project start-up [5.4.6.2].
5.67. Auditors’ engagements should be kept
under review to ensure consistent quality of
performance, including the ability to adapt to
changes in an entity’s accounting and general
operations, and to adopt improved audit techniques
[5.4.6.7].
5.68. Consequently, ADB encourages borrowers
to restrict audit engagements to relatively short-term
assignments [5.4.6.8].
5.69. Some countries appoint auditors each
year. However, engagements should be long enough
to enable the auditor to become familiar with the
auditee, but short enough to facilitate a change of
auditor, if necessary. Engagements of 3–5 years are
in the optimum range [5.4.6.9].
Terms of Reference for an Auditor
5.70. ADB requires that auditors’ opinions be of
such scope and detail as ADB may reasonably
request, and requires that a TOR acceptable to ADB
be prepared for each audit. For different types of
audits, the scope of the audit will vary according to
the nature of the EA and the type of operation being
audited. For example, the TOR for a financial
institution audit will require the auditor to pay
particular attention to the loan portfolio, while a
public utility audit will usually focus on fixed assets
and accounts receivable [5.4.7.1].
Borrowers should monitor
auditor performance …
… and auditor
appointments should be
for a suitable period
The TOR prepared for
each audit …
… must be acceptable
to ADB …
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48 48 48 48 48 Handbook for Borrowers on the Financial Management and Analysis of Projects
5.71. ISAs suggest that auditors determine the
scope of financial statement audits in accordance
with the requirements of legislation, regulations and
generally accepted auditing standards. The TOR
should not restrict auditors’ obligations in these
respects, nor should they give reasons for auditors
to claim that adherence to the TOR prevented
adequate statutory, regulatory or professional
performance [5.4.7.2, 5.4.7.8].
5.72. Nevertheless, the audit TOR provides an
opportunity to draw attention to areas of concern that
may not be covered or emphasized under a normal
audit, such as compliance with loan covenants or a
special review of procurement documents. The TOR
should always include the requirement to give an
opinion on any specific items. A management letter
will always be required [5.4.7.3].
5.73. Model TORs for an EA audit and for a
project audit are provided in Appendix 7 and
Appendix 9, respectively. However, these model
TORs should not be regarded as universally
applicable [5.4.7.6].
Contract or Engagement Letter of Auditor
5.74. ADB recommends that contracts or audit
engagement letters be prepared. Where a formal
contract is used, it is normally prepared by the EA.
Auditors often prepare a simple engagement letter.
The contract or letter sets out the auditor ’s
responsibilities and should include:
• confirmation of acceptance of the
appointment including reference to the
TOR;
• the borrowers’ responsibilities,
particularly the preparation of financial
information;
… but should not
restrict auditor
independence or limit
their ability to meet other
obligations
A management letter is
always required
Model auditor TOR are
appended
To clarify expectations,
we recommend that
contracts or audit
engagement letters be
prepared
Mainbody.pmd 08/11/2006, 1:46 PM 48
• the provision of access to whatever
premises, records, documentation and
any other information the auditor may
request in connection with the audit;
• the form of audit reports;
• arrangements regarding the
involvement of internal auditors and
any other external auditors (such as the
government auditor);
• the expected issuance date of the
Audited Financial Statements; and
• the fees basis and billing arrangements
[5.4.8].
Government Auditors
5.75. In some countries—where projects are
executed by government-controlled or sponsored
entities—statutory requirements may specify the use
of the government auditor. Under such
circumstances, ADB will require that (i) the auditor
is independent and competent, (ii) the auditor has
the capacity and professional capability to provide
audit reports and opinions of the quality required
by ADB, and (iii) is generally acceptable to ADB.
Normally, the independence of a government
auditor would not be questioned if the auditor’s
position is established under constitutional or legal
provisions designed to assure independence
[5.4.10.1].
5.76. In some cases, government auditors are
involved in pre-expenditure and revenue-collection
decision-making. This compromises their
independence. In these cases, ADB may seek to
agree with a borrower that the auditor, or ADB, will
be provided with opinions and reports prepared by
an independent commercial auditor in addition to
the government auditor’s report [5.4.10.3].
ADB requires government
auditors to be
independent, competent
and to have suitable
capacity …
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50 50 50 50 50 Handbook for Borrowers on the Financial Management and Analysis of Projects
5.77. Where ADB has concerns about the
government auditor ’s independence or
competence, ADB will seek the borrower ’s
agreement for the government auditor to
subcontract the audit to an independent and
competent private auditor to conduct the audit on
their behalf [5.4.10.4].
Submission of Financial Reports
5.78. EAs are required to submit Audited Project
Accounts (APA) regularly during project
implementation and—in some cases—until the loan
has been fully repaid. In addition, EAs of revenue-
earning entities are required to submit Audited
Financial Statements (AFS). This enables ADB to
monitor loan use and satisfy itself about the EA’s
financial viability [5.5].
5.79. The APA and AFS should be submitted to
ADB—together with the auditor’s opinion and
report—immediately upon completion of the audit.
These should be accompanied by any other material
issued by the auditor that is relevant to the
interpretation of the audit, such as a management
letter. An audit opinion should also be made by the
auditor and submitted to ADB on the use of the
Imprest Fund and SOEs in projects where these have
been used. Delays in submitting financial reports will
directly affect the project’s overall rating [5.5.2].
5.80. ADB identifies the following compliance
categories:
• Complied is when the sole EA
submitted acceptable APA/AFS in
English by the due date; and where all
EAs submitted acceptable APA/AFS in
English by the due date.
… consequently, ADB
may sometimes request
audits to be conducted by
private auditors
ADB requires that APA
and AFS be submitted…
… immediately on audit
completion
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• Partly Complied is where several EAs
are involved and only one or a few
submitted acceptable APA/AFS either
by the due date or late.
• Complied Late is when APA/AFS meet
the complied status but are submitted
late.
• Not Yet Due is when APA/AFS are not
yet due and are only applicable until
the first APA/AFS for the project become
due.
• Not Required is if submission of APA/
AFS are not included in the loan
covenants, and are only applicable to
some exceptional program loans.
• Not Complied is when:
– APA/AFS are submitted in the local
language,
– APA/AFS are submitted but has
material audit qualifications,
– the sole EA submitted partial or
incomplete APA/AFS, or
– only unaudited project accounts
and financial statements are
submitted.
In determining whether
APA/AFS comply with
ADB requirements …
… we consider
timeliness, language,
and acceptability
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52 52 52 52 52 Handbook for Borrowers on the Financial Management and Analysis of Projects
5.81. The following table provides guidance on
how ADB classifies audit opinions for the purposes
of determining compliance.
Type of Audit
Opinion
Example Classification
Unqualified
Opinion
“In our opinion, the financial statements
give a true and fair view….” (ISA 700,
para. 21)
Acceptable
Qualified
Opinion
“In our opinion, except for the effect on the
financial statements of the matter referred
to in the preceding paragraph, the financial
statements give a true and fair view of the
financial position ….” (ISA 700, para. 46)
Will depend on the nature
of the audit qualification
and will be considered on
a case-by-case basis.
Adverse
Opinion
“In our opinion, because of the effects of
the matters discussed in the preceding
paragraph, the financial statements do not
give a true and fair view of….” (ISA 700,
para. 46).
Unacceptable
Disclaimer of
Opinion
“Because of the significance of the matters
discussed in the preceding paragraph, we
do not express an opinion on the financial
statements.” (ISA 700, para. 44)
Unacceptable
ADB Policy on Late or Unacceptable Financial Reports
When acceptable APA/AFS are not received by due dates, ADB will write
immediately to the EA stating they are overdue and warning that, if they are
not received within 6 months, Imprest Accounts will not be replenished
and further reimbursement requests, commitment letters, and contract
awards will not be processed.
When acceptable APA/AFS are not received within 6 months after the
due dates, ADB will initiate stopping replenishment of Imprest Accounts,
and processing of reimbursement requests, commitment letters and contract
awards. ADB will then advise the EA of ADB’s actions and state that if the
situation does not improve within 6 months, loans may be suspended.
When acceptable APA/AFS are not received within 12 months after the
due dates, ADB may suspend the loan.
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Auditor Reports and Opinions
5.82. ADB requires the borrower and the project
EAs to have the required financial statements for
each year audited by an independent auditor
acceptable to ADB, and in accordance with
standards on auditing that also are acceptable to
ADB. An audit of such financial statements includes:
• Assessing the adequacy of accounting
and internal control systems with
respect to project expenditures and
other financial transactions, and to
ensure safe custody of project financed
assets.
• Determining whether the borrower and
EAs have maintained adequate
documentation on all relevant
transactions.
• Confirming that expenditures
submitted to ADB are eligible for
financing and identification of any
ineligible expenditures.
• Confirming compliance with loan
covenants and ADB’s project
management requirements [5.6.1.1].
5.83. An audit report must include: (i) title of the
auditor; (ii) date of the report; (iii) addressee (EA
and/or borrower); (iv) identification of the financial
information audited; (v) a reference to auditing
standards or practices followed; (vi) an expression
of opinion, including a qualification; disclaimer or
declining of an opinion, on the financial information;
(vii) the auditor’s signature; (viii) auditor’s address;
and (ix) date of signing of the report [5.6.2.2].
5.84. Appendix 10 and Appendix 11 provide
examples of typical auditor reports and unqualified
ADB expects auditor
reports to consider…
… the adequacy of
systems and record-
keeping …
… the eligibility of
expenditures …
… and whether ADB
requirements have been
met
The appendices illustrate
our expectations of
auditor reports
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54 54 54 54 54 Handbook for Borrowers on the Financial Management and Analysis of Projects
opinions for: (i) a nonrevenue-earning project, and
(ii) a revenue-earning project. The auditor should
appropriately restate each example when
qualifications or other modifications are necessary
[5.6.2.3].
5.85. Audited Financial Statements provided to
ADB in accordance with a loan agreement should
be accompanied by the report of the auditor that
contains their opinion on the financial statements
[5.6.2.4].
5.86. The auditor should indicate whether any
attached supplementary financial statements and
Notes to the Financial Statements have been
subjected to the same auditing procedures as in the
case of the basic financial statements [5.6.2.6].
5.87. Additional matters may be addressed in a
detailed auditor’s report, where these are not
addressed in the Management Letter. As
examples: (i) implementation of the auditor’s
recommendations made in prior years audit reports;
(ii) efficacy of, and improvements required in
budgetary control; (iii) reliability of field and financial
controls; and (iv) any payroll, procurement, or
inventory problems [5.6.2.7].
5.88. The auditor’s opinion for a project should
refer to the reporting format agreed between the
borrower and ADB, noting the basis of accounting
followed (e.g., cash basis) [5.6.2.8].
5.89. The auditor ’s opinion for a revenue-
earning entity, including a commercial type entity
in the private sector, should refer to the accounting
standards adopted and any significant departures
from IASs, with a reference to a quantified impact
of such departures on the Balance Sheet and the
Audit reports should
indicate audit
coverage…
… additional matters
should be addressed in
management letters or
detailed reports
The audit report should
consider reporting
formats and bases …
Mainbody.pmd 08/11/2006, 1:46 PM 54
Income Statement prepared by the EA in the Notes
to the Financial Statements. An example of the
above would be where government regulations
legislate the basis for bad debt provision rather than
relying on an actual assessment [5.6.2.9].
5.90. Borrowers and EAs enter into financial
performance covenants with ADB. The auditor is
required to confirm, or otherwise, compliance with
each financial covenant contained in the legal
documents for the project. The auditor should also
indicate, where present, the extent of any
noncompliance, by reference to the specified
(required) and actual performance measurements
for each financial covenant for the financial year
concerned [5.6.4].
5.91. Borrowers and EAs enter into agreement
with ADB in the loan documents to provide all
appropriate financial management, accounting and
financial reporting requirements necessary to
support effective management of the project. The
auditor should also indicate the extent of any
noncompliance with the loan agreement, by
reference to the specified (required by the loan
documents) and actual performance of the
borrower in respect of these ADB requirements for
the financial year concerned [5.6.5].
Use of Technical Experts
5.92. For certain types of expenditures to be
financed from ADB loans, the auditor may need to
rely on an independent technical expert who
normally would be engaged by the EA. An example
would be civil works executed by the regular labor
force of an entity (e.g., “force account” carried out
by the Ministr y of Works); or fixed-price
reimbursements for measured units of work to be
supervised by independent experts such as an
… and indicate the
extent of noncompliance
with financial covenants
Auditors should also
indicate any other
noncompliance with ADB
requirements
Where auditors rely on
the work of technical
experts …
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56 56 56 56 56 Handbook for Borrowers on the Financial Management and Analysis of Projects
engineering or architectural firm. In addition to the
normal responsibility of such experts to check that
the work is performed in accordance with the plans
and specifications, an appropriate certification by
the expert of the value of the work executed must
be acceptable to ADB [5.6.8.1].
5.93. The acceptability of the certification would
depend on the independence and competence of
the firm and its staff engaged in the verification. Such
a certification, where used, should normally be
attached to the related documentation supporting
the expenditure. Any dissatisfaction with the work
of the expert that concerns the auditor should be
stated in the auditor’s report [5.6.8.2].
5.94. The content of the certificate might cover
matters such as whether the goods and services
were procured, received, paid for and used in the
project in conformity with the loan agreement. In
the above instances, the auditor should include a
note under the scope paragraph of the opinion,
stating the extent and amount involved with respect
to their reliance on the technical expert (who should
be identified and expertise noted in the Notes to the
Financial Statements prepared by the EA) [5.6.8.3].
Statements of Expenditure and Imprest Accounts
5.95. Where the legal agreement of a project
requires the separate audit of the SOEs and the
Imprest Accounts, respectively, additional
paragraphs should be included in the audit opinion
of the project:
• referring to the SOE financial
statement, certifying to the eligibility of
those expenditures against which SOE
disbursements were made; and
… appropriate
certification should be
provided
The auditor’s report
should state any
dissatisfaction with the
work of technical experts
…
… and identify extent of
reliance that was placed
on technical experts
Audit opinions must
consider SOEs and
Imprest Accounts, where
these are used
Mainbody.pmd 08/11/2006, 1:46 PM 56
• referring to the Imprest Account
financial statements attached [5.6.9.1].
Audit Management Letters
5.96. ADB requires auditors to provide a
management letter with reference to the EA. This is
a report on the internal controls and operating
procedures of the entity, covering all aspects included
during the normal course of the audit. Because an
auditor is unlikely to cover all activities of a client
during an annual audit, the management letter may
address only those specific matters that came to the
attention of the auditor during the review [5.6.10.1].
5.97. The borrower and the auditor may agree
at the commencement of the audit on particular
subjects (including those at the request of ADB) to
be included in the TOR and addressed in the
management letter. These may include the review
of compliance with financial covenants, and actual
versus planned performance indicators. However,
it should be the prerogative of the auditor to address
any matter not agreed upon, but which, in the
auditor’s opinion, should be drawn to the borrower’s
attention. In addition, the auditor should comment
on all significant variations between the PMR and
the annual Audited Financial Statements [5.6.10.2].
5.98. ADB wishes to review all management
letters. The EA should provide copies of the
management letter to ADB at the same time as the
audited annual financial statements are issued
[5.6.10.4].
ADB requires a
management letter on
internal controls and
operating procedures
Although the TOR should
identify the management
letter’s focus and
scope …
… this should not
constrain the auditor
from commenting on
other matters
management letters must
be provided to ADB with
the audited financial
statements
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58 58 58 58 58 Handbook for Borrowers on the Financial Management and Analysis of Projects
ADB Assistance to Improve Accounting
and Auditing
Financing of Audit Expenditures
5.99. The costs of annual audits may be
included in project costs and are eligible for ADB
loan financing for those borrowers for whom the
audit costs are incremental (i.e., without the project
they would not be incurred). For other borrowers,
where only part of the audit costs are incremental—
particularly auditing to ADB standards, reporting on
compliance with loan covenants or for those
borrowers that may require foreign exchange for the
purpose—these audit costs may be financed to
ensure that ADB will receive an auditor’s opinion
and report that accord with ADB requirements.
Capacity Building in Project Accounting
5.100. Wide disparities exist in accounting and
auditing standards and capacity among borrowers.
To help borrowers avoid difficulties in meeting ADB’s
requirements, specific accounting and reporting
requirements to ensure proper project financial
management are discussed with the borrower and
EAs and reflected in the loan covenants of the loan
agreement. If accounting and auditing systems are
found unacceptable, corrective measures may be
taken using either ADB TA funds (if available) or with
support from other assistance agencies.
5.101. Hands-on training for preparing project
accounts is arranged for project accountants if they
are unfamiliar with ADB’s accounting and auditing
requirements. The cost may be included in the loan
amount.
ADB will consider
supporting improvements
in accounting and
auditing systems …
… we also arrange
training for project
accountants who are
unfamiliar with our
requirements
The incremental costs of
annual audits are eligible
for ADB financing
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6. Financial Institutions
Introduction
6.01. Financial institutions (FIs) include
commercial banks and other financial institutions.
ADB previously referred to FIs as development
finance institutions (DFIs). The World Bank and the
African Development Bank refer to FIs as financial
intermediaries. They are also known by sectoral
titles, such as agricultural development banks
(AgDBs), industrial development banks (IDBs) and
housing development banks (HDBs), or as
development financial intermediaries, microfinance
institutions (MFIs) and microfinance intermediaries
[6.1.2].
General Approaches and Expectations
6.02. ADB expects FIs to generate an interest
rate spread (the difference between lending and
borrowing rates) that covers all operating costs,
including provisions for bad and doubtful debts, and
in appropriate circumstances provides a profit. ADB
can support FI operations in both the public and the
private sectors [6.1.3].
6.03. In general, ADB-supported FI loans aim to
remove or substantially reduce the use of directed
credits, as these lead to resource allocation outside
market mechanisms [6.2.4.1].
6.04. However, ADB may support directed-credit
programs to promote sustainable financing—for
sectors such as microfinance institutions or the rural
Financial institutions,
such as commercial
banks, act as
intermediaries to provide
loans and equity to
organizations
ADB expects FIs to
generate an adequate
interest rate spread
In certain situations, ADB
may support directed-
credit programs …
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60 60 60 60 60 Handbook for Borrowers on the Financial Management and Analysis of Projects
sector—provided they are accompanied by reforms
that address underlying institutional problems and
any market imperfections that inhibit the market-
based flow of funds to those sectors [6.2.4.3–6.2.4.4].
6.05. ADB only supports programs involving
subsidies if they (i) are transparent, targeted, and
capped; (ii) are funded explicitly through the
government budget or other sources subject to
effective control and regular review; (iii) are fiscally
sustainable; (iv) do not give an unfair advantage to
some FIs over other qualified and directly competing
institutions; and (v) are economically justified, or
can be shown to be the least-cost way of achieving
poverty reduction objectives [6.2.5.1].
ADB Approach to FI Reviews and
Monitoring
6.06. ADB appraises proposed FI loans to ensure
that their objectives include (i) supporting reform
programs in the financial sector or related real sectors;
(ii) financing real sector investment needs;
(iii) promoting private sector development;
(iv) helping to stabilize, broaden, and increase the
efficiency of financial markets and their allocation of
resources and services; (v) promoting the
development of the participating FIs; and
(vi) supporting poverty reduction objectives [6.3.2.4].
6.07. ADB reviews an FI’s operational
performance to assess its ability to (i) deliver
subloans to achieve defined country or sector
economic objectives; (ii) efficiently recover
subloans; and (iii) cover all operating costs and
make a reasonable profit on the invested capital. FIs
have numerous forms of performance indicators
that can provide an understanding of past and
ongoing performance [6.2.1.2].
… or programs
involving subsidies
Before providing support
to FI operations …
… ADB considers the
extent to which FI
operational performance
is effective, efficient and
sustainable
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6.08. At least once each year during
implementation, ADB will conduct a formal review
of the condition and performance of participating
FIs—including a review of their Audited Financial
Statements—to determine their continued
compliance with eligibility criteria [6.3.4.5.4].
Assessing FI Performance
Introduction
6.09. Suitable indicators for measuring FI per-
formance include, among other things,
(i) adequacy of capital; (ii) quantity and quality of
earnings; (iii) quality of assets; (iv) sufficiency of li-
quidity; (v) extent of subsidy dependence;
(vi) effectiveness of FI loan administration (ap-
praisal, supervision, and collection performance);
and (vii) adequacy and timeliness of audited finan-
cial statements [6.3.4.5.3].
6.10. The most important criteria for
determining the appropriateness of an FI to act as a
financial intermediary are its solvency, profitability
and liquidity. In this respect, the Basel Committee
2
on Banking Supervision of the Bank of International
Settlements provides guidance in assessing an FI
[6.4.1.3].
Assessing Microfinance Institutions
6.11. The World Council of Credit Unions
recommends a set of financial ratios covering
Protection, Effective financial structure, Asset quality,
Rates of return and costs, and Liquidity and Signs of
growth (PEARLS) to monitor the financial stability
of credit unions, including MFIs. The PEARLS
… and monitors
performance during
implementation
The most important
criteria for determining FI
performance are
solvency, profitability and
liquidity
2
Further information on the Basel Committee can be found at http:/
/www.bis.org.
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62 62 62 62 62 Handbook for Borrowers on the Financial Management and Analysis of Projects
methodology is specifically designed for evaluating
credit unions [6.4.2.1].
3
Assessing FI Risks
6.12. ADB’s main concern is that FIs manage
their exposure to potential risks. Capital markets are
dynamic—their activities can generate rapid and
dangerous movements that need to be anticipated
and managed. The ability of traditional performance
measurement criteria to indicate declining or poor
FI performance is limited [6.4.4.1.1].
6.13. Furthermore, in many cases, the FIs that
ADB deals with are attached to the public sector and
have multiple objectives (e.g., sectoral development
objectives in addition to profitability objectives). The
risk factors associated with these FIs are likely to be
more significant than for single-objective
commercial banks. Consequently, ADB will seek to
(i) identify the principal potential risks that an FI is
exposed to and (ii) agree an appropriate set of
indicators that will provide FI management and ADB
with an early warning of problems [6.4.4.1.3].
6.14. The major FI-related risks include
• market risk—the potential that a
borrower or counterparty will fail to
perform on an obligation [6.4.4.2.1];
• exchange risk—the potential changes
in assets and liabilities caused by
foreign exchange movements
[6.4.4.3.1];
• maturity risk—the mismatching of
investments and borrowing operations
[6.4.4.4.1]; and
ADB’s main concern is
that FIs manage their risk
exposure
ADB will seek to identify
potential risks to which
an FI is exposed …
… and agree an
appropriate set of
indicators to monitor
these risks
The major FI-related risks
include market,
exchange, maturity, and
contagion risk
3
Further information on the PEARLS methodology can be found at
www.woccu.org.
Mainbody.pmd 08/11/2006, 1:46 PM 62
• contagion risk—contagion can arise in
regions, in countries, in regions within
countries, or within a class or category
of financial institutions [6.4.4.5.1].
6.15. Financial sector supervisors and regulators
are best able to identify, anticipate, and avoid
contagion risk. They should monitor the financial
sectors and economic developments with the
objective of providing early warnings, not only to
financial institutions, but also to ministries with
economic management responsibilities [6.4.4.5.3].
Specialized FI Internal Controls
6.16. Internal controls for FIs (i) should
comprise a set of rules and procedures designed to
provide qualitative standards that complement
quantitative risk analyses; (ii) are becoming
increasingly employed by banks and securities
institutions; (iii) should be used to internally manage
operational risk, agency risk, and legal risk; and
(iv) should be exercised by an independent control
unit reporting to the board of directors that has no
operating linkages with risk-creating trading
activities [6.4.6.1].
6.17. ADB expects FIs to establish and maintain
an appropriate risk management environment by,
for instance
• requiring transparency of reports and
documentation of the risk control
process,
• monitoring the content and the
efficiency of the vertical and horizontal
information flows,
• monitoring and reporting on
accountability,
ADB will seek assurance
that appropriate internal
controls are in place
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64 64 64 64 64 Handbook for Borrowers on the Financial Management and Analysis of Projects
• ensuring remuneration policy rewards
efficient risk management through high
returns and minimum risk,
• monitoring observance of trading limits
and market procedures,
• establishing rules for dealing with
changes in volatilities,
• testing the soundness of models,
• examining the quality and uniformity
of data input, and
• validating and back-testing procedures
[6.4.6.2].
FI Reporting and Auditing Issues
Introduction
6.18. Financial reporting by, and audits of, FIs
require individual specifications for each institution
so that financial reporting and auditing requirements
will be appropriate to the type, nature, and form of
the institution [6.6.1.1].
6.19. For example, an industrial FI and an MFI
have few common characteristics and the reporting
requirements and the auditing specifications will
differ sharply [6.6.1.2].
Financial Reporting
6.20. In addition to the standard statements
(Balance Sheet, Income Statement and Cash Flow
Statement), an FI will generally be required to
provide the additional statements listed below. This
listing is not all-inclusive and may be amended to
address the objectives and operations of the
particular FI:
• The income statement and balance
sheet adjusted for subsidies;
Financial reporting and
auditing requirements for
FIs are also specialized
… additional financial
statements will generally
be required
Mainbody.pmd 08/11/2006, 1:46 PM 64
• Portfolio Report for current and past 2
years;
• Portfolio Report showing aging of
receivables (arrears);
• Portfolio Report showing aging of
portfolio at risk;
• Portfolio Report showing market and
sectoral exposure;
• Capital Adequacy Analysis;
• Assets Structure by Income;
• Related party transactions; and
• Table of Contingencies, Guarantees,
Commitments showing corresponding
securities and collateral [6.6.2.2].
FI Auditing
6.21. ADB expects that the TOR for an FI audit
will be tailored to the particular FI. For instance, the
TOR for a commercial bank audit will differ from
those for an MFI audit. Moreover, auditors should
have appropriate experience in auditing the
particular FI [6.6.3.1].
6.22. In addition to the standard requirements
for auditor selection and appointment (see part 5),
including providing a report and an opinion on the
annual financial statements, the auditor should be
required to include in the report confirmation, or
otherwise, that the additional financial statements
and performance indicators can be relied on
[6.6.3.2].
ADB expects that auditors
of FIs will have
appropriate experience
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Appendix 1 Contents of the Guidelines
This appendix presents the Guidelines’ contents for information and
reference purposes (see paragraph 1.02, page 1).
1. Introduction to the Guidelines
1.1. Introduction
1.2. Rationale
1.3. Objectives
1.4. Structure
1.5. Project File
1.6. Guideline Updates
1.7. Roles of Financial Analysis
Specialists and Financial
Management Specialists
2. User Instructions
2.1. Overview
2.2. ADB Lending and Technical
Assistance
2.3. Applying these Guidelines
2.4. Project Types and General
Treatments
2.5. An Overview of Project Processing
Steps
2.6. Step 1: Identification and Early
Preparation
2.7. Step 2: Loan Preparation
2.8. Step 3: Project Examination
2.9. Step 4: Loan Negotiations
2.10. Step 5: Project Implementation
2.11. Step 6: Project Completion
3. Preparing and Appraising Investment
Projects
3.1. Investment Projects Overview
3.2. Possible Investment Projects
3.2.1. Possible Revenue-Earning
Projects
3.2.2. Possible Nonrevenue-
Earning Projects
3.3. Appraisal Checklists
3.4. Forecasting
3.4.1. Introduction to Forecasting
3.4.2. Using the COSTAB Model
3.4.3. Preparing Project Cost
Estimates
3.4.4. Determining
Contingencies
3.4.5. Disbursement Profiles
3.4.6. Preparing Financing Plans
3.4.7. Computing Incremental
Project Cash Flows
3.5. Preparing Financial Benefit-Cost
Analyses
3.5.1. Introduction
3.5.2. Determining the Discount
Rate -WACC
3.5.3. Calculating the Financial
Internal Rate of Return
and Net Present Value
3.5.4. Undertaking Sensitivity
and Risk Analyses
3.6. Loan Covenants
3.6.1. Introduction to Loan
Covenants
3.6.2. Operating Covenants
3.6.3. Capital Structure Covenants
3.6.4. Liquidity Covenants
3.7. ADB Reports
3.7.1. Introduction to ADB Reports
3.7.2. Project Preparatory
Technical Assistance Stage
3.7.3. Report and Recommendation
of the President
3.7.4. Miscellaneous ADB Reports
4. Financial Management of Executing
Agencies
4.1. Financial Management Overview
4.2. Institutions and Systems
4.2.1. Introduction to Institutions
and Systems
4.2.2. Major Institutional
Assessments
4.2.3. Governance
4.2.4. Financial Management
and Governance
Arrangement
4.2.5. Country Diagnostic Studies
of Accounting and
Auditing
4.2.6. Executing Agencies
4.2.7. Project Objectives
4.2.8. Revenue-Earning Projects
4.2.9. Nonrevenue-Earning
Projects
4.3. Financial Analysis
4.3.1. Introduction to Financial
Analysis
Appendix 1 67 67 67 67 67
68 68 68 68 68 Handbook for Borrowers on the Financial Management and Analysis of Projects
4.3.2. Financial Analysis
Objectives
4.3.3. Linkages with Cost
Recovery and Tariffs
4.3.4. Preparing Financial Tables
4.3.5. Determining Fiscal Period
Coverage
4.3.6. Forecasting and Financial
Projections
4.3.7. Forecasting Assumptions
4.4. Measuring Performance
4.4.1. Introduction to Measuring
Performance
4.4.2. Objectives of Measuring
Performance
4.4.3. Performance Indicators
4.4.4. Using Benchmarking
Indicators
4.4.5. Selecting Indicators and
Covenants
4.4.6. Operating Indicators and
Covenants
4.4.7. Capital Structure
Indicators
4.4.8. Liquidity Indicators
5. Reporting and Auditing
5.1. Financial Reporting and Auditing
Overview
5.2. Accounting Standards and Policies
5.2.1. Introduction
5.2.2. International Accounting
Standards
5.2.3. ADB Accounting Policy
Requirements
5.3. Financial Reporting
5.3.1. Introduction
5.3.2. Content and Timing of
Financial Reporting
5.3.3. Accounting Statements
and Financial Reports
5.3.4. Interim Financial
Statements and the Project
Management Report
5.3.5. Audited Project Financial
Statements
5.3.6. Annual Financial Statements
for a Nonrevenue-Earning
Project
5.3.7. Annual Financial Statements
for Revenue-Earning Projects
and EAs
5.3.8. Supplementary Financial
Statements
5.3.9. Designing Financial
Reports for Revenue-
Earning Projects
5.3.10. Designing Financial Reports
for Nonrevenue-Earning
Projects
5.3.11. Examples of Model Financial
Statements
5.4. Auditing Standards and Auditor
Engagement
5.4.1. Introduction
5.4.2. ADB Requirements
5.4.3. Auditing Procedures
5.4.4. Auditor Selection and
Appointment
5.4.5. Issues in Auditor Selection
5.4.6. Selecting Auditors
5.4.7. Terms of Reference for an
Auditor
5.4.8. Contract or Engagement
Letter of Auditor
5.4.9. International Standards on
Auditing
5.4.10. Government Auditors
5.5. Reviewing Financial Reports
5.5.1. Introduction
5.5.2. The Review Process: Late
or Unacceptable Financial
Reports
5.5.3. Compliance With Financial
Performance Covenants
5.5.4. Communication with
Government Auditors
5.6. Reviewing Auditors’ Reports
5.6.1. Introduction
5.6.2. Auditors’ Reports and
Opinions
5.6.3. Model Audit Opinions
5.6.4. Compliance with Loan
Covenants
5.6.5. Compliance with ADB’s
Requirements
5.6.6. Types of Auditors’ Opinion
5.6.7. Materiality
5.6.8. Use of Technical Experts
5.6.9. Statements of Expenditure
and Imprest Accounts
5.6.10. Reviewing Audit
Management Letters
5.6.11. Audit Report
Questionnaire
6. Financial Institutions
6.1. FI Introduction and Overview
6.2. Reviewing FI Financial Management
6.2.1. General Operational
Issues
6.2.2. Policy Framework for FIs
and FI Loans
6.2.3. Treatment of Interest Rate
Distortions
6.2.4. Treatment of Directed-
Credit Programs
6.2.5. ADB Policy on Subsidies
6.2.6. Eligibility Criteria for FIs
6.3. FI Investments
6.3.1. Introduction
6.3.2. Investing in FIs
6.3.3. Selecting Participating
Institutions
6.3.4. Appraising an FI Investment
6.4. Assessing FI Performance
6.4.1. Introduction
6.4.2. Assessing Microfinance
Institutions
6.4.3. Applying the CAMEL
Framework
6.4.4. Assessing FI Risks
6.4.5. Determining FI Credit
Ratings
6.4.6. Specialized FI Internal
Controls
6.5. Appraisal Checklist
6.6. FI Reporting and Auditing Issues
6.6.1. Introduction
6.6.2. FI Financial Reporting
6.6.3. FI Auditing
6.6.4. MFI Financial Reporting
and Auditing
7. Knowledge Management
7.1. Useful Websites
7.2. Operations Manual
7.3. Project Administration Instructions
7.4. International Standards
7.5. International Accounting and
Auditing Architecture
7.6. Financial Review Checklist for RRPs
7.6.1. Lessons from Past Projects
7.6.2. Project Cost Estimates
7.6.3. Financing Plan
7.6.4. Executing Agencies and
Implementing Agencies
7.6.5. Financial Projections
7.6.6. Financial Analyst
7.6.7. Project Justification
7.6.8. Accounting and Auditing
7.6.9. Procurements and
Disbursement Arrangements
7.6.10. Finance-Related Risk
7.6.11. Assurances
7.7. Appraisal Checklist: Nonrevenue-
Earning Project
7.8. Appraisal Checklist: Revenue-
Earning Project
7.9. Appraisal Checklist: Private Sector
Project
7.10. Appraisal Checklist: Financial
Institution
7.11. Undertaking Sensitivity and Risk
Analyses
7.11.1. Step 1: Identify the Key
Variables
7.11.2. Steps 2 and 3: Calculate
Effects of Changing Variables
7.11.3. Step 4: Analyze Key
Variable Changes
7.11.4. Undertaking Risk Analysis
7.12. Model Operating Covenants
7.12.1. Rate of Return (see 3.6.2.2)
7.12.2. Self-Financing Ratio
(see 3.6.2.3)
7.12.3. General Price Level
(see 3.6.2.4)
7.12.4. Operating Ratio (see 3.6.2.5)
7.12.5. Breakeven Covenant
(see 3.6.2.6)
7.13. Model Capital Structure Covenants
7.13.1. Debt Service Coverage
(Version A: Historical
Orientation) (see 3.6.3.3)
7.13.2. Debt Service Coverage
(Version B: Forecast
orientation) (see 3.6.3.3)
7.13.3. Debt-Equity Ratio
(see 3.6.3.4)
7.13.4. Capital Adequacy Ratio
(see 3.6.3.6)
7.14. Model Liquidity Covenants
7.14.1. Current Ratio (see 3.6.4.2)
7.14.2. Quick Ratio Covenant
(see 3.6.4.3)
7.14.3. Dividend Limitation
(see 3.6.4.4)
7.15. Commonly Used Ratios
7.15.1. Operating Indicators
7.15.2. Capital Adequacy Indicators
7.15.3. Liquidity Indicators
Appendix 1 69 69 69 69 69
70 70 70 70 70 Handbook for Borrowers on the Financial Management and Analysis of Projects
7.16. Model Financial Statements:
Service Organization
7.17. Model Financial Statements:
Manufacturing Organization
7.18. Model Terms of Reference for an
Auditor
7.19. Audit Report Questionnaire
7.19.1. Using the Audit Report
Questionnaire
7.19.2. Authenticity, Form, and
Timeliness
7.19.3. Audit Opinion
7.19.4. Matters Addressed
7.19.5. Auditor’s Opinion and
Report
7.19.6. Conclusion and Further
Action (if any)
Knowledge Management – Addendum
Revisions
Glossary
Topical Index
Appendix 2 Project Investment Plan
Paragraph 3.05 (page 8) refers to this appendix.
Std. Code Total
COMPONENTS ***
Base Cost
03 Civil Works 0.00
06 Survey, Investigation, Design, Mapping 0.00
09 Research and Development (Extension and Demonstration) 0.00
12 Institutional Development and Strengthening 0.00
15 Equipment, Vehicles and Furniture (Purchase and Maintenance) 0.00
18 Materials 0.00
21 Consulting Services 0.00
24 Training and Fellowships 0.00
27 Operations and Maintenance 0.00
30 Financing of Nongovernment Organizations (NGOs) 0.00
– Implementation Assistance 0.00
– Land 0.00
– Capital Goods 0.00
– Incremental Administrative Costs 0.00
– Initial Working Capital 0.00
– Taxes and Duties 0.00
Base Costs as at...(date)… 0.00
Contingencies ***
87 Physical 0.00
84 Price 0.00
81 Other (Identify) 0.00
SUB-TOTAL 0.00
Financing Charges During Development***
66 Interest 0.00
69 Other 0.00
TOTAL PROJECT COST AND FINANCING REQUIRED 0.00
*** Footnotes to be used as necessary, particularly for contingencies’ explanation and rates used for
calculating financing changes.
Appendix 2 71 71 71 71 71
72 72 72 72 72 Handbook for Borrowers on the Financial Management and Analysis of Projects
Appendix 3 Project Financing Plan
Paragraph 3.15 (page 10) refers to this appendix.
Total %
Funds Required
Proposed Project
Capital expenditures 0.00
Operating expenditures 0.00
Interest during construction 0.00
TOTAL PROJECT REQUIREMENTS 0.00 100
Sources of Funds
Proposed ADB loan 0.00
Other loans 0.00
Equity or capital contributions
Government 0.00
Other sources 0.00
Subsidies for operations 0.00
Internal cash generation 0.00
TOTAL SOURCES 0.00 100
Appendix 4 Example of Accounting Policies
Paragraph 5.05 (page 22) refers to this appendix. The following table
provides guidance on General Accounting Policies. Particular accounting
policies should set out the policies applicable to revenues, expenses, assets
and liabilities. A model set of IAS-based accounting policies and financial
statements is available at www.iasplus.com. An IAS disclosure checklist
is also available from this website.
Issue Details Example
Reporting Entity The accounting policies
should clearly define the
reporting entity.
These are the consolidated financial
statements of ABC Limited and its
subsidiaries: DEF Limited, GHI Limited
and JKL Limited.
Reporting Period The reporting period should
be stated.
These financial statements apply to
the financial year ended 31 December
20X2.
Legislative Basis The legal basis under which
the financial statements
have been prepared should
be clearly stated.
These financial statements have been
prepared in accordance with Article 123
of the Companies Act 20X1.
Accounting
Policy Basis
The accounting policy basis
should be stated.
These accounting policies are based
upon the International Accounting
Standards (IASs) issued by the
International Accountants Standards
Board (IASB) as at 30 September
20X2. Where no IAS has been issued
on specific topics, the accounting policy
is based on other authoritative sources.
Measurement
Base
The measurement base
used to prepare the financial
statements should be
described.
These financial statements have been
prepared using the accrual basis of
accounting. The measurement base
applied is historical cost adjusted for
revaluation of assets.
Changes in
Accounting
Policies
Changes in accounting
policies should be noted.
There have been no material changes in
accounting policies during the financial
year.
Going Concern There should be a clear
statement as to whether
or not the entity is a going
concern.
The financial statements have been
prepared on a going concern basis.
Appendix 4 73 73 73 73 73
74 74 74 74 74 Handbook for Borrowers on the Financial Management and Analysis of Projects
Issue Details Example
Indirect Taxes
and Duties
The treatment of indirect
taxes and duties should be
clearly stated.
Revenue and expense items are
recognized net of Value Added Tax (VAT).
The net amount receivable in respect
of VAT is included as part of accounts
receivable. Assets are recorded net of
VAT if the tax is recoverable.
Comparatives Where there have been
changes of format or
presentation from one
accounting period to the
next, comparatives should
be restated, and that fact
disclosed in the Notes to
the Financial Statements
together with any explanation
necessary for the reader
to understand the changes
which have occurred.
Where there is any change of format
or presentation from one accounting
period to the next, comparatives are to
be restated, and that fact disclosed in
the notes to the financial statements
together with any explanation necessary
for the reader to understand the
changes that have occurred.
Basis of
Combination
(Consolidation)
Where consolidated financial
statements have been
prepared, the combination
basis should be stated.
Controlled entities are consolidated
using the purchase method of
combination. Corresponding assets,
liabilities, revenues and expenses are
added together line by line. Transactions
and balances between these sub-
entities are eliminated on combination.
Related Parties The policy applied to the
disclosure of related-party
transactions should be
stated.
There were no related-party transactions
during the financial year.
Foreign Currency The basis for recording
foreign currency transactions
and translating these
transactions and balances
should be stated.
Foreign currency transactions are
measured and recorded in United
States dollars (US$) using the exchange
rate in effect at the date of the
transaction. However, where short-term
transactions are covered by a forward
exchange contract, the forward rates
specified in those contracts have been
used to translate the transactions into
US$. At the end of each reporting
period any foreign currency monetary
balances (money being held and assets
and liabilities to be received or paid in
money) have been translated into US$
using the spot exchange rate in effect
on that date. Exchange differences,
arising when there is a change in the
exchange rate between the transaction
date and the date of settlement, have
been recognized as either revenues or
expenses.
Appendix 5 Sample Project Monitoring Report
This appendix presents sample PMR formats (see paragraph 5.37 on page 29).
Government of Pacifica: Education Sector Improvement Project
Cash Receipts and Payments
Asian Development Bank (ADB) Loan No. 1234-ATL
For the Quarter ended 31 March 2003
(Pp ’000s)
a
Forecast:
Quarter Cumulative Next 6 months
Cash Receipts
Government Funds 24,000 260,000 75,000
ADB Funds 129,795 623,245 175,000
Total Financing 153,795 883,245 250,000
Less: Expenditures by
Component
Institutional Strengthening 94,695 569,045 185,000
Increasing Access 60,000 220,000 24,251
Teacher Development 2,500 17,450 5,500
Project Development 1,600 6,500 2,952
Other (including Loan Fee) .. 12,250 12,000
Total Expenditures 158,795 825,245 229,703
Receipts Less Expenditures -5000 58,000 20,297
Add: Foreign Exchange Difference -1000 -14000 ..
Net Change in Cash -6000 44,000 20,297
Opening Cash balances
Local Currency Bank Account 2,000 .. 4,000
Foreign Currency Bank Account 48,000 .. 40,000
Total Opening Cash 50,000 .. 44,000
Add: New Change in Cash -6000 44,000 20,297
Net Cash Available 44,000 44,000 64,297
Closing Cash Balances
Local Currency Bank Account 4,000 4,000 14,297
Foreign Currency Bank Account 40,000 40,000 50,000
Total Closing Cash Balances 44,000 44,000 64,297
Pp = Pacific Pesos.
Notes: a The following rates were used for conversion:
– Opening balance of Foreign Currency Bank Account in Quarter: US$1 = PPs14:7.
– ADB fund received and any foreign currency expenditures made are converted at the rate of
exchange on the date of the transaction. The weighted average of these rates since project
inception is approximately 14.5.
– Closing balance of Foreign Currency Bank Account: US$1 = PPs14.9.
Appendix 5 75 75 75 75 75
76 76 76 76 76 Handbook for Borrowers on the Financial Management and Analysis of Projects
Appendix 6 Model Financial Statements: Service Organization
Paragraph 5.46 (page 31) refers to this appendix. This model set
of summary financial statements is appropriate for use by a service-type
organization. When using these financial statements it is essential that:
(i) an appropriate Statement of Accounting Policies be developed and
agreed between ADB and the borrower; (ii) appropriate Notes to the
Financial Statements supplement the financial statements; and (iii) where
appropriate, the Financial Statements should be tailored so that they
adequately reflect the organization’s performance and position.
The format used for this particular model set of summary
financial statements is appropriate for forecasting (projecting) financial
statements (for instance, during project preparation).
Example Service OrganizationForecast Income Statements
[Format for financial projections] for the years ended 31 December
($’000)
20X1 20X2 20X3 20X4 20X5 20X6 20X7
Notes Actual Actual Actual Actual Actual Forecast Forecast
Operating Revenues
Revenues from services 1 35,052 36,748 39,288 41,202 41,202 41,202 41,202
Investment income 1,157 1,073 1,126 1,243 1,243 1,243 1,243
Other operating revenue 317 332 279 269 269 269 269
36,526 38,153 40,693 42,714 42,714 42,714 42,714
Operating Expenses
Wages, salaries and employee benefits 12,960 13,363 13,975 14,504 14,504 14,504 14,504
Supplies and consumables used 4,022 4,285 4,582 4,687 4,687 4,687 4,687
Repairs and maintenance 1,000 1,000 1,000 1,000 1,000 1,000 1,000
Depreciation and amortization expenses 791 872 918 926 926 926 926
Other operating expenses 18,677 20,395 20,601 21,280 21,280 21,280 21,280
37,450 39,915 41,076 42,397 42,397 42,397 42,397
Surplus/(Deficit) from Operating Activities -924 -1,762 -383 317 317 317 317
Project-related interest costs 2,373 2,527 2,588 2,512 2,512 2,512 2,512
Other interest costs .. .. .. .. .. .. ..
Gains on sale of fixed assets .. .. .. .. .. .. ..
Total non-operating expenses 2,373 2,527 2,588 2,512 2,512 2,512 2,512
Surplus/(Deficit) from Ordinary Activities 1,449 765 2,205 2,829 2,829 2,829 2,829
Minority interest share of surplus/(deficit) .. .. .. .. .. .. ..
Net surplus/(deficit) before extraordinary items 1,449 765 2,205 2,829 2,829 2,829 2,829
Extraordinary items .. .. .. .. .. .. ..
Income tax expense .. .. .. .. .. .. ..
Net Surplus/(Deficit) for the Year after Tax 1,449 765 2,205 2,829 2,829 2,829 2,829
Example Service OrganizationForecast Balance Sheets
[Format for financial projections] as at 31 December
($’000)
20X1 20X2 20X3 20X4 20X5 20X6 20X7
Notes Actual Actual Actual Actual Actual Forecast Forecast
Current Assets
Cash and cash equivalents 210 93 97 100 100 100 100
Marketable securities 10,440 11,279 9,929 9,473 9,473 9,473 9,473
Receivables 5,520 5,490 5,559 5,593 5,593 5,593 5,593
Inventories 274 329 348 379 379 379 379
Work in progress 3,995 4,768 5,519 6,032 6,032 6,032 6,032
Investments 338 341 954 2,210 2,210 2,210 2,210
20,777 22,300 22,406 23,787 23,787 23,787 23,787
Less: Current Liabilities
Payables and provisions 4,716 4,588 4,428 4,401 4,401 4,401 4,401
Short-term borrowings 2,236 2,413 2,413 2,413 2,413 2,413 2,413
Current portion of borrowings 7,208 7,648 7,533 7,528 7,528 7,528 7,528
Employee benefits 832 857 857 856 856 856 856
14,992 15,506 15,231 15,198 15,198 15,198 15,198
WORKING CAPITAL 5,785 6,794 7,175 8,589 8,589 8,589 8,589
Plus: Non-current Assets
Investments 14,392 15,204 16,102 16,930 16,930 16,930 16,930
Property, plan and equipment 25,252 25,861 25,787 25,851 25,851 25,851 25,851
Intangible assets 2 302 830 1,322 1,322 1,322 1,322
39,646 41,367 42,719 44,103 44,103 44,103 44,103
Less: Non-current Liabilities
Payables 524 510 492 489 489 489 489
Borrowings 28,833 30,591 30,131 30,113 30,113 30,113 30,113
Employee benefits 7,491 7,710 7,716 7,706 7,706 7,706 7,706
36,848 38,811 38,339 38,308 38,308 38,308 38,308
Net Assets 8,583 9,350 11,555 14,384 14,384 14,384 14,384
EQUITY
Issued and paid-up capital 1,000 1,000 1,000 1,000 1,000 1,000 1,000
Reserves 7,201 7,190 7,190 7,190 7,190 7,190 7,190
Accumulated surpluses/(deficits) 382 1,160 3,365 6,194 6,194 6,194 6,194
Total Equity 8,583 9,350 11,555 14,384 14,384 14,384 14,384
Appendix 6 77 77 77 77 77
78 78 78 78 78 Handbook for Borrowers on the Financial Management and Analysis of Projects
Example Service OrganizationForecast Cash Flow Statements
[Format for financial projections] for the years ended 31 December
($’000)
20X1 20X2 20X3 20X4 20X5 20X6 20X7
Notes Actual Actual Actual Actual Actual Forecast Forecast
OPERATING CASH FLOWS
Receipts
Cash receipts from customers 34,793 36,603 39,177 41,118 41,118 41,118 41,118
Other receipts 341 265 289 279 279 279 279
Payments
Employees -12,615 -13,043 -13,428 -13,917 -13,917 -13,917 -13,917
Suppliers -19,750 -20,920 -20,848 -21,167 -21,167 -21,167 -21,167
Other payments -369 -490 -1,088 -1,684 -1,684 -1,684 -1,684
Net Cash Flows from Operating Activities 2 2,400 2,415 4,102 4,629 4,629 4,629 4,629
INVESTING CASH FLOWS
Receipts
Interest received 1,070 835 834 901 901 901 901
Sales of fixed assets 250 125 68 59 59 59 59
Sales of investments 1,983 57 1,071 244 244 244 244
Payments
Interest paid -2,507 -2,516 -2,561 -2,502 -2,502 -2,502 -2,502
Purchases of fixed assets -1,469 -2,459 -2,808 -3,181 -355 -355 -355
Purchases of investments -130 -55 -102 -98 -98 -98 -98
Net Cash Flows from Investing Activities -803 -4,013 -3,498 -4,577 -1,751 -1,751 -1,751
FINANCING CASH FLOWS
Receipts
Capital contributions from owners .. .. .. .. .. .. ..
Proceeds from new borrowings 275 1,477 353 56 56 56 56
Payments
Capital withdrawals .. .. .. .. .. .. ..
Repayment of borrowings -1,900 .. -953 -105 -105 -105 -105
Dividends paid .. .. .. .. -2,829 -2,829 -2,829
Net Cash Flows from Financing Activities -1,625 1,477 -600 -49 -2,878 -2,878 -2,878
CASH AND CASH EQUIVALENTS
Balances as at 1 January 230 210 93 97 100 100 100
Currency changes on opening balances 8 4 .. .. .. .. ..
Net increases/(decreases) for period -28 -121 4 3 .. .. ..
Balances as at 31 December 210 93 97 100 100 100 100
Example Service Organization
Notes to the Financial Statements [Format for financial projections]
for the years ended 31 December
($’000)
20X1 20X2 20X3 20X4 20X5 20X6
Actual Actual Actual Actual Actual Forecast
Note 1: Revenues by Service Type
Service Type A 376 353 379 387 387 387
Service Type B 34,035 35,748 38,274 40,195 40,195 40,195
Service Type C 641 647 635 620 620 620
35,052 36,748 39,288 41,202 41,202 41,202
Note 2: Reconciliation of Income Statement to Operating Cash Flows
Net Surplus/(Deficit) per Income Statement 1,449 765 2,205 2,829 .. ..
Items included in net surpluses but not in
net cash flows from operations:
Unrealized net foreign exchange gains -66 -87 .. .. .. ..
Interest received -1,070 -835 -834 -901 .. ..
Interest paid 2,507 2,516 2,561 2,502 .. ..
Asset movements
Depreciation 791 872 918 926 .. ..
Gains/(losses) on sales of assets -7 3 .. .. .. ..
Other non-cash items
Movements in employee benefit liabilities -936 110 864 1,134 .. ..
Movements in working capital -286 -929 -1,612 -1,861
Net Cash Flows from Operations 2,400 2,415 4,102 4,629 .. ..
Appendix 6 79 79 79 79 79
80 80 80 80 80 Handbook for Borrowers on the Financial Management and Analysis of Projects
Appendix 7 Model Financial Statements:
Manufacturing Organization
Paragraph 5.46 (page 31) refers to this appendix. This model set
of summary financial statements is appropriate for use by a manufacturing-
type organization. When using these financial statements, it is essential
that: (i) an appropriate Statement of Accounting Policies be developed
and agreed between ADB and the borrower; (ii) appropriate Notes to the
Financial Statements supplement the financial statements; and (iii) where
appropriate, the Financial Statements should be tailored so that they
adequately reflect the performance and position of the organization. The
format used for this particular model set of summary financial statements
is appropriate for year-end reporting.
Example Manufacturing Organization
Income Statement
[Format for year-end reporting]
for the year ended 31 December 20X2
For the Year Ended 31 December 20X2 Cumulative Since Project Start-Date
Actual Forecast Variance Actual Forecast Variance
Notes $’000 $’000 $’000 % $’000 $’000 $’000 %
SALES 1 893,121 1,431,093 -537,972 -37.6 1,976,522 2,173,098 -196,576 -9.0
Less Cost of Goods Sold 2 813,673 1,296,081 482,408 37.2 1,760,823 1,932,016 171,193 8.9
GROSS PROFIT 79,448 135,012 -55,564 -41.2 215,699 241,082 -25,383 -10.5
Operating Costs
Administrative Salaries 27,326 37,742 10,416 27.6 39,950 41,506 1,556 3.7
Depreciation 3,917 7,335 3,418 46.6 8,554 7,953 -601 -7.6
Amortization 12,357 12,357 .. 0.0 12,357 12,357 .. 0.0
Administration Costs 56,037 88,259 32,222 36.5 92,672 97,306 4,634 4.8
Marketing Expenses 3,109 4,985 1,876 37.6 6,904 7,596 692 9.1
102,746 150,678 47,932 31.8 160,437 166,718 6,281 3.8
OPERATING PROFIT -23,298 -15,666 -7,632 48.7 55,262 74,364 -19,102 -25.7
Other income 1,000 1,080 -80 -7.4 1,166 1,260 -94 -7.5
Foreign exchange gains/(losses) .. -1,570 1,570 -100.0 -1,564 -1,845 281 -15.2
Net Income before
Interest and Taxes -22,298 -16,156 -6,142 38.0 54,864 73,779 -18,915 -25.6
Project-related interest expenses -42,672 -63,657 20,985 -33.0 -52,343 -39,604 -12,739 32.2
Other interest expenses .. .. .. 0.0 .. .. .. 0.0
Income tax expense .. .. .. 0.0 . . -8,189 8,189 -100.0
Net Income after Interest and Taxes -64,970 -79,813 14,843 -18.6 2,521 25,986 -23,465 -90.3
Gross Margin (% of Sales) 8.9 9.4 -0.5 .. 10.9 11.1 -0.2 ..
Operating Margin (% of Sales) -2.6 -1.1 -1.5 .. 2.8 3.4 -0.6 ..
Example Manufacturing Organization
Balance Sheet
[Format for year-end reporting]
as at 31 December 20X2
For the Year Ended 31 December 20X2 Cumulative Since Project Start-Date
Actual Forecast Variance Actual Forecast Variance
Notes $’000 $’000 $’000 % $’000 $’000 $’000 %
Current Assets
Cash and bank 25,308 10,373 34,085 -62,165
Bills receivable 56,114 59,943 82,791 91,025
Accounts receivable 3 18,705 19,981 27,597 30,342
Inventories 4 365,150 402,058 427,488 455,796
Prepayments and other
current assets 120,193 120,193 120,193 120,193
585,470 612,548 692,154 635,191
Less: Current Liabilities
Accounts payable 93,174 103,203 140,826 156,768
Short-term debt 207,610 207,610 207,610 207,610
Notes and bills payable 5,000 5,000 5,000 5,000
Advances from customers 13,084 13,084 13,084 13,084
Accrued wages and salaries 184,427 184,427 184,427 184,427
Taxes payable 72,607 72,648 72,890 81,167
Accruals and other current
Liabilities 47,749 47,749 47,749 47,749
Current portion of term debt 3,000 13,578 28,824 71,070
626,651 647,299 700,410 766,875
WORKING CAPITAL -41,181 -34,751 -8,256 -131,684
Plus: Non-current Assets
Fixed assets 800,263 1,222,024 1,136,482 1,056,928
Capital work in progress (Assets under
construction) 445,108 169,390 520,880 913,740
Intangibles and deferrals 49,426 37,069 24,712 12,355
Other non-current assets 30,572 15,572 .. ..
1,325,369 1,444,055 1,682,074 1,983,023
Less: Non-current Liabilities
Term loans 443,700 621,349 554,132 670,517
Payables 7,646 7,646 7,646 7,646
Other non-current liabilities 49,250 49,250 49,250 49,250
500,596 678,245 611,028 727,413
NET ASSETS 783,592 731,059 1,062,790 1,123,926
EQUITY
Issued and paid-up capital 315,147 342,427 671,637 706,787
Accumulated surpluses/(deficits) 468,445 388,632 391,153 417,139
783,592 731,059 1,062,790 1,123,926
Current Ratio 0.93 0.95 0.99 0.83
Quick Ratio 0.16 0.14 0.21 0.08
Long-term Debt: Equity 0.64 0.93 0.57 0.65
Appendix 7 81 81 81 81 81
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Example Manufacturing Organization
Statement of Cash Flows
[Format for year-end reporting]
for the year ended 31 December 20X2
For the Year Ended 31 December 20X2 Cumulative Since Project Start-Date
Actual Forecast Variance Actual Forecast Variance
Notes $’000 $’000 $’000 % $’000 $’000 $’000 %
OPERATING CASH FLOWS
Receipts
Cash receipts from customers 915,146 1,448,537 -533,391 -36.8 1,972,084 2,173,621 -201,537 -9.3
Tax rebates 23,260 27,280 -4,020 -14.7 30,990 35,150 -4,160 -11.8
Other receipts 1,000 1,080 -80 -7.4 1,166 1,260 -94 -7.5
Payments
Employees and suppliers -896,292 -1,387,934 491,642 -35.4 -1,811,168 -2,019,189 208,021 -10.3
Taxes paid -5,942 -7,508 1,566 -20.9 -10,212 -11,414 1,202 -10.5
Other payments .. 0.0 .. 0.0
Net Cash Flows from Operations 5 37,172 81,455 -44,283 -54.4 182,860 179,428 3,432 1.9
INVESTING CASH FLOWS
Receipts
Interest received .. .. .. 0.0 .. .. .. 0.0
Sales of fixed assets .. .. .. 0.0 .. .. .. 0.0
Sales of investments .. .. .. 0.0 .. .. .. 0.0
Payments
Interest paid -28,482 -42,370 13,888 -32.8 -41,700 -39,604 -2,096 5.3
Capital expenditures .. -219,390 219,390 -100.0 -351,490 -392,860 41,370 -10.5
Purchases of investments .. 0.0 .. 0.0
Net Cash Flows from Investing
Activities -28,482 -261,760 233,278 -89.1 -393,190 -432,464 39,274 -9.1
FINANCING CASH FLOWS
Receipts
Capital contributions from owners .. .. .. 0.0 .. .. .. 0.0
Proceeds from new borrowings .. 168,370 -168,370 -100.0 247,620 185,610 62,010 33.4
Payments
Repayment of borrowings -3,000 -3,000 .. 0.0 -13,578 -28,824 15,246 -52.9
Dividends paid .. .. .. 0.0 .. .. .. 0.0
Net Cash Flows from Financing
Activities -3,000 165,370 -168,370 -101.8 234,042 156,786 77,256 49.3
CASH AND CASH EQUIVALENTS
Balances as at 1 January 19,618 25,308 10,373 34,085
Currency changes on opening balances .. .. .. ..
Net increases/(decreases) for period 5,690 -14,935 -20,625 -138.1 23,712 -96,250 -119,962 -124.6
Balances as at 31 December 25,308 10,373 34,085 -62,165
Example Manufacturing Organization
Notes to the Financial Statements
[Format for year-end reporting]
for the year ended 31 December 20X2
For the Year Ended 31 December 20X2 Cumulative Since Project Start-Date
Actual Forecast Variance Actual Forecast Variance
$’000 $’000 $’000 % $’000 $’000 $’000 %
Note 1: Gross Margin by Product
Sales by Product:
Product A 240,318 284,659 -44,341 -15.6 394,096 433,618 -39,522 -9.1
Product B 230,868 258,132 -27,264 -10.6 357,413 393,240 -35,827 -9.1
Product C 262,416 586,880 -324,464 -55.3 812,700 894,080 -81,380 -9.1
Product D 149,919 287,022 -137,103 -47.8 397,913 437,760 -39,847 -9.1
Product E 9,600 14,400 -4,800 -33.3 14,400 14,400 .. 0.0
Total 893,121 1,431,093 -537,972 -37.6 1,976,522 2,173,098 -196,576 -9.0
Cost of Sales by Product:
Product A 203,418 311,059 107,641 34.6 352,165 405,723 53,558 13.2
Product B 203,418 336,981 133,563 39.6 316,948 367,083 50,135 13.7
Product C 260,375 414,746 154,371 37.2 739,546 734,166 -5,380 -0.7
Product D 138,324 220,334 82,010 37.2 334,556 405,723 71,167 17.5
Product E 8,138 12,961 4,823 37.2 17,608 19,321 1,713 8.9
Total 813,673 1,296,081 482,408 37.2 1,760,823 1,932,016 171,193 8.9
Gross Profit by Product ($’000):
Product A 36,900 -26,400 63,300 -239.8 41,931 27,895 14,036 50.3
Product B 27,450 -78,849 106,299 -134.8 40,465 26,157 14,308 54.7
Product C 2,041 172,134 -170,093 -98.8 73,154 159,914 -86,760 -54.3
Product D 11,595 66,688 -55,093 -82.6 63,357 32,037 31,320 97.8
Product E 1,462 1,439 23 1.6 -3,208 -4,921 1,713 -34.8
Total 79,448 135,012 -55,564 -41.2 215,699 241,082 -25,383 -10.5
Gross Margin by Product (%):
Product A 15.4 -9.3 24.6 .. 10.6 6.4 4.2 ..
Product B 11.9 -30.5 42.4 .. 11.3 6.7 4.7 ..
Product C 0.8 29.3 -28.6 .. 9.0 17.9 -8.9 ..
Product D 7.7 23.2 -15.5 .. 15.9 7.3 8.6 ..
Product E 15.2 10.0 5.2 .. -22.3 -34.2 11.9 ..
Total 8.9 9.4 28.2 .. 10.9 11.1 20.5 ..
Note 2: Cost of Goods Sold
Raw Materials 424,751 690,624 265,873 38.5 945,534 1,039,383 93,849 9.0
Utilities 238,734 416,461 177,727 42.7 592,612 679,561 86,949 12.8
Direct Labor 79,639 121,775 42,136 34.6 118,937 112,413 -6,524 -5.8
Direct Depreciation 35,257 66,012 30,755 46.6 76,988 71,601 -5,387 -7.5
Other Variable Costs 22,750 38,117 15,367 40.3 52,182 57,366 5,184 9.0
801,131 1,332,989 531,858 39.9 1,786,253 1,960,324 174,071 8.9
Plus opening finished goods 93,437 80,895 -12,542 -15.5 117,803 143,233 25,430 17.8
Less closing finished goods -80,895 -117,803 -36,908 31.3 -143,233 -171,541 -28,308 16.5
Cost of Goods Sold 813,673 1,296,081 482,408 37.2 1,760,823 1,932,016 171,193 8.9
Appendix 7 83 83 83 83 83
84 84 84 84 84 Handbook for Borrowers on the Financial Management and Analysis of Projects
Example Manufacturing Organization
Notes to the Financial Statements
[Format for year-end reporting]
for the year ended 31 December 20X2
For the Year Ended Cumulative Since Project
31 December 20X2 Start-Date
Actual Forecast Variance Actual Forecast Variance
$’000 $’000 $’000 % $’000 $’000 $’000 %
Note 3: Receivables
By Organization Type:
Related parties 576 700 750 750
State-owned organizations 10,256 12,500 17,200 19,000
Other organizations 9,744 9,000 12,500 14,000
Gross Receivables 20,576 22,200 30,450 33,750
By Age
Less than 30 days old 10,000 11,000 15,000 19,000
30–60 days old 5,000 5,500 7,000 9,000
60–90 days old 2,500 2,500 5,000 4,000
90–180 days old 2,000 2,000 2,000 1,000
More than 180 days old 1,076 1,200 1,450 750
Gross Receivables 20,576 22,200 30,450 33,750
Less: Provision for Doubtful Debts -1,871 -2,219 -2,853 -3,408
Net Receivables per balance 18,705 19,981 27,597 30,342
Note 4: Inventories
By Age
Less than 2 months old 100,000 120,000 125,000 160,000
2–4 months old 80,000 90,000 95,000 150,000
4–6 months old 100,000 95,000 95,000 90,000
6–9 months old 60,000 60,000 70,000 40,000
9–12 months old 20,000 30,000 35,000 20,000
More than 12 months old 15,150 17,058 17,488 5,796
Gross Inventories 375,150 412,058 437,488 465,796
Less: Provision for Obsolete Inventories -10,000 -10,000 -10,000 -10,000
Net Inventories per balance sheet 365,150 402,058 427,488 455,796
Note 5: Reconciliation of Income Statement to Operating Cash Flows
Net Surplus/(Deficit) per Income Statement .. .. .. ..
Items included in net surpluses but not in
net cash flows from operations:
Unrealized net foreign exchange gains .. .. .. ..
Interest revenues .. .. .. ..
Interest expenses .. .. .. ..
Asset movements
Depreciation .. .. .. ..
Gains/(losses) on sales of assets .. .. .. ..
Other non-cash items
Movements in employee benefit liabilities .. .. .. ..
Movements in working capital
Decrease/(increase) in receivables .. .. .. ..
Decrease/(increase) in inventories .. .. .. ..
Decrease/(increase) in work in progress .. .. .. ..
Increase/(decrease) in payables .. .. .. ..
Net Cash Flows from Operations .. .. .. ..
Appendix 8 Model Auditor Terms of Reference:
Executing Agency Audit
Paragraph 5.73 (page 37) refers to this appendix.
ENTITY NAME: XYZ
AUDIT OF ANNUAL FINANCIAL STATEMENTS
AUDITOR TERMS OF REFERENCE
GUIDANCE: This template is appropriate for the audit of executing agencies
(EAs) or implementing agencies (IAs). It should be completed—by the
borrower, EA or project preparatory technical assistance (PPTA)
consultants—and provided to ADB for comments before fact finding. This
template can be applied to the audit of either a revenue-earning or
nonrevenue-earning EA.
Introduction
GUIDANCE: Briefly describe the audit assignment. Specify whether the
engagement is for one or more financial years. A longer period (e.g., 3–5
years) will enable the auditor to become familiar with the entity. The actual
contract should allow for termination for inadequate performance, but
not for issuing a qualified, adverse or disclaimer opinion.
1. The management of XYZ requires an auditor to carry out the
following audit services for the [X] years ended 31 December 20xx:
• An audit of XYZ Annual Financial Statements (AFS).
2. This letter describes the assignment scope and terms and invites
you to submit a proposal for delivery of these services.
General Background
GUIDANCE: Briefly describe the project in the context of its contribution to
achievement of the EA’s economic goals. The auditor must understand
the “purpose for which the funds are intended” in the context of the broad
project objec-tives as well as in terms of the specific project budget.
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3. …
GUIDANCE: Briefly summarize relevant accounting and financial
management practices. Various diagnostic reports are available that
describe accounting and financial man-agement practices (e.g., ADB
Diagnostic Studies of Accounting and Auditing, World Bank Country
Financial Accountability Assessments). Emphasis should be placed on
issues raised and risks identified in these reports.
4. …
Employing Authority or Entity
GUIDANCE: The details of the proposed contractor of the auditor’s services
should be provided. If the contractor is acting on behalf of, or is part of, a
larger authority or entity, this should be disclosed, to assist prospective
auditors to determine their independence.
5. The audit services will be contracted by:
Delivery of Opinions and Reports
GUIDANCE: The required opinions and documents should be clearly
specified, together with delivery time frames.
6. The auditor will provide the following opinions and reports to
management (with copies to ADB), in accordance with the following time
frames:
• Audit Opinion on Annual Financial Statements of [XYZ]
• Management Letter relating to [XYZ]
7. All reports must be provided in the English language.
Objectives
8. The primary objective of the AFS audit is to enable the auditor to
express an independent opinion on whether the AFS present fairly, in all
material respects the financial position of XYZ as of 31 December 20xx,
and of the results of its operations and its cash flows for the year then
ended in accordance with agreed accounting standards (see Terms and
Definitions).
9. Secondary objectives include confirming compliance, or
otherwise, with: (i) each financial covenant contained in the legal
documents for the project (see Terms and Definitions); and (ii) all other
financial assurances contained in the legal documents for the project (see
Terms and Definitions).
Description of XYZ
GUIDANCE: A detailed description—both legal and generally informative—
should be provided to enable the auditor to understand fully the nature,
location and objective of the entity under audit. Geographic characteristics
should be described, together with: (i) organization charts; (ii) names of
senior managers; (iii) name and qualification of the person(s) responsible
for financial management, accounting and internal audit; (iv) name and
address of any existing external auditor; (v) computing or other data
processing facilities in use; (vi) a copy of the latest published financial
statements; and (vii) internal facilities (if any) available to an external
auditor (e.g., office accommodation, calculators, and computer facilities).
A general summary of the financial management assessment of the EA
should be included, together with a reference that the full financial
management assessment will be made available to the auditor. Detailed
information should be appended.
10. …
Description of Materials and Timing of Delivery
GUIDANCE: The AFS and supporting documentation that will be supplied
to the auditor, and on which they are to give an opinion and a report,
should be specified. The estimated time for providing these documents to
the auditor should be stated (e.g., one month after financial year-end).
This schedule helps the auditee and the auditor plan for the accounts-
preparation and the audit process.
11. The AFS (see Terms and Definitions) and supporting
documentation will be provided to the auditor on the following estimated
dates:
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Audit Scope
GUIDANCE: The scope of the audit should be sufficiently clear to properly define
what is expected of the auditor but not in any way restrict the audit procedures
or the tech-niques the audi-tor may wish to use to form an opinion. This section
will not generally have to be customized to a particular audit situation.
12. Auditing Standards and Program. The audit will be carried out
in accordance with the agreed auditing standards (see Terms and
Definitions), including professional or general standards, standards of
fieldwork and reporting standards.
13. The audit program will consider the risk of material
misstatements resulting from fraud or error. It should include procedures
that are designed to provide reasonable assurance that material
misstatements (if any) are detected.
14. Internal Control Systems. The auditor will assess the adequacy
of financial management systems, including internal controls.
15. The auditor should communicate with independent board
members (where present). Among other things, this dialogue should cover
the adequacy of bad-debt provisions, contingent liabilities, related-party
transactions, internal control systems, management and board reporting,
and management systems, integrity and capability.
16. Accounting Policies and Changes. The auditor should comment
on the entity’s accounting policies, and confirm the extent to which the
agreed accounting standards (see Terms and Definitions) have been
applied. In particular, the auditor should note the impact on the AFS arising
from any material deviations from agreed accounting standards. The
auditor should also comment on any material accounting policy changes,
either during a financial year, or from one year to another.
17. Compliance with Financial Covenants. The auditor will confirm
compliance with each financial covenant contained in the legal documents
for the project (see Terms and Definitions). Where present, the auditor
should indicate the extent of any noncompliance by comparing required
and actual performance measurements for each financial covenant for
the financial year concerned.
18. Compliance with Financial Assurances. The auditor will confirm
compliance with all financial assurances contained in the legal documents
for the project (see Terms and Definitions). Where present, the auditor
should indicate the extent of any noncompliance by comparing required
and actual performance of the borrower in respect of these ADB
requirements for the financial year concerned.
Management Letter
19. On conclusion of the audit, the auditor will prepare a
management letter, detailing:
• any material weaknesses in the accounting and internal
control systems that were identified during the audit,
• recommendations to rectify identified weaknesses,
• the status of significant matters raised in previous
management letters and any corrective actions taken by the
organization,
• practical recommendations on the steps that the organization
could take to become materially compliant with the agreed
accounting standards (see Terms and Definitions), together
with a time frame for making these changes,
• any other matters that the auditor considers should be brought
to the attention of the organization’s management, and
• any significant matters that the auditor considers should be
brought to ADB’s attention.
Statement of Access
20. The auditor will have full and complete access, at all reasonable
times, to all records and documents including books of account, legal
agreements, bank records, invoices and any other information associated
with the project and deemed necessary by the auditor.
21. The auditor will be provided with full cooperation by all
employees of [XYZ] and the project-implementing units, whose activities
involve, or may be reflected in, the annual financial statements. The auditor
will be assured rights of access to banks and depositories, consultants,
contractors and other persons or firms hired by the employer.
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Independence
22. The auditor will be impartial and independent from any aspects
of management or financial interest in the entity under audit. In particular,
the auditor should be independent of the control of the entity. The auditor
should not, during the period covered by the audit, be employed by, or
serve as director for, or have any financial or close business relationship
with the entity. The auditor should not have any close personal relationships
with any senior participant in the management of the entity. The auditor
must disclose any issues or relationships that might compromise their
independence.
Auditor and Audit Staff Competence
23. The auditor must be authorized to practice in the country and
be capable of applying the agreed auditing standards (see Terms and
Definitions). The auditor should have adequate staff, with appropriate
professional qualifications and suitable experience, including experience
in auditing the accounts of entities comparable in nature, size and
complexity to the entity whose audit they are to undertake.
24. To this end, the auditor is required to provide curriculum vitae
(CV) of the auditors who will provide the opinions and reports, together
with the CVs of managers, supervisors and key personnel likely to be
involved in the audit work. These CVs should include details of audits
carried out by these staff, including ongoing assignments.
Submission of Proposal and Work Plan
25. You are invited to submit a proposal and a work plan to provide
the audit services described in this letter. Proposals should address, among
other things:
• the extent (if any) that you would not conform to the agreed
auditing standards (see Terms and Definitions) and indicate
any alternative standards to which the auditor may (be
required to) conform;
• whether the audit would be conducted as a completed audit
(i.e., will you carry out the audit after financial year-end, when
the books of account are, or are being, closed);
• whether an audit carried out after the close of a financial year
would be supplemented by one or more interim audits during
a financial year. The principal purpose is to test ongoing
systems and internal controls, and to relieve pressure on the
staff of the entity and on the auditor at year-end;
• the manner in which the auditor proposes to address any
statutory requirements relating to audit (e.g., certifications
relating to shareholders’ equity required under the
companies’ act) or to which they may be implicitly bound by
contractual obligations of the employer (e.g., ADB auditing
requirements, Statements of Expenditure, Imprest Accounts);
• procedural requirements for certain verification procedures
(e.g., checking of stocks, inventories, assets, etc.);
• specific actions required on the part of the employer (e.g.,
access to computer systems and records, disclosures);
• discussions before signing the opinion and report on any
matters arising from the audit, and with whom these
discussions would be held; and
• the timetable for provision of opinions and reports.
Terms and Definitions
26. This section defines the terms used in this document.
1. Annual Financial Statements
GUIDANCE: The EA will prepare Annual Financial Statements (AFS). Most
revenue-earning EAs (e.g., Utilities) will prepare accrual-based financial
statements. EA reporting requirements will usually be specified in the
Report and Recommendation of the President and in the loan agreement.
The component parts of the AFS should be specified in this section.
27. The AFS comprises:
[Option A: Generally IAS-compliant Accrual-based Financial Statements]:
• Statement of Accounting Policies,
• Statement of Financial Performance (or income statement),
• Statement of Financial Position (or balance sheet),
• Statement of Movements in Equity,
• Statement of Cash Flows,
• Notes to the Financial Statements, abd
• Other Information (specify).
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[Option B: Other Financial Reports]:
• Statement of Accounting/Financial Policies,
• Statement of Income/Cash Receipts,
• Statement of Expenses/Cash Payments,
• Statement of Cash Flows/Cash Receipts and Payments,
• Notes to the Financial Statements, and
• Other Information (specify).
2. Agreed Accounting Standards
GUIDANCE: The accounting standards that govern AFS preparation will
normally be agreed and documented in the RRP and/or loan agreement.
Choose the appropriate option.
28. “Agreed accounting standards” regarding the preparation of the
AFS, means:
• [Option A: International Accounting Standards] the
International Financial Reporting Standards (IFRS) issued by
the International Accounting Standards Board (IASB)
(commonly known as international accounting standards).
• [Option B: National Accounting Standards] the accounting
standards issued by [national authority].
• [Option C: Modified National Accounting Standards] the
accounting standards issued by [national authority], with the
following modifications and/or additional disclosures:
• [Option D: Cash-based International Public Sector Accounting
Standards] the cash-based International Public Sector
Accounting Standards (IPSAS) promulgated by the
International Federation of Accountants (IFAC).
• [Option E: Accrual-based International Public Sector
Accounting Standards] the accrual-based International Public
Sector Accounting Standards (IPSAS) promulgated by the
International Federation of Accountants (IFAC).
• [Option F: Specific Government Accounting Standards]
describe these standards.
3. Agreed Auditing Standards
GUIDANCE: The agreed auditing standards will normally be documented
in the RRP and/or loan agreement. Choose the appropriate option.
29. “Agreed auditing standards” means:
• [Option A: International Standards on Auditing] the
International Standards on Auditing (ISA) promulgated by the
International Auditing and Assurance Standards Board
(IAASB).
• [Option B: INTOSAI Auditing Standards] the auditing
standards promulgated by the International Organization of
Supreme Audit Institutions (INTOSAI).
• [Option C: National Auditing Standards] the auditing
standards promulgated by [national authority].
4. Financial Covenants Applicable to [XYZ]
GUIDANCE: The financial covenants that are applicable to the EA will be
included in the loan agreement (e.g., Self-financing Ratio). This section
should list, describe and fully reference all applicable financial covenants.
30. The following financial covenants, regarding [XYZ], have been
agreed:
5. Financial Assurances Applicable to [XYZ]
GUIDANCE: The financial assurances that are applicable to the EA—such
as a commitment to employ suitably-qualified accounting personnel—
will be included in project legal documents. This section should list,
describe and fully reference all applicable financial assurances.
31. The following financial assurances, regarding [XYZ], have been
given:
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Appendix 9 Model Auditor Terms of Reference:
Annual Project Accounts Audit
Paragraph 5.73 (page 37) refers to this appendix.
[ENTITY NAME: XYZ]
AUDIT OF ANNUAL PROJECT ACCOUNTS
AUDITOR TERMS OF REFERENCE
GUIDANCE: This template is appropriate for an APA audit. It should be
completed—by the borrower, executing agency (EA) or project preparatory
technical assistance (PPTA) consultants—and provided to ADB for
comments before fact finding. This template can be applied to the audit
of either a revenue-earning or nonrevenue-earning project.
A. Introduction
GUIDANCE: Briefly describe the audit assignment. Specify whether the
engagement is for one or more financial years. A longer period (e.g., 3–5
years) will enable the auditor to become familiar with the entity. The actual
contract should allow for termination for inadequate performance, but
not for issuing a qualified, adverse or disclaimer opinion.
32. The management of XYZ requires an auditor to carry out the
following audit services for the [X] years ended 31 December 20xx:
• An audit of the Annual Project Accounts (APA) for each of the
loan projects listed below (see Terms and Definitions).
33. This letter describes the assignment scope and terms and invites
you to submit a proposal for delivery of these services.
General Background
GUIDANCE: Briefly describe the supervising agency and the EA. Describe
the project in the context of its contribution to achievement of the EA’s
economic goals. The auditor must understand the “purpose for which the
funds are intended” in the context of the broad project objectives as well
as in terms of the specific project budget.
34. …
GUIDANCE: Briefly summarize relevant accounting and financial
management practices. Various diagnostic reports are available that
describe accounting and financial man-agement practices (e.g., ADB
Diagnostic Studies of Accounting and Auditing, World Bank Country
Financial Accountability Assessments). Emphasis should be placed on
issues raised and risks identified in these reports.
35. …
Employing Authority or Entity
GUIDANCE: The details of the proposed contractor of the auditor’s services
should be provided. If the contractor is acting on behalf of, or is part of, a
larger authority or entity, this should be disclosed, to assist prospective
auditors to determine their independence.
36. The audit services will be contracted by:
Delivery of Opinions and Reports
GUIDANCE: The required opinions and documents should be clearly
specified, together with delivery time frames.
37. The auditor will provide the following opinions and reports to
management (with copies to ADB), in accordance with the following time
frames:
• Audit Opinion on the Annual Project Accounts of:
– Loan xxx
– Loan xxx
• Management Letter on the following projects:
– Loan xxx
– Loan xxx
38. All reports must be provided in the English language.
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Objectives
GUIDANCE: Specify the audit’s objectives.
39. The objective of the APA audit (see Terms and Definitions) is to
enable the auditor to express an opinion on the financial position of each
of the loan projects listed below (see Terms and Definitions), for the years
ending 31 December 20xx, and on the funds received and expenditures
for the years then ended.
GUIDANCE: This paragraph should be applied where it is referred to in the
loan agreement.
40. Separate opinions on the eligibility of claims made in Statements
of Expenditure (SOEs) and on the Imprest Account Statement are also
required.
Description of Materials and Timing of Delivery
GUIDANCE: The form of the APA and supporting documentation that will
be supplied to the auditor, and on which they are to give an opinion and a
report, should be specified. In practice, the form and content of APA will
vary among countries and projects. For instance, the APA may comprise a
Statement of Receipts and Payments only on project transactions. Other
schedules may include cumulative work-in-progress, assets and
inventories, and a summarized bank reconciliation. The estimated time
for providing these documents to the auditor should be stated (e.g., one
month after financial year-end). This schedule helps the auditee and the
auditor plan for the accounts-preparation and the audit process.
41. The Annual Project Accounts (APA) (see Terms and Definitions)
and supporting documentation will be provided to the auditor on the
following estimated dates:
Audit Scope
GUIDANCE: The scope of the audit should be sufficiently clear to properly
define what is expected of the auditor, but should not restrict the audit
procedures or the tech-niques the audi-tor may wish to use to form an
opinion. This section will not generally have to be customized to a particular
audit situation. The list of issues outlined in this section is not exhaustive,
nor should all matters be addressed in every project. The scope and detail
of an audit are likely to be unique for each project.
42. Auditing Standards and Program. The audit will be carried out
in accordance with the agreed auditing standards (see Terms and
Definitions), in-cluding professional or general standards, standards of
fieldwork and reporting standards.
43. The audit program will consider the risk of material
misstatements resulting from fraud or error. It should include procedures
that are designed to provide reasonable assurance that material
misstatements (if any) are detected.
44. Accounting Policies and Changes. The auditor should comment
on the project’s accounting policies, and confirm the extent to which the
agreed project accounting policies (see Terms and Definitions) have been
applied. In particular, the auditor should note the impact on the APA arising
from any material deviations from the agreed accounting standards. The
auditor should also comment on any accounting policy changes, either
during a financial year, or from one year to another.
45. Imprest Account (or Special Account). The Imprest Account
reflects: (i) deposits and replenishment received from financiers; (ii)
payments substantiated by withdrawal applications; and (iii) the remaining
balance at financial year-end. The auditor will examine whether the
Imprest Account has been maintained in accordance with the provisions
of the relevant financing agreements.
46. The auditor must form an opinion on whether the Imprest
Account was used in compliance with required procedures (e.g., those of
ADB), and the fairness of the presentation of Imprest Account activity and
the year-end balance. The auditor should examine the eligibility and
correctness of financial transactions during the period under review,
account balances at the end of the period, the operation and use of the
Imprest Account in accordance with the financing agreement, and the
adequacy of internal controls for this particular disbursement mechanism.
47. Statements of Expenditures (SOEs). The auditor will audit all
SOEs used as the basis for the submission of credit withdrawal applications
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to ADB. These expenditures should be compared for project eligibility with
the relevant financing agreements (and with reference to the RRP and
other project documents for guidance when considered necessary). Where
ineligible expenditures are identified as having been included in
withdrawal applications and reimbursed against, these should be
separately noted by the auditor. The annual audit report should include a
separate paragraph commenting on the accuracy and propriety of
expenditures withdrawn under SOE procedures, and the extent to which
ADB can rely on those SOEs as a basis for credit disbursement. Annexed
to the APA should be a schedule listing individual SOE withdrawal
applications by specific reference number and amount.
48. Compliance with Financial Covenants. The auditor will confirm
compliance with each financial covenant contained in the project legal
documents (see Terms and Definitions). Where present, the auditor should
indicate the extent of any noncompliance by comparing required and
actual performance measurements for each financial covenant for the
financial year concerned.
49. Compliance with Financial Assurances. The auditor will confirm
compliance with all financial assurances contained in the project legal
documents (see Terms and Definitions). Where present, the auditor should
indicate the extent of any noncompliance by comparing required and
actual performance of the borrower in respect of these ADB requirements
for the financial year concerned.
50. Use of Funds for the Purpose Intended. The auditor will
confirm, or otherwise, that:
• All external funds have been used in accordance with the
relevant financing agreements covering each project, with
due attention to economy and efficiency, and only for the
purpose for which the financing was provided;
• Counterpart funds have been provided and used in
accordance with the relevant financing arrangements and
only for the purpose for which the financing was provided;
and
• Goods and services financed have been procured in
accordance with the relevant financing agreements.
51. Record Keeping. The auditor will pay particular attention to
whether all necessary supporting documents, records, and accounts have
been kept in respect of all project activities, with clear linkages between
the accounting records and the APA. This will include: (i) computation
and recalculation, including checking the mathematical accuracy of
estimates, accounts or records; (ii) reconciliation, including reconciling
related accounts to each other, subsidiary records to primary records and
internal records to external documents; (iii) physical observation, including
inspecting or counting tangible assets, such as materials, inventory, land
buildings, property or equipment; (iv) confirmation, including directly
confirming balances or transactions with external third parties, such as
cash balances, accounts receivable or accounts payable; (v) sampling,
including vouching or examining supporting documentation to determine
if balances are properly stated; and (vi) tracing, including tracing journal
postings, subsidiary ledger balances, and other details to corresponding
general ledger accounts or trial balances.
52. Internal Control Systems. The auditor will assess the adequacy
of the project financial management systems, including internal controls,
including whether: (i) proper authorizations are obtained and documented
before transactions are entered into; (ii) accuracy and consistency are
achieved in recording, classifying, summarizing and reporting transactions;
(iii) reconciliations with internal and external evidence are performed on
a timely basis by the appropriate level of management; (iv) balances can
be confirmed with external parties; (v) adequate documentation and an
audit trail is retained to support transactions; (vi) transactions are allowable
under the agreements governing the project; (vii) errors and omissions
are detected and corrected by project personnel in the normal course of
their duties, and management is informed of recurring problems or
weaknesses; (viii) management does not override the normal procedures
and the internal control structure; and (ix) assets are property accounted
for, safeguarded and can be physically inspected.
Management Letter
53. On conclusion of the audit, the auditor will prepare a
Management Letter for each of the audited projects, detailing:
• Any material weaknesses in the accounting and internal
control systems that were identified during the audit;
Appendix 9 99 99 99 99 99
100 100 100 100 100 Handbook for Borrowers on the Financial Management and Analysis of Projects
• Recommendations to rectify identified weaknesses;
• The status of significant matters raised in previous
management letters;
• Practical recommendations on the steps that could be taken
to become materially compliant with the agreed project
accounting policies (see Terms and Definitions), together with
a time frame for making these changes;
• The degree of compliance with each of the financial
covenants in the loan agreement and recommendations for
improvement;
• Matters that have come to the auditor’s attention during the
course of the audit which have a significant impact on project
implementation;
• Any other matters that the auditor considers should be
brought to the attention of the project’s management; and
• Significant matters that the auditor considers should be
brought to ADB’s attention.
Statement of Access
54. The auditor will have full and complete access, at all reasonable
times, to all records and documents including books of account, legal
agreements, bank records, invoices and any other information associated
with the project and deemed necessary by the auditor.
55. The auditor will be provided with full cooperation by all
employees of [XYZ] and the project-implementing units, whose activities
involve, or may be reflected in, the annual financial statements. The auditor
will be assured rights of access to banks and depositories, consultants,
contractors and other persons or firms hired by the employer.
Independence
56. The auditor will be impartial and independent from any aspects of
management or financial interest in the entity under audit. In particular, the
auditor should be independent of the control of the entity. The auditor should
not, during the period covered by the audit, be employed by, or serve as director
for, or have any financial or close business relationship with the entity. The
auditor should not have any close personal relationships with any senior
participant in the management of the entity. The auditor must disclose any
issues or relationships that might compromise their independence.
Auditor and Audit Staff Competence
57. The auditor must be authorized to practice in the country and
be capable of applying the agreed auditing standards (see Terms and
Definitions). The auditor should have adequate staff, with appropriate
professional qualifications and suitable experience, including experience
in auditing the accounts of entities comparable in nature, size and
complexity to the entity whose audit they are to undertake.
58. To this end, the auditor is required to provide curriculum vitae
(CV) of the auditors who will provide the opinions and reports, together
with the CVs of managers, supervisors and key personnel likely to be
involved in the audit work. These CVs should include details of audits
carried out by these staff, including ongoing assignments.
Submission of Proposal and Work Plan
59. You are invited to submit a proposal and a work plan to provide
the audit services described in this letter. Proposals should address, among
other things:
• the extent (if any) that you would not conform to the agreed
auditing standards (see Terms and Definitions) and indicate
any alternative standards to which you may (be required to)
conform;
• whether the audit would be conducted as a completed audit
(i.e., will the auditors carry out their audit after financial year-
end, when the books of account are, or are being, closed);
• whether an audit carried out after financial year-end would
be supplemented by one or more interim audits during a
financial year. The principal purpose is to test ongoing systems
and internal controls, and to relieve pressure on the staff of
the entity and on the auditor at year-end;
• the manner in which the auditor proposes to address any
statutory requirements relating to audit (e.g., certifications
relating to shareholders’ equity required under the
companies’ act) or to which they may be implicitly bound by
contractual obligations of the employer (e.g., ADB auditing
requirements, Statements of Expenditure, Imprest Accounts);
• procedural requirements for certain verification procedures
(e.g., checking of stocks, inventories, assets, etc.);
Appendix 9 101 101 101 101 101
102 102 102 102 102 Handbook for Borrowers on the Financial Management and Analysis of Projects
• specific actions required on the part of the employer (e.g.,
access to computer systems and records, disclosures);
• discussions before signing the opinion and report on any
matters arising from the audit, and with whom these
discussions would be held; and
• the timetable for provision of opinions and reports.
Terms and Definitions
60. This section defines the terms used in this document.
Annual Project Accounts
GUIDANCE: The Annual Project Accounts (APA) may comprise a Statement
of Receipts and Payments (Cash flow statement). This template is specifically
intended for audits of these types of APA. Other schedules of value or
cumulative work-in-progress, assets and inventories and a summarized
reconciled bank statement are to be attached. Project reporting requirements
will usually be specified in the RRP and in the loan agreement. The
component parts of the APA should be specified in this section.
61. The Annual Project Accounts (APA) comprises:
[Option A: Generally IAS-compliant Accrual-based Financial Statements]:
• Statement of Accounting Policies,
• Statement of Financial Performance (or income statement),
• Statement of Financial Position (or balance sheet),
• Statement of Movements in Equity,
• Statement of Cash Flows,
• Notes to the Financial Statements, and
• Other Information (specify).
[Option B: Other Financial Reports]:
• Statement of Accounting/Financial Policies,
• Statement of Income/Cash Receipts,
• Statement of Expenses/Cash Payments,
• Statement of Cash Flows/Cash Receipts and Payments,
• Statement of Uses of Funds by Project Activity,
• Notes to the Financial Statements, and
• Other Information (specify).
GUIDANCE: The APA should include: (a) a summary of funds received
showing ADB funds, any cofinancing and counterpart funds separately;
(b) a summary of expenditures shown under the main project components
and by main categories of expenditures (as referenced in loan and appraisal
documentation) for the year ending 31 December 20xx and cumulative
expenditures on the project to date; and (c) statement of fund balance as
of 31 December 20xx.
Loan Projects
GUIDANCE: List the loan projects that will be audited. Provide brief details
and attach relevant documents.
62. Annual Project Accounts (APA) and supporting documentation
will be provided for the following loan projects financed by the Asian
Development Bank (ADB) [and IDA, EBRD, etc]:
• Loan xxxx,
• Loan xxxx, and
• Loan xxxx.
Agreed Project Accounting Policies
GUIDANCE: The project accounting policies that govern APA preparation
will normally be agreed and documented in the RRP and/or loan
agreement. Choose the appropriate option.
63. “Agreed project accounting policies” with regard to preparation
of Annual Project Accounts, means
• [Option A: Cash-based International Public Sector Accounting
Standards] the cash-based International Public Sector
Accounting Standard (IPSAS) promulgated by the
International Federation of Accountants (IFAC).
• [Option B: Accrual-based International Public Sector
Accounting Standards] the accrual-based International Public
Sector Accounting Standards (IPSAS) promulgated by the
International Federation of Accountants (IFAC).
• [Option C: International Accounting Standards] the
International Financial Reporting Standards (IFRS) issued by
the International Accounting Standards Board (IASB) (also
known as international accounting standards).
Appendix 9 103 103 103 103 103
104 104 104 104 104 Handbook for Borrowers on the Financial Management and Analysis of Projects
• [Option D: National Accounting Standards] the accounting
standards issued by [national authority].
• [Option E: Modified National Accounting Standards] the
accounting standards issued by [national authority], with the
following modifications and/or additional disclosures:
• [Option F: Specific Government Accounting Standards]
describe these standards.
Agreed Auditing Standards
GUIDANCE: The agreed auditing standards will normally be documented
in the RRP and/or loan agreement. Choose the appropriate option.
64. “Agreed auditing standards” means
• [Option A: International Standards on Auditing] the
International Standards on Auditing (ISA) promulgated by the
International Auditing and Assurance Standards Board (IAASB).
• [Option B: INTOSAI Auditing Standards] the auditing
standards promulgated by the International Organization of
Supreme Audit Institutions (INTOSAI).
• [Option C: National Auditing Standards] the auditing
standards promulgated by [national authority].
Financial Covenants Applicable to Projects
GUIDANCE: The financial covenants that are applicable to projects will be
included in loan agreements. This section should list, describe and fully
reference all applicable financial covenants.
65. The following financial covenants have been agreed for the
following projects:
Financial Assurances Applicable to Projects
GUIDANCE: The financial assurances that are applicable to the EA—such
as a commitment to employ suitably-qualified accounting personnel—
will be included in project legal documents. This section should list,
describe and fully reference all applicable financial assurances.
66. The following financial assurances, regarding the following
projects, have been given:
Appendix 10 Model Auditor Opinion for a
Nonrevenue-Earning Project
Paragraph 5.84 (page 41) refers to this appendix.
To: Borrower (or designated agency)
We have audited the accompanying financial statements
(pages _____ to _____) of the _______________ Project financed under the
Asian Development Bank Loan No. _____as of 31 December, 20____, and
for the year then ended.
These financial statements are the responsibility of the
management of [the EA]. Our responsibility is to express an opinion on
the accompanying statements based on our audit.
We conducted our examination in accordance with International
Standards on Auditing. Those standards require that we plan and perform
the audit to obtain reasonable assurance about whether the financial
statements are free of material misstatement. Our audit includes
examining, on a test basis, evidence supporting the amounts and
disclosures in the financial statements. Our audit also includes assessing
the accounting principles and significant estimates made by management,
as well as evaluating the overall statement presentation. We believe that
our audit provides a reasonable basis for our opinion.
_______ [The EA’s] policy is to prepare the accompanying
statements in the format agreed between the Asian Development Bank
and the Government of _______ as noted in the Minutes of Negotiations for
the Loan [on a cash receipts and disbursements basis in which cash is
recognized when received and expenses are recognized when paid, rather
than when incurred]/[on an accruals basis in which expenses are
recognized when incurred and revenue is reported when income is due].
In our opinion, (A) the aforementioned financial statements and
appended notes that were also the subject of the audit, fairly present in all
material respects the financial position of the _________ project as at
___________ 20____ and the results of its operations for the year ended
___________ 20____, in conformity with _______________ accounting standards,
applied on a basis consistent in all material respects with that of the
previous year; (B) the [Borrower] [EA] has utilized all proceeds of the
loan withdrawn from the Asian Development Bank only for purposes of
the Project as agreed between the Asian Development Bank and [the
Appendix 10 105 105 105 105 105
106 106 106 106 106 Handbook for Borrowers on the Financial Management and Analysis of Projects
Borrower] in accordance with the loan agreement; and no proceeds of
the loan have been utilized for other purposes; and (C) the [Borrower]
[EA] was in compliance as at the date of the balance sheet of the year of
audit with all financial covenants of the loan agreement.
In addition:
(i) (a) With respect to Statements of Expenditures, adequate supporting
documentation has been maintained to support claims to the Asian
Development Bank for reimbursements of expenditures incurred;
and (b) which expenditures are eligible for financing under Loan
Agreement No. _____.
(ii) (a) The Imprest Accounts (page ___) give a true and fair view of the
receipts collected and payments made during the year ending
______; and (b) these receipts and payments support Imprest
Account liquidations/replenishments during the year.
[(i) and (ii) above are to be provided where the loan agreement requires
separate Imprest Account and statement of expenditures audits and audit
opinions.]
Appendix 11 Model Auditor Opinion for a Revenue-Earning Agency
Paragraph 5.84 (page 41) refers to this appendix.
To: Borrower (or designated agency)
“We have examined the Balance Sheet of ___________as of
________ 20__ , and the Income Statement, Cash Flow Statement and
related statements and Notes (see pages____ to ____ of our Report) of the
_________________ Project financed under the Asian Development Bank
Loan No.________________ as of 31 December, 20___, and for the year then
ended.
We conducted our examination in accordance with International
Standards on Auditing [auditing standards of the country of ______]. Those
standards require that we plan and perform the audit to obtain reasonable
assurance about whether the financial statements are free of misstatement.
Our audit includes examining, on a test basis, evidence supporting the
amounts and disclosures in the financial statements. Our audit also
includes assessing the accounting principles and significant estimates
made by the Management, as well as evaluating the overall statement
presentation. We believe that our audit provides a reasonable basis for
our opinion.
In our opinion, (A) the aforementioned financial statements and
appended notes that were also the subject of the audit, fairly present
separately (i) the financial position of the ___________ Project and (ii) the
overall operations of the __________________ [name of EA] as
at__________20___and the separate results of the project operations and
the EA’s operations for the year ended _________ 20__, in conformity with
International Accounting Standards [accounting standards of the country
of___________], applied on a basis consistent in all material respects with
that of the previous year; (B) the [Borrower] [EA] has utilized all proceeds
of the loan withdrawn from the Asian Development Bank (ADB) only for
purposes of the Project as agreed between the Asian Development Bank
and [the Borrower] in accordance with the loan agreement; and no
proceeds of the loan have been utilized for other purposes; and (C) the
[Borrower] [EA] was in compliance as at the date of the Balance Sheet of
the year of audit with all financial covenants of the loan agreement.
Appendix 11 107 107 107 107 107
108 108 108 108 108 Handbook for Borrowers on the Financial Management and Analysis of Projects
In addition:
(i) (a) With respect to statements of expenditures, adequate supporting
documentation has been maintained to support claims to the Asian
Development Bank for reimbursements of expenditures incurred;
and (b) which expenditures are eligible for financing under loan
agreement No. ___________________. (Required where an SOE audit
is required under the loan agreement.)
(ii) The Imprest Accounts (page ____) gives a true and fair view of the
receipts collected and payments made during the year ending
_________________.
[(i) and (ii) above to be provided where a separate Imprest Account audit
is required under the Loan Agreement.]
Appendix 12 Useful Reference Materials
Users of this Handbook may find the following reference materials useful.
They are available from Asian Development Bank (ADB) in hard copy or
can be freely downloaded from www.adb.org.
Selected ADB Guidelines
Guidelines for the Economic Analysis of Projects (1997)
Guidelines for the Economic Analysis of Telecommunications Projects
(1997)
Guidelines for the Economic Analysis of Water Supply Projects (1998)
Guidelines for the Financial Governance and Management of Investment
Projects financed by ADB (2002)
Guidelines on the Use of Consultants by Asian Development Bank and
Its Borrowers (2002)
Selected ADB Handbooks
Handbook for Integrating Poverty Impact Assessment in the Economic
Analysis of Projects (2001)
Handbook for Integrating Risk Analysis in the Economic Analysis of Projects
(2002)
Handbook for the Economic Analysis of Health Sector Projects (2000)
Handbook for the Economic Analysis of Water Supply Projects (1999)
Handbook for Users of Consulting Services: Procedures and Practices –
Volume I, Fifth Edition (2002)
Loan Disbursement Handbook (2001)
Other Recommended Reading
Anticorruption Policy: Description and Answers to Frequently Asked
Questions (2000)
Economic Analysis of Subregional Projects (1999)
Economic Evaluation of Environmental Impacts: A Workbook (1996)
Framework for the Economic and Financial Appraisal of Urban
Development Sector Projects (1994)
Appendix 12 109 109 109 109 109
doc_890750641.pdf
The primary objective of the financial management process is to optimize financial and economic benefits from an investment. Financial management systems include the policies and practices regarding financial planning, programming, accounting, reporting, auditing, funding, organization, and personnel of a project or of an EA
Financial Management
and Analysis of Projects
2006
Handbook for Borrowers on the
Foreword
S
ound financial management arrangements help ensure that
investment projects are successfully implemented and are
operationally sustainable. This Handbook contains information
and instructions for borrowers on the financial management of projects
financed by the Asian Development Bank (ADB).
This Handbook reflects ADB policies as set out in the Financial
Management and Analysis of Projects (the Guidelines) as updated in 2005.
It supersedes all previous handbooks on financial management and takes
effect immediately.
To ensure that financial management arrangements for
investment projects meet ADB requirements, borrowers and project
executing agency staff should study this Handbook, particularly during
project preparation.
Asian Development Bank
December 2006
Acknowledgements
T
he original publication entitled, Handbook for Borrowers on the
Financial Governance and Management of Investment Projects
financed by the Asian Development Bank was prepared by Sarath
Lakshman Athukorala (Financial Management Specialist, ADB) and Barry
Reid (consultant).
The original handbook has been updated to conform with the
revised Financial Management and Analysis of Projects, 2005. This was
undertaken by a team comprising Kathleen Moktan, Director, Capacity
Development and Governance Division, with assistance from Andrew
Head, Principal Financial Management Specialist, Anouj Mehta, Financial
Management Specialist, Lizzette Francisco, Yvonne Osonia, Ma. Carolina
Faustino-Chan, and Portia Gonzales.
iv iv iv iv iv
Acronyms
ADB Asian Development Bank
ADTA advisory technical assistance
AFS audited financial statements
APA audited project accounts
DMC developing member country
EA executing agency
FI financial institution
IA implementing agency
IAASB International Auditing and Assurance Standards Board
IAS International Accounting Standards
1
IASB International Accounting Standards Board
IFAC International Federation of Accountants
INTOSAI International Organization of Supreme Audit Institutions
ISA International Standards on Auditing
MDFI multilateral development finance institution
MFI microfinance institution
OGAU Anticorruption Unit of the Office of the General Auditor
PAI project administration instruction
PCR project completion report
PMR project management report
PPAR project performance audit report
PPTA project preparatory technical assistance
RETA regional technical assistance
RRP report and recommendation of the President
SOE statement of expenditures
TA technical assistance
TOR terms of reference
1
In 2001, the IASB assumed responsibility from the International Accounting Standards
Committee for promulgating IAS. While the IASB standards are called International Finan-cial
Reporting Standards (IFRS), this Handbook uses the term IAS (in the interest of continuity).
v vv vv
Contents
1 Introduction 1
The Asian Development Bank 1
The Guidelines 1
MDFI Harmonization Efforts 2
ADB Approach to Anticorruption 2
This Handbook 3
Further Assistance 4
2 User Instructions 5
ADB Lending and Technical Assistance 5
EA Classifications and General Treatments 6
3 Preparing and Appraising Investment Projects 9
Introduction 9
Forecasting 9
The Project Cost Estimates Table 10
The Project Financing Plan 13
Financial Cost-Benefit Analyses 14
Financial Loan Covenants 15
4 Financial Management of Executing Agencies 17
Introduction 17
ADB Financial Management Assessments 18
General ADB Financial Management Expectations 19
Expectations of Revenue-Earning EAs 21
Expectations of Nonrevenue-Earning EAs 24
vi vi vi vi vi
5 Financial Reporting and Auditing 27
Introduction 27
Accounting Standards and Policies 27
Financial Reporting 30
Auditing Standards and Auditor Engagement 41
Submission of Financial Reports 50
Auditor Reports and Opinions 53
ADB Assistance to Improve Accounting and Auditing 58
6 Financial Institutions 59
Introduction 59
General Approaches and Expectations 59
ADB Approach to FI Reviews and Monitoring 60
Assessing FI Performance 61
FI Reporting and Auditing Issues 64
Appendixes
Appendix 1: Contents of the Guidelines 67
Appendix 2: Project Investment Plan 71
Appendix 3: Project Financing Plan 72
Appendix 4: Example of Accounting Policies 73
Appendix 5: Sample Project Monitoring Report 75
Appendix 6: Model Financial Statements: Service Organization 76
Appendix 7: Model Financial Statements:
Manufacturing Organization 80
Appendix 8: Model Auditor Terms of Reference:
Executing Agency Audit 85
Appendix 9: Model Auditor Terms of Reference:
Annual Project Accounts Audit 94
Appendix 10: Model Auditor Opinion for a Nonrevenue-Earning
Project 105
Appendix 11: Model Auditor Opinion for a Revenue-Earning
Agency 107
Appendix 12: Useful Reference Materials 109
1. Introduction
The Asian Development Bank
1.01. ADB is a multilateral development finance
institution (MDFI) dedicated to reducing poverty in
Asia and the Pacific. Our Charter (Articles of
Agreement) requires us to take measures to ensure
that the proceeds of any loan made, guaranteed or
participated in by ADB are “used only for the
purposes for which the loan was approved with due
attention to consideration of economy and
efficiency.” Moreover, ADB’s operations must be
guided by sound banking principles. Accordingly, we
have developed specific financial management and
reporting requirements for our borrowing members,
including their executing agencies (EAs), where
applicable.
The Guidelines
1.02. Financial Management and Analysis of
Projects, 2005 (the Guidelines) sets out ADB’s
requirements and procedures for the financial
management of ADB-Financed projects (see
Appendix 1). They also provide guidance on applying
these requirements.
1.03. The Guidelines are primarily for internal
ADB use, but are available to external parties in hard
copy, via the Internet (www.adb.org/documents/
guidelines/financial), and on CD-ROM.
Our poverty-fighting
operations in Asia and
the Pacific …
… are guided by sound
banking principles
We have internal
financial management
policies and
guidelines …
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2 22 22 Handbook for Borrowers on the Financial Management and Analysis of Projects
MDFI Harmonization Efforts
1.04. ADB and the other MDFIs—including the
World Bank—have similar objectives and engage in
similar activities, but have different financial
management approaches and requirements. These
variances create confusion among our developing
member countries (DMCs). They also impose
unnecessary compliance costs and divert limited
resources away from key priorities. In 2000, the work
began to reduce these differences. As of 2006,
agreements have been reached on common
diagnostics, auditing arrangements, financial
reporting arrangements, definitions of key ratios and
commitment to work together to improve financial
management of DMCs.
ADB Approach to Anticorruption
1.05. ADB defines corruption as the abuse of
public or private office for personal gain. This means
any behavior in which people in the public or private
sectors improperly and unlawfully enrich
themselves or those close to them, or induce others
to do so, by abusing their positions.
1.06. The purpose of ADB’s Anticorruption Policy
is to reduce the burden corruption exacts from the
governments and economies of the region. The
policy has three objectives: (i) support competitive
markets and effective public administration; (ii)
support explicit anticorruption efforts; and (iii)
ensure ADB-financed projects and its staff adhere
to the highest ethical standards.
1.07. The requirements and procedures set out
in this Handbook support the implementation of our
Anticor ruption Policy, which is available at
www.adb.org.
Corruption places a
burden on governments
and economies ……
which ADB’s
anticorruption approach
is intended to reduce
… and are working
hard to harmonize these
policies with other MDFIs
to reduce compliance
burdens on our DMCs
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1.08. ADB’s integrity is one of its strongest assets.
ADB affirms a zero tolerance policy when credible
evidence of fraud and corruption exists among ADB-
financed projects or its staff. You may report
allegations of fraud and corruption by contacting the
Anticorruption Unit of the Office of the General
Auditor (OGAU) by e-mail, telephone or facsimile.
Communication sent by these methods is accessible
only by OGAU staff:
E-mail : [email protected]
Telephone : (632) 632-5004
Fax : (632) 636-2152
1.09. You may also contact OGAU at the
following addresses. Please mark correspondence
“Strictly Confidential”.
Anticorruption Unit (OGAU)
Office of the General Auditor
Asian Development Bank
6 ADB Avenue
Mandaluyong City
1550 Metro Manila, Philippines
Mailing Address : P.O. Box 789, 0980 Manila
Philippines
This Handbook
1.10. This Handbook reflects progress on MDFI
harmonization, explains ADB financial management
policies and procedures, and is aimed at borrowers
and their EAs. These policies and procedures are
fully consistent with our anticorruption approach.
1.11. The provisions of this Handbook apply to
investment projects and project EAs and
implementing agencies (IAs). For the purposes of
this Handbook, investment projects include ADB-
Introduction 3 33 33
The requirements and
procedures set out in this
Handbook support the
implementation of our
Anticorruption Policy
This Handbook explains
our financial
management policies
and requirements
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4 44 44 Handbook for Borrowers on the Financial Management and Analysis of Projects
loan-financed projects and the identifiable
investment components of program and sector
loans. Please note that—unless stated otherwise—
the requirements for EAs also apply to IAs.
1.12. This Handbook is cross-referenced to the
Guidelines. For instance, [5.2.3.1.1] refers to that
Guidelines’ paragraph or section.
Further Assistance
1.13. For further information and guidance,
readers are encouraged to refer to the Guidelines in
the first instance; see
http://www.adb.org/documents/guidelines/financial
1.14. If you cannot resolve your question, please
contact the responsible ADB project officer.
Otherwise contact:
The Principal Financial Management Specialist
Regional and Sustainable Development Department
Asian Development Bank
Manila, Philippines
General Information : [email protected]
Telephone : (632) 632-4444
Fax : (632) 636-2193
Mailing Address : P.O. Box 789, 0980 Manila
Philippines
Further guidance on
applying these
requirements is available
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2. User Instructions
ADB gives technical
assistance and loans for
projects and programs of
high-development
priority
ADB Lending and Technical Assistance
2.01. Our Charter permits us to make,
participate in, or guarantee loans to our DMCs, to
any of their agencies or political subdivisions, and
to public or private enterprises operating within such
countries, as well as to international or regional
entities concerned with economic development in
the region. Loans are made only for projects or
programs of high development priority [2.2.1–2.2.2].
2.02. We have four primary lending types:
(i) project loans; (ii) sector loans; (iii) program
loans; and (iv) private sector loans, equities, and
guarantees. ADB’s technical assistance (TA)
operations are classified into three development
activities: (i) project preparatory technical assistance
(PPTA) to prepare a project, program loan, or sector
loan for financing by ADB and other external sources;
(ii) advisory technical assistance (ADTA) to finance
institution-building; plan-formulation; or
implementation, operation and management of an
ADB-financed project; or a sector-, policy-, or issues-
oriented study; and (iii) regional technical assistance
(RETA). We encourage cofinancing from official
funding agencies, export credit agencies and
commercial finance institutions [2.2.3–2.2.5].
2.03. In order to sharpen ADB’s capacity to
mobilize development finance and knowledge for
its DMCs, ADB has also recently introduced several
new financial instruments and modalities under the
“Innovation and Efficiency Initiative”. These are
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6 66 66 Handbook for Borrowers on the Financial Management and Analysis of Projects
aimed at reinforcing flexibility and client orientation
of ADB’s financial products.
EA Classifications and
General Treatments
2.04. EAs are agencies that may be involved in
designing, implementing, and/or operating a project.
Such agencies may be broadly classified as:
• public sector agencies, which include
central government line ministries,
departments, or agencies; and
provincial or state government
departments or agencies; and local
governments; or
• semiautonomous government
agencies, public sector enterprises, or
parastatal bodies such as agriculture or
industrial credit banks, fertilizer
corporations, public utilities, railways,
and port authorities.
2.05. ADB also classifies projects and EAs into
two distinct groups: nonrevenue-earning and
revenue-earning.
2.06. The term revenue-earning is applied to EAs
and projects that are implemented, and in most
cases operated, by autonomous or
semiautonomous EAs that are commercially
oriented, or that generate substantial revenues either
by consumer charges or by forms of sector-specific
local taxation (such as water supply or drainage
taxes, and have authority to decide the use of these
funds). EAs and projects that do not meet these
criteria are termed nonrevenue-earning.
ADB classifies EAs on the
basis of their autonomy
from government…
… and whether they are
commercially oriented or
generate substantial
revenues
Although ADB treats
revenue-earning and
nonrevenue-earning EAs
and projects
differently…
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2.07. Together with other MDFIs, ADB
encourages borrowers and EAs to adopt uniform
accounting and financial reporting standards.
However, some time will be required to achieve a
high level of uniformity. The following table illustrates
these categories and associated treatments [2.4].
…we encourage the
adoption of uniform
accounting and financial
reporting standards
User Instructions 7 77 77
Sector State-Owned (Public Sector) Private Sector
Type of Project, Nonrevenue-Earning Revenue-Earning (e.g., Power Supply)
Executing Agency or (e.g., Health, Education)
Implementing Agency Financial Institutions
Broad Approach and • Sound financial policies • Move toward best practice private
Requirements • Adequate accounting records sector management, internal
control and governance
• Proper internal control systems arrangements
• Timely reporting to management • Ensure that ongoing operations are
• Sound and timely auditing sustainable
• Gradual improvements in • Comply with National Accounting
financial reporting as capacity Standards
allows • Move toward reporting in
accordance with International
Accounting Standards
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8 88 88 Handbook for Borrowers on the Financial Management and Analysis of Projects
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3. Preparing and
Appraising Investment
Projects
Once investment projects
have been designed, ADB
generally appraises them
to ensure that they are
viable
Introduction
3.01. In some cases, ADB will appraise (review)
investment projects to ensure that they are
technically, financially and economically viable. We
consider: (i) national, sectoral, and local needs for
the investment; (ii) economic and financial
justifications for the proposed project;
(iii) sustainability; (iv) the extent to which the project
contributes to human and technological
advancement; (v) good governance aspects; and
(vi) whether we will be fulfilling our own
responsibilities as set out in the ADB Charter [3.1.1].
Forecasting
3.02. Forecasts are prepared of project
expenses, revenues, cash flows and other financial
items. ADB works with borrower’s agencies during
project identification, preparation and appraisal to
ensure that these forecasts are meaningful.
3.03. These forecasts should, ideally, be
prepared by the borrower’s agencies. However,
where ADB staff or PPTA consultants prepare
forecasts, it is essential that the borrower’s agencies
The forecasts of project
costs and revenues …
… are the borrower’s
responsibility
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10 10 10 10 10 Handbook for Borrowers on the Financial Management and Analysis of Projects
own these forecasts because they are ultimately
responsible for their accuracy [3.4.1.1].
3.04. ADB requires EAs to provide updated
forecasts after loan signing and at the start of project
implementation. These will be updated forecasts-
to-completion or—in the case of revenue-earning
projects—updated forecasts for a specified period.
The updated forecasts provide early warnings of
project problems so that timely corrective actions
can be taken. For revenue-earning projects, ADB will
determine the period during which EAs will be
required to provide updated forecasts, and the
requirement will be specified in the loan agreement
[3.4.1.2].
The Project Cost Estimates Table
3.05. A Project Cost Estimates Table, which
includes all project costs, is prepared at the PPTA
stage (see Appendix 2). It should provide an
understanding of the principal project cost
components during appraisal, and useful
information for project cost control purposes during
implementation. It includes an allowance for
contingencies. The information provided in the
Project Cost Estimates Table is considered at project
appraisal and during implementation by the
borrower, the EA and ADB [3.4.3.1–3.4.4.4.5].
Eligible Cost Under ADB Guidelines
3.06. Under amended cost eligibility guidelines,
ADB can now finance reasonable costs of taxes and
duties related to project expenditures, acquisition
of land and rights of way, late payment charges
imposed by suppliers and contractors, bank charges,
food expenditures, interest during construction on
non-ADB loans, second hand goods, lease financing
costs and local transport and insurance costs.
These forecasts will be
revised periodically…
…so that potential
problems can be
identified and addressed
in a timely manner
All project costs are
presented in the Project
Cost Estimates Table…
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However, ADB financing of these is subject to the
requirements as laid out in the Cost Sharing and
Eligibility of Expenditures for ADB Financing, Staff
Instructions paper, 15 March 2006.
Local and Foreign Costs
3.07. There is no longer a distinction between
local and foreign currency costs for purposes of ADB
financing and disbursement. However, for the purpose
of presentation, a summary of the costs by component
is to be provided in the main Report and
Recommendation of the President (RRP), as “Project
Investment Plan”, while detailed costs breakdown, by
local and foreign currency and per component and/or
expenditure category, is to be shown in the core RRP
appendices as “Detailed Cost Estimates” [3.4.3.1.1].
Date of the Base Cost Estimates
3.08. The date of the estimates presented in the
Project Cost Estimates Table will be specified in the
project RRP. ADB requires that these estimates are
reasonably current. If the date of the estimates:
• is less than 6 months before the loan is
presented to ADB’s Board of Directors—
the estimates are acceptable.
• is 6-18 months before Board
presentation—the estimates should be
revised by indexation.
• is more than 18 months before Board
presentation—the costs should be re-
appraised [3.4.3.3.1].
Treatment of Financial Charges
During Development
3.09. Financial charges during development
(FCDDs) can include interest, commitment charges
and front-end fees. FCDDs must be shown in the
Project Cost Estimates Table [3.4.3.4.1].
There is no longer a
distinction between local
and foreign currency
costs ...
The Project Cost Estimates
Table may have to be
revised so that the
estimates are up-to-date
Preparing and Appraising Investment Projects 11 11 11 11 11
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12 12 12 12 12 Handbook for Borrowers on the Financial Management and Analysis of Projects
Requests for Retroactive Financing
3.10. Retroactive financing refers to ADB
financing of project expenditures incurred and paid
for by the borrower or recipient during or after
appraisal but before an ADB loan or TA agreement
becomes effective.
3.11. Generally, no funds can be disbursed for
expenses incurred before the loan agreement
becomes effective. However, based on a prior
agreement between ADB and the borrower, a special
clause authorizing the financing of certain expenses
incurred before this date may be included in the loan
agreement. This clause will show the amount of the
retroactive financing, the category of expenses
concerned, and the date from which the expenses
may be incurred [3.4.3.5].
Determining Contingencies
3.12. Contingencies are an integral part of the
expected total project cost and normally are
necessary for all project items involving significant
expenditures. Contingency allowances should
reflect probable (forecast) physical and price
changes and costs arising from special risks that can
reasonably be expected to increase the base cost
estimate. Contingency allowances should be
separately identified in the Project Cost Estimates
Table [3.4.4.1].
3.13. Allowances for physical contingencies
reflect expected increases in the base cost estimates
due to changes in quantities, methods, and period
of implementation. Physical contingencies should
be calculated in foreign and local cost terms, and
expressed as percentages of the foreign and local
base costs in the Project Cost Estimates Table
[3.4.4.2].
We may agree to
retroactively finance
project expenditures
… on the basis of prior
agreement and a special
clause in the loan
agreement
The Project Cost Estimates
Table will include
allowances for
contingencies, comprising
…
… physical
contingencies and …
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3.14. Allowances for price contingencies reflect
forecast increases in project base costs and physical
contingencies due to changes in unit costs for the
various project components beyond the date of the
base cost estimates. Price contingencies should be
expressed as percentages of the base costs plus
physical contingencies, separately for the local and
foreign expenditures of the project, and for the
project as a whole [3.4.4.3].
The Project Financing Plan
3.15. The Project Cost Estimates Table identifies
the total financing required for a project. The Project
Financing Plan illustrates project-funding
requirements and identifies proposed funding
sources (see Appendix 3) [3.4.6].
3.16. Funds required for the proposed project
will typically be classified into:
• capital expenditures,
• operating expenditures, and
• financial charges during development
[3.4.6.6].
3.17. Proposed project-funding sources may
include:
• the proposed ADB loan,
• other loans,
• equity or capital contributions,
• subsidies for operations, and
• internally-generated cash [3.4.6.6].
… price contingencies
The Project Financing
Plan …
… illustrates project-
funding requirements
… and identifies
proposed funding sources
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14 14 14 14 14 Handbook for Borrowers on the Financial Management and Analysis of Projects
Financial Cost-Benefit Analyses
3.18. ADB requires that financial and economic
analyses be undertaken of projects. Both analyses
have the same objective—to assess whether the
proposed investment is viable. Project financial
analysis examines the adequacy of returns to the
project-operating entity and to the project
participants. Economic analysis measures the effect
of the project on the national economy, as a whole
[3.5.1.1].
3.19. In financial analysis, all project-related
expenditures and revenues are considered. This is
necessary to: (i) assess the degree to which a project
will generate revenues sufficient to meet its financial
obligations; (ii) assess the incentives for producers;
and (iii) ensure that demand or output forecasts on
which the economic analysis is based are consistent
with financial charges or available budget resources
[3.5.1.3].
3.20. Economic analysis attempts to assess a
project’s impact on improving economic welfare. It
assesses a project in the context of the national
economy, rather than for the project participants or
the EA implementing the project [3.5.1.1–3.5.1.3].
3.21. ADB’s financial analysis process has six
steps:
• preparing project cost estimates [3.4.3],
• forecasting incremental project net
cash flows [3.4.7],
• determining the appropriate discount
rate [3.5.2],
• calculating the financial net present
value (FNPV) [3.5.3],
ADB-financed projects
must be financially and
economically viable …
… because DMCs should
not take on unproductive
debt
ADB has a systematic
approach to financial
cost-benefit analyses
Mainbody.pmd 08/11/2006, 1:46 PM 14
• calculating the financial internal rate of
return (FIRR) [3.5.3], and
• undertaking risk and sensitivity
analyses [3.5.4].
Financial Loan Covenants
3.22. Most DMCs are underserved by
infrastructure services, particularly in poor and rural
areas. In areas that do have service, systems are
often badly maintained and service is unreliable.
Common problems include: (i) below-cost tariffs
and inappropriate tariff design; (ii) inefficient
operations, with little incentive to improve efficiency;
(iii) low billing and collection levels; and
(iv) significant, but poorly-targeted subsidization.
These problems can lead to financial losses,
deterioration of facilities and limited funding for new
investment.
3.23. To assist EAs to achieve their financial
objectives—as well as governmental economic
objectives that are being supported by ADB loans—
ADB seeks assurance that the operational objectives
of an EA agreed with the borrower would be met at
least through the life of the project. These objectives
are translated into loan covenants [3.6.1.1–3.6.4.4.2].
3.24. ADB financial loan covenants are classified
into:
• operating covenants [3.6.2],
• capital structure covenants [3.6.3], and
• liquidity covenants [3.6.4].
3.25. Financial loan covenants are designed to:
(i) support socioeconomic development;
(ii) promote financial viability, financial performance
and prudent financial management of the EA;
We seek assurance that
projects will be
sustainable …
… by agreeing financial
loan covenants that are
designed to…
… enhance EA
performance, and
… ensure that loan
proceeds are used
effectively
Preparing and Appraising Investment Projects 15 15 15 15 15
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16 16 16 16 16 Handbook for Borrowers on the Financial Management and Analysis of Projects
(iii) develop local capability; (iv) assist the EA to
achieve a creditworthy status to facilitate
acceptance in capital markets; (v) protect the
borrower ’s and ADB’s financial interests; and
(vi) provide a basis for monitoring by government
regulatory agencies, and ADB, of the EA’s financial
performance [3.6.1.2].
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4. Financial Management
of Executing Agencies
Introduction
4.01. The primary objective of the financial
management process is to optimize financial and
economic benefits from an investment. Financial
management systems include the policies and
practices regarding financial planning,
programming, accounting, reporting, auditing,
funding, organization, and personnel of a project or
of an EA [4.1].
4.02. EAs should plan, develop and maintain
financial management systems that can provide
timely and reliable information suitable for
monitoring the project’s and the EA’s progress
toward ADB-agreed objectives. The information
should also provide early warnings of project
implementation and EA management problems.
4.03. EAs should also have an effective control
environment, including internal control systems that
provide assurance that financial records are reliable
and complete, including adherence to management
policies, orderly and efficient conduct of the
borrower’s business, and proper recording and
safeguarding of assets and resources [4.2.1].
4.04. ADB assesses the financial policies and the
capacity of the financial systems practiced or
proposed by the borrower/EA to support project
Sound financial
management systems
help ensure that project
benefits are optimized
They should provide
timely and accurate
information …
… and operate within
an effective control
environment
We assess the
effectiveness of these
systems
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18 18 18 18 18 Handbook for Borrowers on the Financial Management and Analysis of Projects
implementation and operation. The EA should be
capable of providing correct and timely information
on project implementation progress and, where
appropriate, on its operation. ADB must also be
assured that the expenditures incurred on a project
are used for the purposes stated in the loan
agreement [4.1–4.2.1.7].
ADB Financial Management
Assessments
Assessment Objectives
4.05. The general objective of ADB assessments
is to ensure that EAs are technically, managerially,
and financially capable of efficiently and effectively
implementing the proposed projects or programs.
The specific appraisal objectives are to: (i)
determine whether institutional capacity, in terms
of financial management, justifies loan approval; (ii)
identify the institution’s financial management
development needs—both project related and long
term—that should be addressed either as a project
component or by TA; and (iii) confirm that the
financial management system is sustainable [4.1.3].
Assessment Scope and General Approach
4.06. The scope of the financial management
assessment will depend upon the extent and type
of dealings ADB has with the EA concerned, the EA’s
experience in implementing projects, and the extent
and nature of previous institutional strengthening
[4.2.1.7].
4.07. The financial management assessment
will generally include: (i) analyzing the EA’s structure
and management framework with regard to
financial management; (ii) assessing the agency’s
resources, including the number, quality, and
Our objective is to assess
the EA’s financial
management capacity to
implement projects
While the assessment’s
exact scope will depend
on our involvement with
the EA …
… it will involve a
review of the EA’s financial
management capacity
and identification of any
specific deficiencies
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technical capabilities of its staff, the extent of
financial and budgetary support it obtains, the nature
of technology, equipment, and software in use;
(iii) assessing the agency’s operating results; and
(iv) identifying specific performance shortfalls or
variances [4.2.1.7].
4.08. Finally, ADB will examine performance
shortfalls to identify specific institutional deficiencies
and possible institutional-strengthening actions.
Deficiencies will be classified into those relating to
the management framework and those due to
resource constraints [4.2.1.7].
General ADB Financial
Management Expectations
Financial Policies
4.09. ADB requires that projects be designed,
developed and operated within the framework of
the financial policies, strategies and systems
prescribed by those government institutions that are
responsible for national and sectoral economic and
financial planning [4.2.4].
Project Objectives
4.10. Project objectives should be clearly
defined. They should include sustainable economic
goals, financial objectives, time-bound delivery of
benefits, and financial viability. As a minimum,
financial viability means that adequate funds will be
available to finance day-to-day operations and
maintenance [4.2.4.1.2].
Project Implementation Plans
4.11. ADB also recommends that borrowers
develop project implementation plans. Project plans
help borrowers set realistic goals for each operating
ADB then considers
possible actions to
address those identified
deficiencies
Project operations should
be consistent with
government financial
policies …
… project objectives
should be clearly
defined …
… and project
implementation plans
should be developed
Financial Management of Executing Agencies 19 19 19 19 19
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20 20 20 20 20 Handbook for Borrowers on the Financial Management and Analysis of Projects
period. They also establish the basis for preparing
and implementing project financial management
requirements, internal controls, and financial
reporting arrangements.
4.12. Project plans should include:
• time-bound implementation tasks for
each project component (including TA
and training);
• procurement actions with target dates
for each step;
• disbursement schedules for each
project component and expenditure
category;
• funding schedules reflecting expected
ADB financing, government
counterpart funds and cofinancing
arrangements;
• actions required to achieve project
development objectives; and
• actions to establish project accounting
and financial management systems
(including auditing arrangements).
Disbursement Procedures and
Fund-Flow Mechanisms
4.13. Loan disbursement is a key element in the
project cycle. ADB expects that proposed
disbursement procedures and fund-flow
mechanisms will be suitable for the particular
project. ADB procedures for withdrawal of loan
proceeds are standardized to facilitate
disbursements under most loans. Disbursement
procedures comprise four major types:
• direct payment procedure where ADB,
at the borrower ’s request, pays a
designated beneficiary directly;
Disbursement procedures
and fund-flow
mechanisms should be
appropriate to DMC and
project circumstances
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• commitment procedure where ADB, at
the borrower’s request, provides an
irrevocable undertaking to reimburse
a commercial bank for payments made
or to be made to a supplier against a
letter of credit financed from the loan
account;
• reimbursement procedure where ADB
pays from the loan account to the
borrower’s account or, in some cases,
to the project account for eligible
expenditures which have been
incurred and paid for by the project out
of its budget allocation or its own
resources; and
• imprest fund procedure where ADB
makes an advance disbursement from
the loan account for deposit to an
Imprest Account to be used exclusively
for ADB’s share of eligible
expenditures.
1
Expectations of Revenue-Earning EAs
4.14. This section describes relevant ADB
expectations of revenue-earning EAs and projects
(see paragraphs 2.05–2.07).
Planning and Budgeting
4.15. Long-, medium- and short-term planning
should be the primar y elements in financial
1
The Loan Disbursement Handbook describes ADB loan
di sbursement procedures i n detai l (see www.adb.org).
Furthermore, the Loan Financial Information Web Service (http://
lfis.adb.org) is designed to meet users’ needs for accurate, on-
demand financial information about loans to facilitate decision-
making. The website provides detailed loan portfolio data and
selected reports with facilities for downloading. Estimated debt
service payments and disbursement manuals directly related to
loan operations are also available to specified users.
We expect revenue-
earning EAs and
projects …
… to have satisfactory
planning and budgeting
procedures …
Financial Management of Executing Agencies 21 21 21 21 21
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22 22 22 22 22 Handbook for Borrowers on the Financial Management and Analysis of Projects
management. Long- and medium-term plans are
often referred to as corporate plans. Short-term
financial plans are usually called budgets. ADB will
seek assurance that satisfactory plans and budgets
will be prepared in a regular, orderly and timely
manner [4.2.8.3].
Accounting Policies
4.16. ADB will consider the acceptability of
accounting policies, including standards of financial
reporting and general accounting practices. ADB
expects these policies to be materially consistent
with accepted national or international standards
and practices [4.2.8.4].
Financial Regulations
4.17. A sound accounting system is under-
pinned by financial regulations. These are usually
designed to define the objectives of—and responsi-
bilities within—the financial management system.
ADB expects acceptable financial regulations to be
in place [4.2.8.5, 4.2.8.9].
Accounting Information Systems
4.18. To ensure accountability for project
implementation funds, each project (and, where
applicable, each EA) should have an adequate
accounting and internal control system for recording
and reporting project-related financial transactions
from the time that project expenditures
commence—which could be before ADB Board
approval of the loan. There are no exceptions to this
requirement [4.2.8.6.3].
… and consistent
accounting policies
Acceptable financial
regulations should be in
place …
… and accounting
information systems must
be adequate
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4.19. Specifically, accounting information
systems should:
• be simple to operate;
• require staff to operate with minimum
supervision, and have the necessary
personnel trained to operate the system
from project start-up;
• at a minimum, provide records of
project receipts and expenditures
generally from the date of first
transactions;
• where available, have information
technology systems that are modern,
efficiently managed, and fully
responsive to the needs of
management of the EA and the
proposed project;
• have adequate internal checks and
controls; be able to balance financial
data frequently and to report project
financial results at intervals and within
the time frame required by ADB;
• where needed, meet requirements for
Statements of Expenditure (SOEs) and
Imprest Fund records; and
• be capable of expansion, when
necessary, to meet the increasing
demands for financial data arising from
expanding project activities or entity
operations.
Internal Controls and Internal Audit
4.20. ADB’s primary concern is to be assured
that internal controls exist and are monitored
regularly to ensure they are efficient and responsive
to current operations [4.2.8.7–4.2.8.8.5].
Accounting information
systems should be simple
to operate and be
appropriate to EA and
project needs
Internal controls should
be effective …
Financial Management of Executing Agencies 23 23 23 23 23
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24 24 24 24 24 Handbook for Borrowers on the Financial Management and Analysis of Projects
Management Accounting
4.21. A management accounting system should
collect and promptly report financial and related
statistical information on all aspects of the operating
performance of an agency’s operations to the
various management levels, supplying each level
with the necessary details at the appropriate times.
4.22. ADB seeks assurance that the EA’s
management accounting system can produce the
annual and periodic financial statements, including
the statements for audit. It should also incorporate
procedures for recording current budgeting and
financial planning data, record keeping and reports,
and cost accounting (including cost control and
analysis) for recording costs [4.2.8.10].
Expectations of Nonrevenue-Earning EAs
4.23. The financial management arrangements
of nonrevenue-earning projects and EAs can vary
substantially between DMCs. Many will use simple,
cash-based accounting. This section describes
relevant ADB expectations of nonrevenue-earning
projects and EAs (see paragraphs 2.05–2.07).
Financial Management and Accounting Systems
4.24. For nonrevenue-earning EAs, the financial
management system should support accounting
procedures throughout project implementation [4.2.9.2].
4.25. In nonrevenue-earning projects, the system
should be kept simple. An analytical cashbook,
showing receipts and payments (classified by project
activity and payee), could form a satisfactory basic
accounting tool. It could be supplemented by
additional documents (e.g., asset registers, contract
registers, and inventory systems) as the needs for
these arise during implementation [4.2.9.2.3].
… and management
accounting systems
should be adequate
Many nonrevenue-
earning projects will have
simple financial
management
arrangements
Nevertheless, basic
accounting records should
be maintained…
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4.26. A basic system should include internal
controls, which separate responsibilities between
those who approve budgets, authorize allotments,
approve budgeted expenditures, make cash
payments, keep the books of account, and reconcile
cash and bank balances with the books of account.
Where staff numbers are too small to adequately
separate responsibilities, alternative arrangements
should be implemented. For instance, actions might
be jointly executed by two people (e.g., two
signatures on checks) [4.2.9.2.5].
Planning and Budgeting
4.27. ADB’s expectations of planning and
budgetary control for revenue-earning EAs (see
paragraph 4.15) are the same for nonrevenue-
earning EAs [4.2.9.5].
Financial Accounting and Costing
4.28. ADB prefers that an EA maintains at least
the records described in paragraphs 4.31–4.33, but
in some accounting systems many such records—
particularly control accounts—may not be
maintained [4.2.9.6.1].
4.29. EA systems must support timely disclosure
of: (i) cumulative and annual project costs by
components agreed on between ADB and the EA
for each project, (ii) operating costs analyzed in
sufficient detail to provide control of incremental
current expenditures, and (iii) the basis for all types
of claims for disbursement of ADB loans [4.2.9.6.4].
Internal Control
4.30. If internal control mechanisms are
unsatisfactory, and the effectiveness of the external
audit is not established, then the project will generally
not be allowed to proceed until the borrower/EA
agrees to strengthen these mechanisms [4.2.9.7].
… appropriate internal
controls should be
established …
… and planning and
budgeting systems should
be adequate
EA systems should
support timely disclosure
of project transactions
Projects will generally not
proceed until control
mechanisms are
satisfactory
Financial Management of Executing Agencies 25 25 25 25 25
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26 26 26 26 26 Handbook for Borrowers on the Financial Management and Analysis of Projects
A Simple System for a Nonrevenue-Earning Project
4.31. The following is a simple system for a
nonrevenue-earning project. It should be modified
as necessary to meet specific project and ADB
requirements.
• Project Entity Bank Account Record, by
categories of expenditures
• Project Entity Cash Payment Record, by
categories of expenditures¡ Record of
Project Expenditures incurred but not
paid by categories of expenditures
• Record of Project Expenditures by Third
Parties by categories of expenditures
• A Summary of the above to produce
Total Project Expenditures by
categories of expenditures
• Record of Sources of Project Financing
including ADB (and other lenders’)
loan disbursement claims [4.2.9.8.1]
4.32. It is also desirable that a simple general
ledger be used to record payment totals and receipt
totals (by week or by month). This ledger, in addition
to recording summary amounts for the above
accounts, should record assets, liabilities, contracts
and currency transactions [4.2.9.8.2].
4.33. Corrections and adjustments to the data
entered in the basic records can be made at any
time before entries are summarized in general
ledger entries. Changes to data already recorded in
the General Ledger will need special entries in that
ledger, preferably using journals [4.2.9.8.3].
A simple system for a
nonrevenue-earning
project will be based on
unsophisticated
accounting records…
…which will ideally be
supplemented by a
general ledger that
includes additional
balances and information
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5. Financial Reporting
and Auditing
Introduction
5.01. ADB requires accurate and timely financial
information from its borrowers to be assured that
project expenditures were used for the purposes
stated in the loan agreement and to satisfy ADB
regarding project and EA economy and efficiency.
5.02. To support this requirement, ADB reviews
accounting and auditing arrangements during
project preparation to ensure that these meet
acceptable standards and practices. Moreover, ADB
loan and project agreements include relevant
financial management and audit covenants.
Accounting Standards and Policies
Introduction
5.03. ADB is concerned about the accurate
interpretation of the financial position and
performance of its borrowers and EAs. However, the
preparation and reporting of accounting information
vary widely among countries and contributes to a
substantial lack of transparency and consistency in
financial reporting [5.2.1].
5.04. ADB, together with other MDFIs,
encourages borrowers and EAs to adopt uniform
standards of accounting and financial reporting. In
this respect, ADB recommends that:
To ensure that ADB
receives accurate and
timely financial
information…
… we review accounting
and auditing
arrangements and agree
relevant covenants
Because financial
reporting practices vary
widely among DMCs …
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28 28 28 28 28 Handbook for Borrowers on the Financial Management and Analysis of Projects
• Revenue-earning EAs comply with
national accounting standards and
move toward reporting in accordance
with the International Accounting
Standards (IAS), as capacity and
resources allow. However, some time
will be required to achieve a high level
of uniformity.
• Nonrevenue-earning EAs in the public
sector should follow and maintain
sound financial policies, adequate
accounting records, proper internal
control systems, timely reporting to
management, and sound auditing
practices [5.2.1.3].
ADB Accounting Policy Requirements
5.05. Accounting policies are the specific
principles, bases, conventions, rules and practices
adopted by an entity in preparing and presenting
financial statements. Financial statements must
include a Statement of Accounting Policies. An
example is presented in Appendix 4 [5.2.3.5].
5.06. ADB will seek to agree the acceptable
accounting standards and policies governing the
preparation of financial statements not later than at
loan negotiations [5.2.3.1.2].
Nonrevenue-Earning EAs
5.07. In the case of nonrevenue-earning EAs,
Statements of Accounting Policies are likely to be
simple. For instance, they may cover only cash-
recognition policies [5.2.3.5].
… ADB encourages the
adoption of uniform
standards of accounting
and financial reporting
Financial statements
must include a statement
of accounting policies
… that is acceptable to
ADB
This may be quite simple
for a nonrevenue-earning
EA
Mainbody.pmd 08/11/2006, 1:46 PM 28
Revenue-Earning EAs
5.08. In general, financial statements for private
sector companies and organizations, and for
revenue-earning public sector EAs, should be
prepared in accordance with IAS-compliant
accounting policies. Alternatively, ADB may accept
audited annual financial statements of projects or
EAs that are based on national or other defined
standards, provided that the Notes to the Financial
Statements include realignments and adjustments
of the financial information in the audited annual
financial statements to provide a report in
accordance with IASs [5.2.3.1.2].
5.09. ADB therefore recommends that all public
and private sector revenue-earning EAs should move
to account and report for ADB-financed projects on
the basis of IAS-compliant accounting policies
current at the date of loan negotiations, or any other
date in the project implementation period agreed
between ADB and the borrower (see paragraph
5.04). Borrowers and EAs should adopt IAS-
compliant accounting policies by an agreed date.
Until this time, financial statements should be
prepared in accordance with a set of accounting
policies acceptable to ADB and noted in the minutes
of loan negotiations [5.2.3.1.3].
5.10. In some cases, national accounting
standards and practices will not conform to
accepted international standards. Where only minor
items are involved (for instance, overhead allocation
methods or inventory-valuation policies), the
continued use of these standards and practices may
be acceptable so long as the variances are quantified
and disclosed in the Notes to the Financial Statement
and in the Auditor’s Report [5.2.3.2.2–5.2.3.2.3].
But, for most revenue-
earning EAs, ADB expects
IAS-compliant accounting
policies …
… these may take time
to be introduced
All significant variances
should be quantified
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30 30 30 30 30 Handbook for Borrowers on the Financial Management and Analysis of Projects
5.11. ADB recognizes that some time will be
required for borrowers and EAs to adopt IAS-
compliant accounting policies and will negotiate
with existing borrowers on a project-by-project basis
for the timing of their introduction [5.2.3.2.4].
Financial Reporting
Introduction
5.12. To ensure that adequate, timely, and
reliable information is provided for project
monitoring purposes, ADB seeks early agreement
to receive acceptable interim and annual Audited
Financial Statements for each financial year [5.3.1.1].
5.13. ADB typically requires the submission of
periodic progress reports, including financial reports,
covering:
• the progressive interim, annual, and
final costs of a project;
• the financial performance and financial
position of an EA (where appropriate);
• accountability for the funds, including
ADB loans, provided for project
implementation;
• the bases for disbursements of ADB
loan proceeds;
• the extent of compliance with financial
and related covenants; and
• the effectiveness of project-related
financial management and accounting
systems as specified by ADB and
agreed to by the borrower [5.3.1.2].
5.14. Borrowers and EAs should notify relevant
parties of ADB’s requirements, including:
(i) responsible government ministries;
(ii) government auditors mandated by law to audit
For existing projects, the
introduction of these
requirements will be
negotiated on a case-by-
case basis
ADB seeks to receive
acceptable interim and
annual audited financial
statements
Periodic progress reports
are required on financial
matters and compliance
with agreed covenants
Mainbody.pmd 08/11/2006, 1:46 PM 30
EA accounts; and (iii) private auditors acting on
behalf of government auditors [5.3.1.4].
Content and Timing of Financial Reporting
Universal ADB Requirements
5.15. The following basic principles apply to all
interim and annual project financial statements
issued by borrowers:
• English-language presentation [5.3.2.6
and 5.3.2.8];
• disclosure of full accountability for all
funds of the borrower, other donors
and lenders, and ADB;
• compliance with loan covenants and ADB
requirements for project management;
• adequate disclosure of all material
information; and
• a true and fair view, or a fair
presentation in all material respects, of
the financial performance and status
of the project and of the EA (where
applicable) [5.3.2.2].
5.16. In addition, the following fundamental
principles apply to annual financial statements: (i)
a clear statement on the accounting policies and
accounting standards adopted; and (ii) the results
of an independent review of the financial accounts
and financial management systems by an auditor
acceptable to ADB [5.3.2.3].
5.17. Interim and annual financial statements
relating to each project should show sufficient
information to identify separately the transactions
relating to the reporting year and the cumulative
transactions from the start-up date [5.3.2.4].
All interim and annual
financial statements
must be presented in
English …
… and annual financial
statements must be
audited
Annual and cumulative
balances should be
disclosed ...
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32 32 32 32 32 Handbook for Borrowers on the Financial Management and Analysis of Projects
5.18. Interim and annual statements may
combine financial transactions of a project with
those of the EA, where the EA was established solely
to develop the project [5.3.2.6].
5.19. Where an EA is responsible for
implementing defined subprojects, separate
financial statements should be provided for each
defined component together with a consolidated
financial statement for the complete project. Where
an EA is responsible for developing more than one
project, common or joint project financial
transactions of the agency may be apportioned and
allocated to each project on a basis defined in the
Notes to the Financial Statements [5.3.2.7].
5.20. Borrowers are asked to provide interim
and audited Annual Financial Statements in
accordance with an ADB-agreed timetable. Interim
financial reports are normally required at intervals
of 3, 4 or 6 months of each financial year. Audited
financial statements (for the EA, project accounts,
and imprest fund as applicable) should be submitted
to ADB not more than 6 months following the end
of the fiscal year or project closing date (whichever
is first) [5.3.2.9].
5.21. Where Audited Financial Statements are
to be first submitted to a government legislature—
with the risk of delaying provision of the Audited
Financial Statements to ADB—a draft thereof
(certified by the chief financial officer and the
auditor) should be submitted to ADB within the
required reporting timetable, with subsequent
confirmation after they have been ratified by the
legislature [5.3.2.10].
… and separate
financial statements
should be provided for
each subproject
Audited Financial
Statements should be
submitted to ADB not
more than 6 months
following the end of the
fiscal year or project
closing date
Mainbody.pmd 08/11/2006, 1:46 PM 32
5.22. Interim and annual financial statements
should normally be presented in the local currency,
with the basis for translation of any foreign exchange
transactions or commitments explicitly stated
[5.3.2.11].
Specific Requirements for
Nonrevenue-Earning Projects
5.23. ADB recognizes that many project
financial statements—particularly those prepared for
nonrevenue-earning projects—are of a special
purpose nature. Consequently, ADB requires that
financial information submitted by nonrevenue-
earning entities adhere to an appropriately designed
format acceptable to ADB [5.3.2.1].
5.24. Audited annual financial statements of
nonrevenue-earning projects are required for each
financial year of project development and
implementation [5.3.2.6].
Specific Requirements for Revenue-Earning Projects
5.25. For a revenue-earning project, ADB
requires audited annual financial statements of the
project and of the EA for the period of the loan. Along
with the audit report which expresses the audit
opinion following the audit of the annual financial
statement, ADB also requires a management letter,
by agency if there is more than one EA, from the
auditors. The reports on the project may be
incorporated within EA financial statements
provided that the statements explicitly describe the
project’s financial status and performance for the
financial year, the previous financial year and from
start-up. Interim financial reporting should follow the
format of the annual financial statements, but should
cease on completion of ADB disbursements
[5.3.2.8].
Financial statements should
(normally) be presented in
the local currency
For nonrevenue-earning
projects, audited annual
statements are required
for each year of project
development and
implementation
The financial statements
of revenue-earning
projects may be
incorporated within the
EA’s financial statements
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34 34 34 34 34 Handbook for Borrowers on the Financial Management and Analysis of Projects
Accounting Statements and Financial Reports
5.26. The table on the opposite page summa-
rizes the financial reporting requirements for
projects and EAs. While the reporting requirements
for revenue-earning projects and EAs are uniform,
those for nonrevenue-earning projects and EAs are
not [5.3.3.1].
5.27. The most significant difference among the
financial reports of nonrevenue-earning projects and
EAs depends on whether entities use the accrual or
the cash accounting basis.
• Under the cash basis of accounting,
nonfinancial assets (for instance, fixed
assets, receivables, and inventories)
will not be systematically recorded.
Consequently, the information that is
necessar y to prepare Income
Statements and Balance Sheets will not
be available; instead, Statements of
Cash Receipts and Payments will be
prepared.
• Where accrual accounting is used,
Statements of Income and Expenses
will be prepared along with Balance
Sheets. Accrual statements should
always be supplemented with a Cash
Flow Statement. While many ADB
DMCs have signaled their intention to
adopt the accrual basis of accounting,
this will take many years. However,
nonrevenue-earning entities in some
countries that have historically used the
Soviet Accounting System (e.g.,
Uzbekistan), may prepare accrual-
based financial statements [5.3.3.2].
The financial reporting
requirements for revenue
and non-revenue
projects…
… and EAs usually
differ…
… the most significant
difference is that many
nonrevenue-earning
projects and EAs use cash
accounting
Mainbody.pmd 08/11/2006, 1:46 PM 34
Accounting Statement
Nonrevenue-Earning
Projects and EAs
Revenue-Earning
Projects and EAs
Interim
(PMRs)
Annual
Audited
Interim
(PMRs)
Annual
Audited
Statement of Accounting/
Financial Policies
… …
Statement of Income
(Cash Receipts)
… …
Statement of Expenses
(Cash Payments)
… …
Cash Flow Statement note (a) note (a)
Imprest Account
Statement
Statement of Expenditures
Income Statement
These statements are
usually not prepared, as
most nonrevenue-earning
projects cur rently use the
cash basis of accounting
Balance Sheet
Notes to the Financial
Statements
note (b) note (b) note (b) note (b)
Other Information note (c) note (c) note (c) note (c)
5.28. Statement of Accounting or Financial Policies.
Irrespective of whether the cash or accrual
accounting basis is used, a clear statement of the
accounting or financial policies that underlie the
accounting statements must be provided [5.3.3.4].
5.29. The Statement of Income (Cash Receipts)
shows the year’s complete financial information and
cumulative data from project start-up. Where the
cash accounting basis is followed, the opening and
closing cash balances should be shown [5.3.3.5]
A clear statement of
accounting policies must
be provided
EA = executing agency; PMR = project management report.
(a) The content and format of Cash Flow Statements for nonrevenue-earning projects (and EAs) will
not necessarily conform to IAS or to national accounting standards.
(b) The notes to the financial statements provide further breakdowns or explanations of the information
provided in the main financial statements.
(c) The scope and nature of other information will be negotiated between ADB and the borrower.
Accounting Statements and Financial Reports
Financial Reporting and Auditing 35 35 35 35 35
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36 36 36 36 36 Handbook for Borrowers on the Financial Management and Analysis of Projects
5.30. The Statement of Expenses (Cash
Payments) shows the year’s financial information
and cumulative totals from project start-up to the
current date. Where the accrual basis of accounting
is used, this statement will include noncash items,
such as depreciation [5.3.3.6].
5.31. The Cash Flow Statement should include:
• sources of project financing (for
example, ADB and government
contributions) by disbursement
methods (for example, direct payment,
imprest account);
• uses of funds summarized under
project disbursement categories as per
the loan agreement (for example:
equipment, civil works, consultant
services and training;
• others, which may be further
subdivided following start of project
implementation); and
• the opening and closing cash balances
[5.3.3.7].
5.32. The Imprest Account Statement
summarizes ADB’s advances and replenishments,
less amounts withdrawn by the project entity,
showing the remaining cash balance in the Imprest
Account [5.3.3.8].
5.33. Bank statements should be provided for
each Imprest Account (where used). Each bank
statement should summarize the current year’s
advances and replenishments, interest earned on
balances, less withdrawals for project expenditures.
The first account is used to receive money from ADB
for the credit of the “Project Imprest Account” and
the second may be used by the project for local
The Cash Flow Statement
should disclose financing
sources and payments in
accordance with
disbursement categories
The Imprest Account
Statement summarizes
advances and
replenishments, less
withdrawals and the
remaining cash balance
in the Imprest Account
Mainbody.pmd 08/11/2006, 1:46 PM 36
operating purposes (Second Generation Imprest
Account, SGIA). The Project Imprest Account is to
be used to replenish the SGIA (when used). It is
necessary to attach Reconciliation Statements to
reflect in-transit items between ADB and the Imprest
Account and between Imprest Account and the
SGIA. The third financial statement is a detailed
statement of transactions of the Imprest Account’s
Operating Account(s). This is to be generated by the
EA, where the Imprest Account is used to make
direct payments in local and foreign currency
[5.3.3.9].
5.34. The Statement of Expenditures (SOE)
procedure is an ADB reimbursement procedure that
does not require submission of supporting
documentation. The SOE form should include
certification, confirming existence of registration for
mobilization and secured advances/deposits. ADB’s
Loan Disbursement Handbook describes the use of
this method and associated reporting and auditing
procedures [5.3.3.10].
5.35. Income Statements and Balance Sheets
may not be necessary where cash accounting is
used. Income Statements show the financial results
of activities for a period. Balance Sheets show all
financial items owned and owed at a certain point
in time [5.3.3.11].
5.36. The Notes to the Financial Statements
should be explanatory notes and/or supplementary
financial statements that analyze or qualif y
important heads of account, or that present the
information in conformity with generally accepted
accounting practices of the country [5.3.3.12].
Income Statements reflect
financial performance…
… and Balance Sheets
show financial position
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38 38 38 38 38 Handbook for Borrowers on the Financial Management and Analysis of Projects
Interim Financial Statements and
Project Management Reports
5.37. During the course of each financial year,
ADB requires project management reports (PMRs)
as part of the system for monitoring a project’s
performance. The PMR is required on a periodic
basis, and is designed to assist the EA to maintain
regular control of project performance. The PMR
financial statement is an interim financial statement
that is a useful tool for reviewing progress and for
planning, and is recommended for all projects. A
sample PMR is attached as Appendix 5 [5.3.4.1].
5.38. The information in the PMR should be
provided in respect of: (i) the most recent completed
financial period (normally a quarter or half-year),
(ii) the year-to-date totals, and (iii) cumulative
totals-to-date from the beginning of the project
[5.3.4.2].
5.39. The PMR should also show, for each line
item, the planned or budgeted amounts for
comparison with the actual reported information,
with variances shown between actual and the plan.
Explanations should be attached to the PMR with
respect to significant variances for use in managing
and monitoring the project [5.3.4.3].
Audited Annual Financial Statements
5.40. Audited annual financial statements
should be provided to ADB to fulfill the fiduciary
requirements of the borrower, cofinanciers, donors
and ADB. These financial statements may be
classified into two broad categories:
• Annual financial statements for nonrev-
enue-earning projects. The statements
may also include information on the
performance and status of the EA
ADB requires regular
submission of PMRs
Appendix 5 provides an
example of a PMR
PMRs compare actual
and budgeted
amounts …
… and identify and
explain significant
variances
Our expectations of
audited annual financial
statements depend on
whether projects are
revenue or nonrevenue
earning
Mainbody.pmd 08/11/2006, 1:46 PM 38
where the EA has no other financial
performance commitments to ADB
under a loan agreement; and
• Annual financial statements for rev-
enue-earning projects and for project
EAs, where the EA is an autonomous
or semiautonomous revenue-earning
entity with responsibility for project
implementation [5.3.5.1].
Annual Statements for Nonrevenue-Earning Projects
5.41. EAs should only prepare annual financial
statements for projects, particularly where the
project is nonrevenue-earning and is implemented
by organizations of national, provincial, state or
regional and/or local governments. EA-related
financial transactions may be included as line items
in project income and expenses [5.3.6.1].
5.42. The statements may take the following
forms and may be produced in the local budgetary
and accounting formats for the project and, where
applicable, for the EA concerned:
• Statement of Income (or Cash Receipts),
• Statement of Expenses (or Cash Pay-
ments), and
• Notes to the Financial Statements
[5.3.6.2].
Annual Statements for Revenue-Earning
Projects and EAs
5.43. Borrowers are asked to provide ADB with
annual financial statements in respect of each
autonomous or semiautonomous EA that plays a
substantive role in implementing and/or operating
a project having revenue-earning characteristics.
These financial statements should contain details
sufficient to identify the financial performance and
For nonrevenue-earning
projects, ADB generally
expects financial
statements only for the
project—not for the EA
… whereas, for revenue-
earning projects, we
generally expect EA financial
statements that incorporate
project information
Financial Reporting and Auditing 39 39 39 39 39
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40 40 40 40 40 Handbook for Borrowers on the Financial Management and Analysis of Projects
status of the project or EA. Normally these should
comprise:
• a Balance Sheet showing the financial
position of the entity, including the
project, at financial year-end,
• an Income (or Operating, or Income
and Expenditure, or Profit and Loss)
Statement,
• a Cash Flow Statement that should
disclose the cash flows during each
financial year, and
• notes to the Financial Statements [5.3.7.1].
5.44. Financial statements should include
comparative figures for the preceding financial year
together with supporting schedules and explanatory
notes. Supplementary financial statements should
be provided containing ADB-requested information
regarding items requiring additional disclosure or
explanation [5.3.7.2].
Supplementary Financial Statements
5.45. ADB will normally specify the form and
content of supplementary financial statements to be
attached to the standard annual financial
statements, but borrowers should include all
information that is considered informative and
appropriate to illustrate the performance of project
implementation and operation [5.3.8.1].
Model Financial Statements for
Revenue-Earning EAs
5.46. Appendix 6 and Appendix 7 present model
financial statements for a service and a
manufacturing organization, respectively [5.3.11,
7.16–7.17].
In both cases, financial
statements should
include comparative
figures and explanatory
notes
Mainbody.pmd 08/11/2006, 1:46 PM 40
Auditing Standards and
Auditor Engagement
Introduction
5.47. An audit’s overall objective is for the
auditor to express an opinion as to whether the
financial statements present a true and fair view of
the project(s) and, where applicable, of the EA, or
are similarly presented fairly in all material respects,
in conformity with IAS or other ADB-accepted
standards, and applied on a basis consistent with
that of the preceding year [5.4.1.1].
5.48. The auditor’s opinion is necessary to
establish the credibility, or otherwise, of the financial
statements of an EA. The examination should be of
such scope and depth to allow the auditor to give
an opinion and make a report on the veracity,
accuracy and fairness as regards the presentation
of the financial statements of an EA or a defined part
thereof (such as a project, a project unit, or a
department or division). These financial statements
may be annual, periodic, or ad hoc (i.e., relating to
special reports) [5.4.1.2].
ADB Audit Requirements
5.49. ADB requires the borrower and the EA to
have the required financial statements for each year
audited by an independent auditor acceptable to
ADB, and in accordance with standards on auditing
that also are acceptable to ADB. An audit of such
financial statements includes:
• an assessment of the adequacy of
accounting and internal control
systems with respect to project
expenditures and other financial
Auditors examine
financial statements …
… and express an
opinion on their veracity,
accuracy and fairness
We require annual
financial statements to be
audited …
… in accordance with
acceptable auditing
standards
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42 42 42 42 42 Handbook for Borrowers on the Financial Management and Analysis of Projects
transactions, and to ensure safe
custody of project-financed assets;
• a determination as to whether the
borrower and project implementing
entities have maintained adequate
documentation on all relevant
transactions;
• confirmation that expenditures
submitted to ADB are eligible for
financing and identification of any
ineligible expenditures; and
• compliance with loan covenants and
ADB’s requirements for project
management [5.4.2].
Auditing Standards
5.50. ADB recognizes the International
Standards on Auditing (ISA) promulgated by the
International Auditing and Assurance Standards
Board (IAASB) of the International Federation of
Accountants (IFAC) and the auditing standards of
the International Organization of Supreme Audit
Institutions (INTOSAI). ISAs are widely adopted by
the international accounting profession and many
national professions. They form the benchmark for
standards on auditing acceptable to ADB for audits
in the public and private sector. Many auditors
general and their equivalents use the INTOSAI
auditing standards [5.4.2.2].
5.51. ADB prefers borrowers to engage auditors
who will conform to ISA. However, it recognizes
that—in some countries—auditors apply local,
generally accepted auditing standards that may not
conform to, or fully comply with, the ISA, but that
have been prescribed by a country’s law, or have
been adopted by public accountants or associations
of accountants in the country concerned [5.4.2.3].
ADB recognizes IAASB
and INTOSAI auditing
standards …
… and prefers that
auditors conform to these
standards
Mainbody.pmd 08/11/2006, 1:46 PM 42
5.52. Supplementary auditing and reporting
procedures may be requested by ADB, if necessary,
to confirm accountability and financial performance
in cases where ADB considers that local auditing
standards need to be supplemented. ADB would
expect auditors to indicate in their report the extent
of differences, and the impact of the audit, of use of
local auditing standards compared with the
application of ISAs [5.4.2.4].
Auditing Procedures
5.53. Auditors should understand the project
and the entity being audited, including the contents
of the RRP and legal agreements. Further guidance
is available from the: (i) ADB Loan Disbursement
Handbook; (ii) ADB Sample bidding documents;
and (iii) ADB Procurement Handbook [5.4.3.2].
5.54. Auditors should ensure that any country-
specific variations in accounting standards and
practices that are adopted by the borrower, and that
differ substantially from IAS, should be disclosed.
Any significant effects on project financial
performance or status, because of non-
conformance with IAS, should be disclosed [5.4.3.7].
5.55. ADB expects audits to include: (i) an
examination of assets and liabilities; (ii) an
examination of commitments and contingent
liabilities; (iii) confirmation of debtors, creditors and
inventory; (iv) an examination of variations from IAS;
(v) a review of the periodic PMR for each year; (vi)
an audit of SOEs (where required) as a part of the
overall project audit; and (vii) an audit of the Imprest
Accounts [5.4.3].
ADB may require
supplementary auditing
procedures in some cases
ADB expects auditors …
… to understand the
auditee and ADB policies
and procedures …
… to identify the
impacts of variances in
accounting practices …
… and to conduct work
of acceptable scope
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44 44 44 44 44 Handbook for Borrowers on the Financial Management and Analysis of Projects
Auditor Selection and Appointment
5.56. ADB will ask borrowers to remove
unacceptable restrictions, or otherwise arrange for
an acceptable audit to be conducted. A borrower is
responsible for the selection, appointment and
performance of an auditor. ADB wishes to be
informed by a borrower of an ongoing or proposed
appointment of an auditor, who should meet
required standards in terms of independence,
experience and competence. More specifically, ADB
will indicate the acceptability of an auditor in the
form of a “no objection” [5.4.4.2].
5.57. To be acceptable to ADB, auditors must be:
• impartial and independent of the
control of the entity to be audited and
of the person appointing them. In
particular, they should not—during the
period covered by the audit—be
employed by, serve as directors of, or
have family, financial, or close business
relationships with the entity, except as
auditors, during the period of the audit;
• well established and reputable, use
procedures and methods conforming
with ISA or INTOSAI standards, and
employ adequate staff with appropriate
skills and competence required for
their responsibilities;
• experienced in the types of
assignments they are to undertake for
the ADB project; and
• able to fulfill their terms of reference
(TOR) within the specified timetable
[5.4.4.2].
Although borrowers are
responsible for auditor
selection, appointment
and performance …
… auditors must be
acceptable to ADB
ADB expects auditors …
…to be independent…
… to be reputable …
… and to have relevant
experience
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5.58. ADB requires that the borrower and EA
select and appoint an acceptable auditor within
sufficient time to carry out its responsibilities,
including a review of the financial management
systems at the beginning of project implementation,
and periodically thereafter [5.4.4.3].
5.59. ADB does not normally advise on the
selection of auditors, but prefers to review a list of
several auditors submitted from whom an
appointment will be made by the borrower, and
indicate any auditor who may not meet ADB’s
criteria. ADB will indicate its agreement to a proposal
to engage an auditor when it is satisfied that an
existing auditor, or the auditor under consideration
for engagement, would be acceptable to ADB in
terms of independence and competence to carry
out the audit [5.4.4.4].
Issues in Auditor Selection
5.60. The scope and detail of an audit may
depend upon laws or regulations that constrain a
government auditor from providing the depth of
examination required by ADB [5.4.5.1].
5.61. The following are unlikely to be acceptable
auditors for ADB lending operations:
• government auditors whose staff may
be required by laws or regulations to
participate in the processing of
financial transactions,
• auditors who assist EAs to prepare the
annual financial statements, or
• auditors who design and construct
components of the EA’s financial
management system [5.4.5.1].
ADB requires that auditor
appointments be made in
a timely manner …
… and prefers to review
a list of auditors and
indicate those who may
not meet our criteria
We expect auditors to act
independently …
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46 46 46 46 46 Handbook for Borrowers on the Financial Management and Analysis of Projects
5.62. In certain instances, resource constraints
may cause the borrower and EA to request auditors
to compile part or all of the financial statements.
When this occurs, to be eligible to carry out the audit,
the auditor should have no part in any aspect of EA
decision-making or management. The extent of the
auditor’s involvement in accounting should be
discussed in the Management Letter [5.4.5.2].
5.63. Auditors must be able to commence work
at project start-up. Therefore, borrowers should
appoint auditors before the start of each financial
year. Borrowers are expected to provide ADB with
an assurance that the auditor has been notified of
ADB’s requirements, including the timing of the audit
and issuance of the auditor’s report. This will be no
later than the project start date, or the date on which
the ADB Board approves the loan, whichever is
earlier [5.4.5.3].
5.64. Where a government auditor is to serve
during execution and operation of a revenue-earning
project until the loan period expires, the borrower
is expected to assure ADB that the government
auditor will begin and complete the audit operations
within the required timetable [5.4.5.4].
5.65. Auditors for public sector projects and
public sector EAs may be drawn from commercial
or state audit practitioners. Government auditors will
not be acceptable for private sector projects and for
public sector EAs of revenue-earning entities, unless
confirmed by ADB when a review of capacity,
capability, and ongoing performance has been
conducted [5.4.6.1].
5.66. The EA (or its controlling authority) is
normally responsible for selecting and appointing
auditors, except where a government auditor is
… but where this is just
not possible, we expect
auditors to distance
themselves from decision
making and
management
Auditors must be able to
commence work at
project start-up
ADB will accept
government auditors for
revenue-earning projects
on the basis of a capacity
review
Mainbody.pmd 08/11/2006, 1:46 PM 46
required by law to provide the service. Therefore,
where no auditor is currently engaged, early steps
should be taken to ensure that borrowers engage
an acceptable auditor by the date of loan signing or
project start-up [5.4.6.2].
5.67. Auditors’ engagements should be kept
under review to ensure consistent quality of
performance, including the ability to adapt to
changes in an entity’s accounting and general
operations, and to adopt improved audit techniques
[5.4.6.7].
5.68. Consequently, ADB encourages borrowers
to restrict audit engagements to relatively short-term
assignments [5.4.6.8].
5.69. Some countries appoint auditors each
year. However, engagements should be long enough
to enable the auditor to become familiar with the
auditee, but short enough to facilitate a change of
auditor, if necessary. Engagements of 3–5 years are
in the optimum range [5.4.6.9].
Terms of Reference for an Auditor
5.70. ADB requires that auditors’ opinions be of
such scope and detail as ADB may reasonably
request, and requires that a TOR acceptable to ADB
be prepared for each audit. For different types of
audits, the scope of the audit will vary according to
the nature of the EA and the type of operation being
audited. For example, the TOR for a financial
institution audit will require the auditor to pay
particular attention to the loan portfolio, while a
public utility audit will usually focus on fixed assets
and accounts receivable [5.4.7.1].
Borrowers should monitor
auditor performance …
… and auditor
appointments should be
for a suitable period
The TOR prepared for
each audit …
… must be acceptable
to ADB …
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48 48 48 48 48 Handbook for Borrowers on the Financial Management and Analysis of Projects
5.71. ISAs suggest that auditors determine the
scope of financial statement audits in accordance
with the requirements of legislation, regulations and
generally accepted auditing standards. The TOR
should not restrict auditors’ obligations in these
respects, nor should they give reasons for auditors
to claim that adherence to the TOR prevented
adequate statutory, regulatory or professional
performance [5.4.7.2, 5.4.7.8].
5.72. Nevertheless, the audit TOR provides an
opportunity to draw attention to areas of concern that
may not be covered or emphasized under a normal
audit, such as compliance with loan covenants or a
special review of procurement documents. The TOR
should always include the requirement to give an
opinion on any specific items. A management letter
will always be required [5.4.7.3].
5.73. Model TORs for an EA audit and for a
project audit are provided in Appendix 7 and
Appendix 9, respectively. However, these model
TORs should not be regarded as universally
applicable [5.4.7.6].
Contract or Engagement Letter of Auditor
5.74. ADB recommends that contracts or audit
engagement letters be prepared. Where a formal
contract is used, it is normally prepared by the EA.
Auditors often prepare a simple engagement letter.
The contract or letter sets out the auditor ’s
responsibilities and should include:
• confirmation of acceptance of the
appointment including reference to the
TOR;
• the borrowers’ responsibilities,
particularly the preparation of financial
information;
… but should not
restrict auditor
independence or limit
their ability to meet other
obligations
A management letter is
always required
Model auditor TOR are
appended
To clarify expectations,
we recommend that
contracts or audit
engagement letters be
prepared
Mainbody.pmd 08/11/2006, 1:46 PM 48
• the provision of access to whatever
premises, records, documentation and
any other information the auditor may
request in connection with the audit;
• the form of audit reports;
• arrangements regarding the
involvement of internal auditors and
any other external auditors (such as the
government auditor);
• the expected issuance date of the
Audited Financial Statements; and
• the fees basis and billing arrangements
[5.4.8].
Government Auditors
5.75. In some countries—where projects are
executed by government-controlled or sponsored
entities—statutory requirements may specify the use
of the government auditor. Under such
circumstances, ADB will require that (i) the auditor
is independent and competent, (ii) the auditor has
the capacity and professional capability to provide
audit reports and opinions of the quality required
by ADB, and (iii) is generally acceptable to ADB.
Normally, the independence of a government
auditor would not be questioned if the auditor’s
position is established under constitutional or legal
provisions designed to assure independence
[5.4.10.1].
5.76. In some cases, government auditors are
involved in pre-expenditure and revenue-collection
decision-making. This compromises their
independence. In these cases, ADB may seek to
agree with a borrower that the auditor, or ADB, will
be provided with opinions and reports prepared by
an independent commercial auditor in addition to
the government auditor’s report [5.4.10.3].
ADB requires government
auditors to be
independent, competent
and to have suitable
capacity …
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50 50 50 50 50 Handbook for Borrowers on the Financial Management and Analysis of Projects
5.77. Where ADB has concerns about the
government auditor ’s independence or
competence, ADB will seek the borrower ’s
agreement for the government auditor to
subcontract the audit to an independent and
competent private auditor to conduct the audit on
their behalf [5.4.10.4].
Submission of Financial Reports
5.78. EAs are required to submit Audited Project
Accounts (APA) regularly during project
implementation and—in some cases—until the loan
has been fully repaid. In addition, EAs of revenue-
earning entities are required to submit Audited
Financial Statements (AFS). This enables ADB to
monitor loan use and satisfy itself about the EA’s
financial viability [5.5].
5.79. The APA and AFS should be submitted to
ADB—together with the auditor’s opinion and
report—immediately upon completion of the audit.
These should be accompanied by any other material
issued by the auditor that is relevant to the
interpretation of the audit, such as a management
letter. An audit opinion should also be made by the
auditor and submitted to ADB on the use of the
Imprest Fund and SOEs in projects where these have
been used. Delays in submitting financial reports will
directly affect the project’s overall rating [5.5.2].
5.80. ADB identifies the following compliance
categories:
• Complied is when the sole EA
submitted acceptable APA/AFS in
English by the due date; and where all
EAs submitted acceptable APA/AFS in
English by the due date.
… consequently, ADB
may sometimes request
audits to be conducted by
private auditors
ADB requires that APA
and AFS be submitted…
… immediately on audit
completion
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• Partly Complied is where several EAs
are involved and only one or a few
submitted acceptable APA/AFS either
by the due date or late.
• Complied Late is when APA/AFS meet
the complied status but are submitted
late.
• Not Yet Due is when APA/AFS are not
yet due and are only applicable until
the first APA/AFS for the project become
due.
• Not Required is if submission of APA/
AFS are not included in the loan
covenants, and are only applicable to
some exceptional program loans.
• Not Complied is when:
– APA/AFS are submitted in the local
language,
– APA/AFS are submitted but has
material audit qualifications,
– the sole EA submitted partial or
incomplete APA/AFS, or
– only unaudited project accounts
and financial statements are
submitted.
In determining whether
APA/AFS comply with
ADB requirements …
… we consider
timeliness, language,
and acceptability
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52 52 52 52 52 Handbook for Borrowers on the Financial Management and Analysis of Projects
5.81. The following table provides guidance on
how ADB classifies audit opinions for the purposes
of determining compliance.
Type of Audit
Opinion
Example Classification
Unqualified
Opinion
“In our opinion, the financial statements
give a true and fair view….” (ISA 700,
para. 21)
Acceptable
Qualified
Opinion
“In our opinion, except for the effect on the
financial statements of the matter referred
to in the preceding paragraph, the financial
statements give a true and fair view of the
financial position ….” (ISA 700, para. 46)
Will depend on the nature
of the audit qualification
and will be considered on
a case-by-case basis.
Adverse
Opinion
“In our opinion, because of the effects of
the matters discussed in the preceding
paragraph, the financial statements do not
give a true and fair view of….” (ISA 700,
para. 46).
Unacceptable
Disclaimer of
Opinion
“Because of the significance of the matters
discussed in the preceding paragraph, we
do not express an opinion on the financial
statements.” (ISA 700, para. 44)
Unacceptable
ADB Policy on Late or Unacceptable Financial Reports
When acceptable APA/AFS are not received by due dates, ADB will write
immediately to the EA stating they are overdue and warning that, if they are
not received within 6 months, Imprest Accounts will not be replenished
and further reimbursement requests, commitment letters, and contract
awards will not be processed.
When acceptable APA/AFS are not received within 6 months after the
due dates, ADB will initiate stopping replenishment of Imprest Accounts,
and processing of reimbursement requests, commitment letters and contract
awards. ADB will then advise the EA of ADB’s actions and state that if the
situation does not improve within 6 months, loans may be suspended.
When acceptable APA/AFS are not received within 12 months after the
due dates, ADB may suspend the loan.
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Auditor Reports and Opinions
5.82. ADB requires the borrower and the project
EAs to have the required financial statements for
each year audited by an independent auditor
acceptable to ADB, and in accordance with
standards on auditing that also are acceptable to
ADB. An audit of such financial statements includes:
• Assessing the adequacy of accounting
and internal control systems with
respect to project expenditures and
other financial transactions, and to
ensure safe custody of project financed
assets.
• Determining whether the borrower and
EAs have maintained adequate
documentation on all relevant
transactions.
• Confirming that expenditures
submitted to ADB are eligible for
financing and identification of any
ineligible expenditures.
• Confirming compliance with loan
covenants and ADB’s project
management requirements [5.6.1.1].
5.83. An audit report must include: (i) title of the
auditor; (ii) date of the report; (iii) addressee (EA
and/or borrower); (iv) identification of the financial
information audited; (v) a reference to auditing
standards or practices followed; (vi) an expression
of opinion, including a qualification; disclaimer or
declining of an opinion, on the financial information;
(vii) the auditor’s signature; (viii) auditor’s address;
and (ix) date of signing of the report [5.6.2.2].
5.84. Appendix 10 and Appendix 11 provide
examples of typical auditor reports and unqualified
ADB expects auditor
reports to consider…
… the adequacy of
systems and record-
keeping …
… the eligibility of
expenditures …
… and whether ADB
requirements have been
met
The appendices illustrate
our expectations of
auditor reports
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54 54 54 54 54 Handbook for Borrowers on the Financial Management and Analysis of Projects
opinions for: (i) a nonrevenue-earning project, and
(ii) a revenue-earning project. The auditor should
appropriately restate each example when
qualifications or other modifications are necessary
[5.6.2.3].
5.85. Audited Financial Statements provided to
ADB in accordance with a loan agreement should
be accompanied by the report of the auditor that
contains their opinion on the financial statements
[5.6.2.4].
5.86. The auditor should indicate whether any
attached supplementary financial statements and
Notes to the Financial Statements have been
subjected to the same auditing procedures as in the
case of the basic financial statements [5.6.2.6].
5.87. Additional matters may be addressed in a
detailed auditor’s report, where these are not
addressed in the Management Letter. As
examples: (i) implementation of the auditor’s
recommendations made in prior years audit reports;
(ii) efficacy of, and improvements required in
budgetary control; (iii) reliability of field and financial
controls; and (iv) any payroll, procurement, or
inventory problems [5.6.2.7].
5.88. The auditor’s opinion for a project should
refer to the reporting format agreed between the
borrower and ADB, noting the basis of accounting
followed (e.g., cash basis) [5.6.2.8].
5.89. The auditor ’s opinion for a revenue-
earning entity, including a commercial type entity
in the private sector, should refer to the accounting
standards adopted and any significant departures
from IASs, with a reference to a quantified impact
of such departures on the Balance Sheet and the
Audit reports should
indicate audit
coverage…
… additional matters
should be addressed in
management letters or
detailed reports
The audit report should
consider reporting
formats and bases …
Mainbody.pmd 08/11/2006, 1:46 PM 54
Income Statement prepared by the EA in the Notes
to the Financial Statements. An example of the
above would be where government regulations
legislate the basis for bad debt provision rather than
relying on an actual assessment [5.6.2.9].
5.90. Borrowers and EAs enter into financial
performance covenants with ADB. The auditor is
required to confirm, or otherwise, compliance with
each financial covenant contained in the legal
documents for the project. The auditor should also
indicate, where present, the extent of any
noncompliance, by reference to the specified
(required) and actual performance measurements
for each financial covenant for the financial year
concerned [5.6.4].
5.91. Borrowers and EAs enter into agreement
with ADB in the loan documents to provide all
appropriate financial management, accounting and
financial reporting requirements necessary to
support effective management of the project. The
auditor should also indicate the extent of any
noncompliance with the loan agreement, by
reference to the specified (required by the loan
documents) and actual performance of the
borrower in respect of these ADB requirements for
the financial year concerned [5.6.5].
Use of Technical Experts
5.92. For certain types of expenditures to be
financed from ADB loans, the auditor may need to
rely on an independent technical expert who
normally would be engaged by the EA. An example
would be civil works executed by the regular labor
force of an entity (e.g., “force account” carried out
by the Ministr y of Works); or fixed-price
reimbursements for measured units of work to be
supervised by independent experts such as an
… and indicate the
extent of noncompliance
with financial covenants
Auditors should also
indicate any other
noncompliance with ADB
requirements
Where auditors rely on
the work of technical
experts …
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56 56 56 56 56 Handbook for Borrowers on the Financial Management and Analysis of Projects
engineering or architectural firm. In addition to the
normal responsibility of such experts to check that
the work is performed in accordance with the plans
and specifications, an appropriate certification by
the expert of the value of the work executed must
be acceptable to ADB [5.6.8.1].
5.93. The acceptability of the certification would
depend on the independence and competence of
the firm and its staff engaged in the verification. Such
a certification, where used, should normally be
attached to the related documentation supporting
the expenditure. Any dissatisfaction with the work
of the expert that concerns the auditor should be
stated in the auditor’s report [5.6.8.2].
5.94. The content of the certificate might cover
matters such as whether the goods and services
were procured, received, paid for and used in the
project in conformity with the loan agreement. In
the above instances, the auditor should include a
note under the scope paragraph of the opinion,
stating the extent and amount involved with respect
to their reliance on the technical expert (who should
be identified and expertise noted in the Notes to the
Financial Statements prepared by the EA) [5.6.8.3].
Statements of Expenditure and Imprest Accounts
5.95. Where the legal agreement of a project
requires the separate audit of the SOEs and the
Imprest Accounts, respectively, additional
paragraphs should be included in the audit opinion
of the project:
• referring to the SOE financial
statement, certifying to the eligibility of
those expenditures against which SOE
disbursements were made; and
… appropriate
certification should be
provided
The auditor’s report
should state any
dissatisfaction with the
work of technical experts
…
… and identify extent of
reliance that was placed
on technical experts
Audit opinions must
consider SOEs and
Imprest Accounts, where
these are used
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• referring to the Imprest Account
financial statements attached [5.6.9.1].
Audit Management Letters
5.96. ADB requires auditors to provide a
management letter with reference to the EA. This is
a report on the internal controls and operating
procedures of the entity, covering all aspects included
during the normal course of the audit. Because an
auditor is unlikely to cover all activities of a client
during an annual audit, the management letter may
address only those specific matters that came to the
attention of the auditor during the review [5.6.10.1].
5.97. The borrower and the auditor may agree
at the commencement of the audit on particular
subjects (including those at the request of ADB) to
be included in the TOR and addressed in the
management letter. These may include the review
of compliance with financial covenants, and actual
versus planned performance indicators. However,
it should be the prerogative of the auditor to address
any matter not agreed upon, but which, in the
auditor’s opinion, should be drawn to the borrower’s
attention. In addition, the auditor should comment
on all significant variations between the PMR and
the annual Audited Financial Statements [5.6.10.2].
5.98. ADB wishes to review all management
letters. The EA should provide copies of the
management letter to ADB at the same time as the
audited annual financial statements are issued
[5.6.10.4].
ADB requires a
management letter on
internal controls and
operating procedures
Although the TOR should
identify the management
letter’s focus and
scope …
… this should not
constrain the auditor
from commenting on
other matters
management letters must
be provided to ADB with
the audited financial
statements
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58 58 58 58 58 Handbook for Borrowers on the Financial Management and Analysis of Projects
ADB Assistance to Improve Accounting
and Auditing
Financing of Audit Expenditures
5.99. The costs of annual audits may be
included in project costs and are eligible for ADB
loan financing for those borrowers for whom the
audit costs are incremental (i.e., without the project
they would not be incurred). For other borrowers,
where only part of the audit costs are incremental—
particularly auditing to ADB standards, reporting on
compliance with loan covenants or for those
borrowers that may require foreign exchange for the
purpose—these audit costs may be financed to
ensure that ADB will receive an auditor’s opinion
and report that accord with ADB requirements.
Capacity Building in Project Accounting
5.100. Wide disparities exist in accounting and
auditing standards and capacity among borrowers.
To help borrowers avoid difficulties in meeting ADB’s
requirements, specific accounting and reporting
requirements to ensure proper project financial
management are discussed with the borrower and
EAs and reflected in the loan covenants of the loan
agreement. If accounting and auditing systems are
found unacceptable, corrective measures may be
taken using either ADB TA funds (if available) or with
support from other assistance agencies.
5.101. Hands-on training for preparing project
accounts is arranged for project accountants if they
are unfamiliar with ADB’s accounting and auditing
requirements. The cost may be included in the loan
amount.
ADB will consider
supporting improvements
in accounting and
auditing systems …
… we also arrange
training for project
accountants who are
unfamiliar with our
requirements
The incremental costs of
annual audits are eligible
for ADB financing
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6. Financial Institutions
Introduction
6.01. Financial institutions (FIs) include
commercial banks and other financial institutions.
ADB previously referred to FIs as development
finance institutions (DFIs). The World Bank and the
African Development Bank refer to FIs as financial
intermediaries. They are also known by sectoral
titles, such as agricultural development banks
(AgDBs), industrial development banks (IDBs) and
housing development banks (HDBs), or as
development financial intermediaries, microfinance
institutions (MFIs) and microfinance intermediaries
[6.1.2].
General Approaches and Expectations
6.02. ADB expects FIs to generate an interest
rate spread (the difference between lending and
borrowing rates) that covers all operating costs,
including provisions for bad and doubtful debts, and
in appropriate circumstances provides a profit. ADB
can support FI operations in both the public and the
private sectors [6.1.3].
6.03. In general, ADB-supported FI loans aim to
remove or substantially reduce the use of directed
credits, as these lead to resource allocation outside
market mechanisms [6.2.4.1].
6.04. However, ADB may support directed-credit
programs to promote sustainable financing—for
sectors such as microfinance institutions or the rural
Financial institutions,
such as commercial
banks, act as
intermediaries to provide
loans and equity to
organizations
ADB expects FIs to
generate an adequate
interest rate spread
In certain situations, ADB
may support directed-
credit programs …
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60 60 60 60 60 Handbook for Borrowers on the Financial Management and Analysis of Projects
sector—provided they are accompanied by reforms
that address underlying institutional problems and
any market imperfections that inhibit the market-
based flow of funds to those sectors [6.2.4.3–6.2.4.4].
6.05. ADB only supports programs involving
subsidies if they (i) are transparent, targeted, and
capped; (ii) are funded explicitly through the
government budget or other sources subject to
effective control and regular review; (iii) are fiscally
sustainable; (iv) do not give an unfair advantage to
some FIs over other qualified and directly competing
institutions; and (v) are economically justified, or
can be shown to be the least-cost way of achieving
poverty reduction objectives [6.2.5.1].
ADB Approach to FI Reviews and
Monitoring
6.06. ADB appraises proposed FI loans to ensure
that their objectives include (i) supporting reform
programs in the financial sector or related real sectors;
(ii) financing real sector investment needs;
(iii) promoting private sector development;
(iv) helping to stabilize, broaden, and increase the
efficiency of financial markets and their allocation of
resources and services; (v) promoting the
development of the participating FIs; and
(vi) supporting poverty reduction objectives [6.3.2.4].
6.07. ADB reviews an FI’s operational
performance to assess its ability to (i) deliver
subloans to achieve defined country or sector
economic objectives; (ii) efficiently recover
subloans; and (iii) cover all operating costs and
make a reasonable profit on the invested capital. FIs
have numerous forms of performance indicators
that can provide an understanding of past and
ongoing performance [6.2.1.2].
… or programs
involving subsidies
Before providing support
to FI operations …
… ADB considers the
extent to which FI
operational performance
is effective, efficient and
sustainable
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6.08. At least once each year during
implementation, ADB will conduct a formal review
of the condition and performance of participating
FIs—including a review of their Audited Financial
Statements—to determine their continued
compliance with eligibility criteria [6.3.4.5.4].
Assessing FI Performance
Introduction
6.09. Suitable indicators for measuring FI per-
formance include, among other things,
(i) adequacy of capital; (ii) quantity and quality of
earnings; (iii) quality of assets; (iv) sufficiency of li-
quidity; (v) extent of subsidy dependence;
(vi) effectiveness of FI loan administration (ap-
praisal, supervision, and collection performance);
and (vii) adequacy and timeliness of audited finan-
cial statements [6.3.4.5.3].
6.10. The most important criteria for
determining the appropriateness of an FI to act as a
financial intermediary are its solvency, profitability
and liquidity. In this respect, the Basel Committee
2
on Banking Supervision of the Bank of International
Settlements provides guidance in assessing an FI
[6.4.1.3].
Assessing Microfinance Institutions
6.11. The World Council of Credit Unions
recommends a set of financial ratios covering
Protection, Effective financial structure, Asset quality,
Rates of return and costs, and Liquidity and Signs of
growth (PEARLS) to monitor the financial stability
of credit unions, including MFIs. The PEARLS
… and monitors
performance during
implementation
The most important
criteria for determining FI
performance are
solvency, profitability and
liquidity
2
Further information on the Basel Committee can be found at http:/
/www.bis.org.
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62 62 62 62 62 Handbook for Borrowers on the Financial Management and Analysis of Projects
methodology is specifically designed for evaluating
credit unions [6.4.2.1].
3
Assessing FI Risks
6.12. ADB’s main concern is that FIs manage
their exposure to potential risks. Capital markets are
dynamic—their activities can generate rapid and
dangerous movements that need to be anticipated
and managed. The ability of traditional performance
measurement criteria to indicate declining or poor
FI performance is limited [6.4.4.1.1].
6.13. Furthermore, in many cases, the FIs that
ADB deals with are attached to the public sector and
have multiple objectives (e.g., sectoral development
objectives in addition to profitability objectives). The
risk factors associated with these FIs are likely to be
more significant than for single-objective
commercial banks. Consequently, ADB will seek to
(i) identify the principal potential risks that an FI is
exposed to and (ii) agree an appropriate set of
indicators that will provide FI management and ADB
with an early warning of problems [6.4.4.1.3].
6.14. The major FI-related risks include
• market risk—the potential that a
borrower or counterparty will fail to
perform on an obligation [6.4.4.2.1];
• exchange risk—the potential changes
in assets and liabilities caused by
foreign exchange movements
[6.4.4.3.1];
• maturity risk—the mismatching of
investments and borrowing operations
[6.4.4.4.1]; and
ADB’s main concern is
that FIs manage their risk
exposure
ADB will seek to identify
potential risks to which
an FI is exposed …
… and agree an
appropriate set of
indicators to monitor
these risks
The major FI-related risks
include market,
exchange, maturity, and
contagion risk
3
Further information on the PEARLS methodology can be found at
www.woccu.org.
Mainbody.pmd 08/11/2006, 1:46 PM 62
• contagion risk—contagion can arise in
regions, in countries, in regions within
countries, or within a class or category
of financial institutions [6.4.4.5.1].
6.15. Financial sector supervisors and regulators
are best able to identify, anticipate, and avoid
contagion risk. They should monitor the financial
sectors and economic developments with the
objective of providing early warnings, not only to
financial institutions, but also to ministries with
economic management responsibilities [6.4.4.5.3].
Specialized FI Internal Controls
6.16. Internal controls for FIs (i) should
comprise a set of rules and procedures designed to
provide qualitative standards that complement
quantitative risk analyses; (ii) are becoming
increasingly employed by banks and securities
institutions; (iii) should be used to internally manage
operational risk, agency risk, and legal risk; and
(iv) should be exercised by an independent control
unit reporting to the board of directors that has no
operating linkages with risk-creating trading
activities [6.4.6.1].
6.17. ADB expects FIs to establish and maintain
an appropriate risk management environment by,
for instance
• requiring transparency of reports and
documentation of the risk control
process,
• monitoring the content and the
efficiency of the vertical and horizontal
information flows,
• monitoring and reporting on
accountability,
ADB will seek assurance
that appropriate internal
controls are in place
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64 64 64 64 64 Handbook for Borrowers on the Financial Management and Analysis of Projects
• ensuring remuneration policy rewards
efficient risk management through high
returns and minimum risk,
• monitoring observance of trading limits
and market procedures,
• establishing rules for dealing with
changes in volatilities,
• testing the soundness of models,
• examining the quality and uniformity
of data input, and
• validating and back-testing procedures
[6.4.6.2].
FI Reporting and Auditing Issues
Introduction
6.18. Financial reporting by, and audits of, FIs
require individual specifications for each institution
so that financial reporting and auditing requirements
will be appropriate to the type, nature, and form of
the institution [6.6.1.1].
6.19. For example, an industrial FI and an MFI
have few common characteristics and the reporting
requirements and the auditing specifications will
differ sharply [6.6.1.2].
Financial Reporting
6.20. In addition to the standard statements
(Balance Sheet, Income Statement and Cash Flow
Statement), an FI will generally be required to
provide the additional statements listed below. This
listing is not all-inclusive and may be amended to
address the objectives and operations of the
particular FI:
• The income statement and balance
sheet adjusted for subsidies;
Financial reporting and
auditing requirements for
FIs are also specialized
… additional financial
statements will generally
be required
Mainbody.pmd 08/11/2006, 1:46 PM 64
• Portfolio Report for current and past 2
years;
• Portfolio Report showing aging of
receivables (arrears);
• Portfolio Report showing aging of
portfolio at risk;
• Portfolio Report showing market and
sectoral exposure;
• Capital Adequacy Analysis;
• Assets Structure by Income;
• Related party transactions; and
• Table of Contingencies, Guarantees,
Commitments showing corresponding
securities and collateral [6.6.2.2].
FI Auditing
6.21. ADB expects that the TOR for an FI audit
will be tailored to the particular FI. For instance, the
TOR for a commercial bank audit will differ from
those for an MFI audit. Moreover, auditors should
have appropriate experience in auditing the
particular FI [6.6.3.1].
6.22. In addition to the standard requirements
for auditor selection and appointment (see part 5),
including providing a report and an opinion on the
annual financial statements, the auditor should be
required to include in the report confirmation, or
otherwise, that the additional financial statements
and performance indicators can be relied on
[6.6.3.2].
ADB expects that auditors
of FIs will have
appropriate experience
Financial Institutions 65 65 65 65 65
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Mainbody.pmd 08/11/2006, 1:46 PM 66
Appendix 1 Contents of the Guidelines
This appendix presents the Guidelines’ contents for information and
reference purposes (see paragraph 1.02, page 1).
1. Introduction to the Guidelines
1.1. Introduction
1.2. Rationale
1.3. Objectives
1.4. Structure
1.5. Project File
1.6. Guideline Updates
1.7. Roles of Financial Analysis
Specialists and Financial
Management Specialists
2. User Instructions
2.1. Overview
2.2. ADB Lending and Technical
Assistance
2.3. Applying these Guidelines
2.4. Project Types and General
Treatments
2.5. An Overview of Project Processing
Steps
2.6. Step 1: Identification and Early
Preparation
2.7. Step 2: Loan Preparation
2.8. Step 3: Project Examination
2.9. Step 4: Loan Negotiations
2.10. Step 5: Project Implementation
2.11. Step 6: Project Completion
3. Preparing and Appraising Investment
Projects
3.1. Investment Projects Overview
3.2. Possible Investment Projects
3.2.1. Possible Revenue-Earning
Projects
3.2.2. Possible Nonrevenue-
Earning Projects
3.3. Appraisal Checklists
3.4. Forecasting
3.4.1. Introduction to Forecasting
3.4.2. Using the COSTAB Model
3.4.3. Preparing Project Cost
Estimates
3.4.4. Determining
Contingencies
3.4.5. Disbursement Profiles
3.4.6. Preparing Financing Plans
3.4.7. Computing Incremental
Project Cash Flows
3.5. Preparing Financial Benefit-Cost
Analyses
3.5.1. Introduction
3.5.2. Determining the Discount
Rate -WACC
3.5.3. Calculating the Financial
Internal Rate of Return
and Net Present Value
3.5.4. Undertaking Sensitivity
and Risk Analyses
3.6. Loan Covenants
3.6.1. Introduction to Loan
Covenants
3.6.2. Operating Covenants
3.6.3. Capital Structure Covenants
3.6.4. Liquidity Covenants
3.7. ADB Reports
3.7.1. Introduction to ADB Reports
3.7.2. Project Preparatory
Technical Assistance Stage
3.7.3. Report and Recommendation
of the President
3.7.4. Miscellaneous ADB Reports
4. Financial Management of Executing
Agencies
4.1. Financial Management Overview
4.2. Institutions and Systems
4.2.1. Introduction to Institutions
and Systems
4.2.2. Major Institutional
Assessments
4.2.3. Governance
4.2.4. Financial Management
and Governance
Arrangement
4.2.5. Country Diagnostic Studies
of Accounting and
Auditing
4.2.6. Executing Agencies
4.2.7. Project Objectives
4.2.8. Revenue-Earning Projects
4.2.9. Nonrevenue-Earning
Projects
4.3. Financial Analysis
4.3.1. Introduction to Financial
Analysis
Appendix 1 67 67 67 67 67
68 68 68 68 68 Handbook for Borrowers on the Financial Management and Analysis of Projects
4.3.2. Financial Analysis
Objectives
4.3.3. Linkages with Cost
Recovery and Tariffs
4.3.4. Preparing Financial Tables
4.3.5. Determining Fiscal Period
Coverage
4.3.6. Forecasting and Financial
Projections
4.3.7. Forecasting Assumptions
4.4. Measuring Performance
4.4.1. Introduction to Measuring
Performance
4.4.2. Objectives of Measuring
Performance
4.4.3. Performance Indicators
4.4.4. Using Benchmarking
Indicators
4.4.5. Selecting Indicators and
Covenants
4.4.6. Operating Indicators and
Covenants
4.4.7. Capital Structure
Indicators
4.4.8. Liquidity Indicators
5. Reporting and Auditing
5.1. Financial Reporting and Auditing
Overview
5.2. Accounting Standards and Policies
5.2.1. Introduction
5.2.2. International Accounting
Standards
5.2.3. ADB Accounting Policy
Requirements
5.3. Financial Reporting
5.3.1. Introduction
5.3.2. Content and Timing of
Financial Reporting
5.3.3. Accounting Statements
and Financial Reports
5.3.4. Interim Financial
Statements and the Project
Management Report
5.3.5. Audited Project Financial
Statements
5.3.6. Annual Financial Statements
for a Nonrevenue-Earning
Project
5.3.7. Annual Financial Statements
for Revenue-Earning Projects
and EAs
5.3.8. Supplementary Financial
Statements
5.3.9. Designing Financial
Reports for Revenue-
Earning Projects
5.3.10. Designing Financial Reports
for Nonrevenue-Earning
Projects
5.3.11. Examples of Model Financial
Statements
5.4. Auditing Standards and Auditor
Engagement
5.4.1. Introduction
5.4.2. ADB Requirements
5.4.3. Auditing Procedures
5.4.4. Auditor Selection and
Appointment
5.4.5. Issues in Auditor Selection
5.4.6. Selecting Auditors
5.4.7. Terms of Reference for an
Auditor
5.4.8. Contract or Engagement
Letter of Auditor
5.4.9. International Standards on
Auditing
5.4.10. Government Auditors
5.5. Reviewing Financial Reports
5.5.1. Introduction
5.5.2. The Review Process: Late
or Unacceptable Financial
Reports
5.5.3. Compliance With Financial
Performance Covenants
5.5.4. Communication with
Government Auditors
5.6. Reviewing Auditors’ Reports
5.6.1. Introduction
5.6.2. Auditors’ Reports and
Opinions
5.6.3. Model Audit Opinions
5.6.4. Compliance with Loan
Covenants
5.6.5. Compliance with ADB’s
Requirements
5.6.6. Types of Auditors’ Opinion
5.6.7. Materiality
5.6.8. Use of Technical Experts
5.6.9. Statements of Expenditure
and Imprest Accounts
5.6.10. Reviewing Audit
Management Letters
5.6.11. Audit Report
Questionnaire
6. Financial Institutions
6.1. FI Introduction and Overview
6.2. Reviewing FI Financial Management
6.2.1. General Operational
Issues
6.2.2. Policy Framework for FIs
and FI Loans
6.2.3. Treatment of Interest Rate
Distortions
6.2.4. Treatment of Directed-
Credit Programs
6.2.5. ADB Policy on Subsidies
6.2.6. Eligibility Criteria for FIs
6.3. FI Investments
6.3.1. Introduction
6.3.2. Investing in FIs
6.3.3. Selecting Participating
Institutions
6.3.4. Appraising an FI Investment
6.4. Assessing FI Performance
6.4.1. Introduction
6.4.2. Assessing Microfinance
Institutions
6.4.3. Applying the CAMEL
Framework
6.4.4. Assessing FI Risks
6.4.5. Determining FI Credit
Ratings
6.4.6. Specialized FI Internal
Controls
6.5. Appraisal Checklist
6.6. FI Reporting and Auditing Issues
6.6.1. Introduction
6.6.2. FI Financial Reporting
6.6.3. FI Auditing
6.6.4. MFI Financial Reporting
and Auditing
7. Knowledge Management
7.1. Useful Websites
7.2. Operations Manual
7.3. Project Administration Instructions
7.4. International Standards
7.5. International Accounting and
Auditing Architecture
7.6. Financial Review Checklist for RRPs
7.6.1. Lessons from Past Projects
7.6.2. Project Cost Estimates
7.6.3. Financing Plan
7.6.4. Executing Agencies and
Implementing Agencies
7.6.5. Financial Projections
7.6.6. Financial Analyst
7.6.7. Project Justification
7.6.8. Accounting and Auditing
7.6.9. Procurements and
Disbursement Arrangements
7.6.10. Finance-Related Risk
7.6.11. Assurances
7.7. Appraisal Checklist: Nonrevenue-
Earning Project
7.8. Appraisal Checklist: Revenue-
Earning Project
7.9. Appraisal Checklist: Private Sector
Project
7.10. Appraisal Checklist: Financial
Institution
7.11. Undertaking Sensitivity and Risk
Analyses
7.11.1. Step 1: Identify the Key
Variables
7.11.2. Steps 2 and 3: Calculate
Effects of Changing Variables
7.11.3. Step 4: Analyze Key
Variable Changes
7.11.4. Undertaking Risk Analysis
7.12. Model Operating Covenants
7.12.1. Rate of Return (see 3.6.2.2)
7.12.2. Self-Financing Ratio
(see 3.6.2.3)
7.12.3. General Price Level
(see 3.6.2.4)
7.12.4. Operating Ratio (see 3.6.2.5)
7.12.5. Breakeven Covenant
(see 3.6.2.6)
7.13. Model Capital Structure Covenants
7.13.1. Debt Service Coverage
(Version A: Historical
Orientation) (see 3.6.3.3)
7.13.2. Debt Service Coverage
(Version B: Forecast
orientation) (see 3.6.3.3)
7.13.3. Debt-Equity Ratio
(see 3.6.3.4)
7.13.4. Capital Adequacy Ratio
(see 3.6.3.6)
7.14. Model Liquidity Covenants
7.14.1. Current Ratio (see 3.6.4.2)
7.14.2. Quick Ratio Covenant
(see 3.6.4.3)
7.14.3. Dividend Limitation
(see 3.6.4.4)
7.15. Commonly Used Ratios
7.15.1. Operating Indicators
7.15.2. Capital Adequacy Indicators
7.15.3. Liquidity Indicators
Appendix 1 69 69 69 69 69
70 70 70 70 70 Handbook for Borrowers on the Financial Management and Analysis of Projects
7.16. Model Financial Statements:
Service Organization
7.17. Model Financial Statements:
Manufacturing Organization
7.18. Model Terms of Reference for an
Auditor
7.19. Audit Report Questionnaire
7.19.1. Using the Audit Report
Questionnaire
7.19.2. Authenticity, Form, and
Timeliness
7.19.3. Audit Opinion
7.19.4. Matters Addressed
7.19.5. Auditor’s Opinion and
Report
7.19.6. Conclusion and Further
Action (if any)
Knowledge Management – Addendum
Revisions
Glossary
Topical Index
Appendix 2 Project Investment Plan
Paragraph 3.05 (page 8) refers to this appendix.
Std. Code Total
COMPONENTS ***
Base Cost
03 Civil Works 0.00
06 Survey, Investigation, Design, Mapping 0.00
09 Research and Development (Extension and Demonstration) 0.00
12 Institutional Development and Strengthening 0.00
15 Equipment, Vehicles and Furniture (Purchase and Maintenance) 0.00
18 Materials 0.00
21 Consulting Services 0.00
24 Training and Fellowships 0.00
27 Operations and Maintenance 0.00
30 Financing of Nongovernment Organizations (NGOs) 0.00
– Implementation Assistance 0.00
– Land 0.00
– Capital Goods 0.00
– Incremental Administrative Costs 0.00
– Initial Working Capital 0.00
– Taxes and Duties 0.00
Base Costs as at...(date)… 0.00
Contingencies ***
87 Physical 0.00
84 Price 0.00
81 Other (Identify) 0.00
SUB-TOTAL 0.00
Financing Charges During Development***
66 Interest 0.00
69 Other 0.00
TOTAL PROJECT COST AND FINANCING REQUIRED 0.00
*** Footnotes to be used as necessary, particularly for contingencies’ explanation and rates used for
calculating financing changes.
Appendix 2 71 71 71 71 71
72 72 72 72 72 Handbook for Borrowers on the Financial Management and Analysis of Projects
Appendix 3 Project Financing Plan
Paragraph 3.15 (page 10) refers to this appendix.
Total %
Funds Required
Proposed Project
Capital expenditures 0.00
Operating expenditures 0.00
Interest during construction 0.00
TOTAL PROJECT REQUIREMENTS 0.00 100
Sources of Funds
Proposed ADB loan 0.00
Other loans 0.00
Equity or capital contributions
Government 0.00
Other sources 0.00
Subsidies for operations 0.00
Internal cash generation 0.00
TOTAL SOURCES 0.00 100
Appendix 4 Example of Accounting Policies
Paragraph 5.05 (page 22) refers to this appendix. The following table
provides guidance on General Accounting Policies. Particular accounting
policies should set out the policies applicable to revenues, expenses, assets
and liabilities. A model set of IAS-based accounting policies and financial
statements is available at www.iasplus.com. An IAS disclosure checklist
is also available from this website.
Issue Details Example
Reporting Entity The accounting policies
should clearly define the
reporting entity.
These are the consolidated financial
statements of ABC Limited and its
subsidiaries: DEF Limited, GHI Limited
and JKL Limited.
Reporting Period The reporting period should
be stated.
These financial statements apply to
the financial year ended 31 December
20X2.
Legislative Basis The legal basis under which
the financial statements
have been prepared should
be clearly stated.
These financial statements have been
prepared in accordance with Article 123
of the Companies Act 20X1.
Accounting
Policy Basis
The accounting policy basis
should be stated.
These accounting policies are based
upon the International Accounting
Standards (IASs) issued by the
International Accountants Standards
Board (IASB) as at 30 September
20X2. Where no IAS has been issued
on specific topics, the accounting policy
is based on other authoritative sources.
Measurement
Base
The measurement base
used to prepare the financial
statements should be
described.
These financial statements have been
prepared using the accrual basis of
accounting. The measurement base
applied is historical cost adjusted for
revaluation of assets.
Changes in
Accounting
Policies
Changes in accounting
policies should be noted.
There have been no material changes in
accounting policies during the financial
year.
Going Concern There should be a clear
statement as to whether
or not the entity is a going
concern.
The financial statements have been
prepared on a going concern basis.
Appendix 4 73 73 73 73 73
74 74 74 74 74 Handbook for Borrowers on the Financial Management and Analysis of Projects
Issue Details Example
Indirect Taxes
and Duties
The treatment of indirect
taxes and duties should be
clearly stated.
Revenue and expense items are
recognized net of Value Added Tax (VAT).
The net amount receivable in respect
of VAT is included as part of accounts
receivable. Assets are recorded net of
VAT if the tax is recoverable.
Comparatives Where there have been
changes of format or
presentation from one
accounting period to the
next, comparatives should
be restated, and that fact
disclosed in the Notes to
the Financial Statements
together with any explanation
necessary for the reader
to understand the changes
which have occurred.
Where there is any change of format
or presentation from one accounting
period to the next, comparatives are to
be restated, and that fact disclosed in
the notes to the financial statements
together with any explanation necessary
for the reader to understand the
changes that have occurred.
Basis of
Combination
(Consolidation)
Where consolidated financial
statements have been
prepared, the combination
basis should be stated.
Controlled entities are consolidated
using the purchase method of
combination. Corresponding assets,
liabilities, revenues and expenses are
added together line by line. Transactions
and balances between these sub-
entities are eliminated on combination.
Related Parties The policy applied to the
disclosure of related-party
transactions should be
stated.
There were no related-party transactions
during the financial year.
Foreign Currency The basis for recording
foreign currency transactions
and translating these
transactions and balances
should be stated.
Foreign currency transactions are
measured and recorded in United
States dollars (US$) using the exchange
rate in effect at the date of the
transaction. However, where short-term
transactions are covered by a forward
exchange contract, the forward rates
specified in those contracts have been
used to translate the transactions into
US$. At the end of each reporting
period any foreign currency monetary
balances (money being held and assets
and liabilities to be received or paid in
money) have been translated into US$
using the spot exchange rate in effect
on that date. Exchange differences,
arising when there is a change in the
exchange rate between the transaction
date and the date of settlement, have
been recognized as either revenues or
expenses.
Appendix 5 Sample Project Monitoring Report
This appendix presents sample PMR formats (see paragraph 5.37 on page 29).
Government of Pacifica: Education Sector Improvement Project
Cash Receipts and Payments
Asian Development Bank (ADB) Loan No. 1234-ATL
For the Quarter ended 31 March 2003
(Pp ’000s)
a
Forecast:
Quarter Cumulative Next 6 months
Cash Receipts
Government Funds 24,000 260,000 75,000
ADB Funds 129,795 623,245 175,000
Total Financing 153,795 883,245 250,000
Less: Expenditures by
Component
Institutional Strengthening 94,695 569,045 185,000
Increasing Access 60,000 220,000 24,251
Teacher Development 2,500 17,450 5,500
Project Development 1,600 6,500 2,952
Other (including Loan Fee) .. 12,250 12,000
Total Expenditures 158,795 825,245 229,703
Receipts Less Expenditures -5000 58,000 20,297
Add: Foreign Exchange Difference -1000 -14000 ..
Net Change in Cash -6000 44,000 20,297
Opening Cash balances
Local Currency Bank Account 2,000 .. 4,000
Foreign Currency Bank Account 48,000 .. 40,000
Total Opening Cash 50,000 .. 44,000
Add: New Change in Cash -6000 44,000 20,297
Net Cash Available 44,000 44,000 64,297
Closing Cash Balances
Local Currency Bank Account 4,000 4,000 14,297
Foreign Currency Bank Account 40,000 40,000 50,000
Total Closing Cash Balances 44,000 44,000 64,297
Pp = Pacific Pesos.
Notes: a The following rates were used for conversion:
– Opening balance of Foreign Currency Bank Account in Quarter: US$1 = PPs14:7.
– ADB fund received and any foreign currency expenditures made are converted at the rate of
exchange on the date of the transaction. The weighted average of these rates since project
inception is approximately 14.5.
– Closing balance of Foreign Currency Bank Account: US$1 = PPs14.9.
Appendix 5 75 75 75 75 75
76 76 76 76 76 Handbook for Borrowers on the Financial Management and Analysis of Projects
Appendix 6 Model Financial Statements: Service Organization
Paragraph 5.46 (page 31) refers to this appendix. This model set
of summary financial statements is appropriate for use by a service-type
organization. When using these financial statements it is essential that:
(i) an appropriate Statement of Accounting Policies be developed and
agreed between ADB and the borrower; (ii) appropriate Notes to the
Financial Statements supplement the financial statements; and (iii) where
appropriate, the Financial Statements should be tailored so that they
adequately reflect the organization’s performance and position.
The format used for this particular model set of summary
financial statements is appropriate for forecasting (projecting) financial
statements (for instance, during project preparation).
Example Service OrganizationForecast Income Statements
[Format for financial projections] for the years ended 31 December
($’000)
20X1 20X2 20X3 20X4 20X5 20X6 20X7
Notes Actual Actual Actual Actual Actual Forecast Forecast
Operating Revenues
Revenues from services 1 35,052 36,748 39,288 41,202 41,202 41,202 41,202
Investment income 1,157 1,073 1,126 1,243 1,243 1,243 1,243
Other operating revenue 317 332 279 269 269 269 269
36,526 38,153 40,693 42,714 42,714 42,714 42,714
Operating Expenses
Wages, salaries and employee benefits 12,960 13,363 13,975 14,504 14,504 14,504 14,504
Supplies and consumables used 4,022 4,285 4,582 4,687 4,687 4,687 4,687
Repairs and maintenance 1,000 1,000 1,000 1,000 1,000 1,000 1,000
Depreciation and amortization expenses 791 872 918 926 926 926 926
Other operating expenses 18,677 20,395 20,601 21,280 21,280 21,280 21,280
37,450 39,915 41,076 42,397 42,397 42,397 42,397
Surplus/(Deficit) from Operating Activities -924 -1,762 -383 317 317 317 317
Project-related interest costs 2,373 2,527 2,588 2,512 2,512 2,512 2,512
Other interest costs .. .. .. .. .. .. ..
Gains on sale of fixed assets .. .. .. .. .. .. ..
Total non-operating expenses 2,373 2,527 2,588 2,512 2,512 2,512 2,512
Surplus/(Deficit) from Ordinary Activities 1,449 765 2,205 2,829 2,829 2,829 2,829
Minority interest share of surplus/(deficit) .. .. .. .. .. .. ..
Net surplus/(deficit) before extraordinary items 1,449 765 2,205 2,829 2,829 2,829 2,829
Extraordinary items .. .. .. .. .. .. ..
Income tax expense .. .. .. .. .. .. ..
Net Surplus/(Deficit) for the Year after Tax 1,449 765 2,205 2,829 2,829 2,829 2,829
Example Service OrganizationForecast Balance Sheets
[Format for financial projections] as at 31 December
($’000)
20X1 20X2 20X3 20X4 20X5 20X6 20X7
Notes Actual Actual Actual Actual Actual Forecast Forecast
Current Assets
Cash and cash equivalents 210 93 97 100 100 100 100
Marketable securities 10,440 11,279 9,929 9,473 9,473 9,473 9,473
Receivables 5,520 5,490 5,559 5,593 5,593 5,593 5,593
Inventories 274 329 348 379 379 379 379
Work in progress 3,995 4,768 5,519 6,032 6,032 6,032 6,032
Investments 338 341 954 2,210 2,210 2,210 2,210
20,777 22,300 22,406 23,787 23,787 23,787 23,787
Less: Current Liabilities
Payables and provisions 4,716 4,588 4,428 4,401 4,401 4,401 4,401
Short-term borrowings 2,236 2,413 2,413 2,413 2,413 2,413 2,413
Current portion of borrowings 7,208 7,648 7,533 7,528 7,528 7,528 7,528
Employee benefits 832 857 857 856 856 856 856
14,992 15,506 15,231 15,198 15,198 15,198 15,198
WORKING CAPITAL 5,785 6,794 7,175 8,589 8,589 8,589 8,589
Plus: Non-current Assets
Investments 14,392 15,204 16,102 16,930 16,930 16,930 16,930
Property, plan and equipment 25,252 25,861 25,787 25,851 25,851 25,851 25,851
Intangible assets 2 302 830 1,322 1,322 1,322 1,322
39,646 41,367 42,719 44,103 44,103 44,103 44,103
Less: Non-current Liabilities
Payables 524 510 492 489 489 489 489
Borrowings 28,833 30,591 30,131 30,113 30,113 30,113 30,113
Employee benefits 7,491 7,710 7,716 7,706 7,706 7,706 7,706
36,848 38,811 38,339 38,308 38,308 38,308 38,308
Net Assets 8,583 9,350 11,555 14,384 14,384 14,384 14,384
EQUITY
Issued and paid-up capital 1,000 1,000 1,000 1,000 1,000 1,000 1,000
Reserves 7,201 7,190 7,190 7,190 7,190 7,190 7,190
Accumulated surpluses/(deficits) 382 1,160 3,365 6,194 6,194 6,194 6,194
Total Equity 8,583 9,350 11,555 14,384 14,384 14,384 14,384
Appendix 6 77 77 77 77 77
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Example Service OrganizationForecast Cash Flow Statements
[Format for financial projections] for the years ended 31 December
($’000)
20X1 20X2 20X3 20X4 20X5 20X6 20X7
Notes Actual Actual Actual Actual Actual Forecast Forecast
OPERATING CASH FLOWS
Receipts
Cash receipts from customers 34,793 36,603 39,177 41,118 41,118 41,118 41,118
Other receipts 341 265 289 279 279 279 279
Payments
Employees -12,615 -13,043 -13,428 -13,917 -13,917 -13,917 -13,917
Suppliers -19,750 -20,920 -20,848 -21,167 -21,167 -21,167 -21,167
Other payments -369 -490 -1,088 -1,684 -1,684 -1,684 -1,684
Net Cash Flows from Operating Activities 2 2,400 2,415 4,102 4,629 4,629 4,629 4,629
INVESTING CASH FLOWS
Receipts
Interest received 1,070 835 834 901 901 901 901
Sales of fixed assets 250 125 68 59 59 59 59
Sales of investments 1,983 57 1,071 244 244 244 244
Payments
Interest paid -2,507 -2,516 -2,561 -2,502 -2,502 -2,502 -2,502
Purchases of fixed assets -1,469 -2,459 -2,808 -3,181 -355 -355 -355
Purchases of investments -130 -55 -102 -98 -98 -98 -98
Net Cash Flows from Investing Activities -803 -4,013 -3,498 -4,577 -1,751 -1,751 -1,751
FINANCING CASH FLOWS
Receipts
Capital contributions from owners .. .. .. .. .. .. ..
Proceeds from new borrowings 275 1,477 353 56 56 56 56
Payments
Capital withdrawals .. .. .. .. .. .. ..
Repayment of borrowings -1,900 .. -953 -105 -105 -105 -105
Dividends paid .. .. .. .. -2,829 -2,829 -2,829
Net Cash Flows from Financing Activities -1,625 1,477 -600 -49 -2,878 -2,878 -2,878
CASH AND CASH EQUIVALENTS
Balances as at 1 January 230 210 93 97 100 100 100
Currency changes on opening balances 8 4 .. .. .. .. ..
Net increases/(decreases) for period -28 -121 4 3 .. .. ..
Balances as at 31 December 210 93 97 100 100 100 100
Example Service Organization
Notes to the Financial Statements [Format for financial projections]
for the years ended 31 December
($’000)
20X1 20X2 20X3 20X4 20X5 20X6
Actual Actual Actual Actual Actual Forecast
Note 1: Revenues by Service Type
Service Type A 376 353 379 387 387 387
Service Type B 34,035 35,748 38,274 40,195 40,195 40,195
Service Type C 641 647 635 620 620 620
35,052 36,748 39,288 41,202 41,202 41,202
Note 2: Reconciliation of Income Statement to Operating Cash Flows
Net Surplus/(Deficit) per Income Statement 1,449 765 2,205 2,829 .. ..
Items included in net surpluses but not in
net cash flows from operations:
Unrealized net foreign exchange gains -66 -87 .. .. .. ..
Interest received -1,070 -835 -834 -901 .. ..
Interest paid 2,507 2,516 2,561 2,502 .. ..
Asset movements
Depreciation 791 872 918 926 .. ..
Gains/(losses) on sales of assets -7 3 .. .. .. ..
Other non-cash items
Movements in employee benefit liabilities -936 110 864 1,134 .. ..
Movements in working capital -286 -929 -1,612 -1,861
Net Cash Flows from Operations 2,400 2,415 4,102 4,629 .. ..
Appendix 6 79 79 79 79 79
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Appendix 7 Model Financial Statements:
Manufacturing Organization
Paragraph 5.46 (page 31) refers to this appendix. This model set
of summary financial statements is appropriate for use by a manufacturing-
type organization. When using these financial statements, it is essential
that: (i) an appropriate Statement of Accounting Policies be developed
and agreed between ADB and the borrower; (ii) appropriate Notes to the
Financial Statements supplement the financial statements; and (iii) where
appropriate, the Financial Statements should be tailored so that they
adequately reflect the performance and position of the organization. The
format used for this particular model set of summary financial statements
is appropriate for year-end reporting.
Example Manufacturing Organization
Income Statement
[Format for year-end reporting]
for the year ended 31 December 20X2
For the Year Ended 31 December 20X2 Cumulative Since Project Start-Date
Actual Forecast Variance Actual Forecast Variance
Notes $’000 $’000 $’000 % $’000 $’000 $’000 %
SALES 1 893,121 1,431,093 -537,972 -37.6 1,976,522 2,173,098 -196,576 -9.0
Less Cost of Goods Sold 2 813,673 1,296,081 482,408 37.2 1,760,823 1,932,016 171,193 8.9
GROSS PROFIT 79,448 135,012 -55,564 -41.2 215,699 241,082 -25,383 -10.5
Operating Costs
Administrative Salaries 27,326 37,742 10,416 27.6 39,950 41,506 1,556 3.7
Depreciation 3,917 7,335 3,418 46.6 8,554 7,953 -601 -7.6
Amortization 12,357 12,357 .. 0.0 12,357 12,357 .. 0.0
Administration Costs 56,037 88,259 32,222 36.5 92,672 97,306 4,634 4.8
Marketing Expenses 3,109 4,985 1,876 37.6 6,904 7,596 692 9.1
102,746 150,678 47,932 31.8 160,437 166,718 6,281 3.8
OPERATING PROFIT -23,298 -15,666 -7,632 48.7 55,262 74,364 -19,102 -25.7
Other income 1,000 1,080 -80 -7.4 1,166 1,260 -94 -7.5
Foreign exchange gains/(losses) .. -1,570 1,570 -100.0 -1,564 -1,845 281 -15.2
Net Income before
Interest and Taxes -22,298 -16,156 -6,142 38.0 54,864 73,779 -18,915 -25.6
Project-related interest expenses -42,672 -63,657 20,985 -33.0 -52,343 -39,604 -12,739 32.2
Other interest expenses .. .. .. 0.0 .. .. .. 0.0
Income tax expense .. .. .. 0.0 . . -8,189 8,189 -100.0
Net Income after Interest and Taxes -64,970 -79,813 14,843 -18.6 2,521 25,986 -23,465 -90.3
Gross Margin (% of Sales) 8.9 9.4 -0.5 .. 10.9 11.1 -0.2 ..
Operating Margin (% of Sales) -2.6 -1.1 -1.5 .. 2.8 3.4 -0.6 ..
Example Manufacturing Organization
Balance Sheet
[Format for year-end reporting]
as at 31 December 20X2
For the Year Ended 31 December 20X2 Cumulative Since Project Start-Date
Actual Forecast Variance Actual Forecast Variance
Notes $’000 $’000 $’000 % $’000 $’000 $’000 %
Current Assets
Cash and bank 25,308 10,373 34,085 -62,165
Bills receivable 56,114 59,943 82,791 91,025
Accounts receivable 3 18,705 19,981 27,597 30,342
Inventories 4 365,150 402,058 427,488 455,796
Prepayments and other
current assets 120,193 120,193 120,193 120,193
585,470 612,548 692,154 635,191
Less: Current Liabilities
Accounts payable 93,174 103,203 140,826 156,768
Short-term debt 207,610 207,610 207,610 207,610
Notes and bills payable 5,000 5,000 5,000 5,000
Advances from customers 13,084 13,084 13,084 13,084
Accrued wages and salaries 184,427 184,427 184,427 184,427
Taxes payable 72,607 72,648 72,890 81,167
Accruals and other current
Liabilities 47,749 47,749 47,749 47,749
Current portion of term debt 3,000 13,578 28,824 71,070
626,651 647,299 700,410 766,875
WORKING CAPITAL -41,181 -34,751 -8,256 -131,684
Plus: Non-current Assets
Fixed assets 800,263 1,222,024 1,136,482 1,056,928
Capital work in progress (Assets under
construction) 445,108 169,390 520,880 913,740
Intangibles and deferrals 49,426 37,069 24,712 12,355
Other non-current assets 30,572 15,572 .. ..
1,325,369 1,444,055 1,682,074 1,983,023
Less: Non-current Liabilities
Term loans 443,700 621,349 554,132 670,517
Payables 7,646 7,646 7,646 7,646
Other non-current liabilities 49,250 49,250 49,250 49,250
500,596 678,245 611,028 727,413
NET ASSETS 783,592 731,059 1,062,790 1,123,926
EQUITY
Issued and paid-up capital 315,147 342,427 671,637 706,787
Accumulated surpluses/(deficits) 468,445 388,632 391,153 417,139
783,592 731,059 1,062,790 1,123,926
Current Ratio 0.93 0.95 0.99 0.83
Quick Ratio 0.16 0.14 0.21 0.08
Long-term Debt: Equity 0.64 0.93 0.57 0.65
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Example Manufacturing Organization
Statement of Cash Flows
[Format for year-end reporting]
for the year ended 31 December 20X2
For the Year Ended 31 December 20X2 Cumulative Since Project Start-Date
Actual Forecast Variance Actual Forecast Variance
Notes $’000 $’000 $’000 % $’000 $’000 $’000 %
OPERATING CASH FLOWS
Receipts
Cash receipts from customers 915,146 1,448,537 -533,391 -36.8 1,972,084 2,173,621 -201,537 -9.3
Tax rebates 23,260 27,280 -4,020 -14.7 30,990 35,150 -4,160 -11.8
Other receipts 1,000 1,080 -80 -7.4 1,166 1,260 -94 -7.5
Payments
Employees and suppliers -896,292 -1,387,934 491,642 -35.4 -1,811,168 -2,019,189 208,021 -10.3
Taxes paid -5,942 -7,508 1,566 -20.9 -10,212 -11,414 1,202 -10.5
Other payments .. 0.0 .. 0.0
Net Cash Flows from Operations 5 37,172 81,455 -44,283 -54.4 182,860 179,428 3,432 1.9
INVESTING CASH FLOWS
Receipts
Interest received .. .. .. 0.0 .. .. .. 0.0
Sales of fixed assets .. .. .. 0.0 .. .. .. 0.0
Sales of investments .. .. .. 0.0 .. .. .. 0.0
Payments
Interest paid -28,482 -42,370 13,888 -32.8 -41,700 -39,604 -2,096 5.3
Capital expenditures .. -219,390 219,390 -100.0 -351,490 -392,860 41,370 -10.5
Purchases of investments .. 0.0 .. 0.0
Net Cash Flows from Investing
Activities -28,482 -261,760 233,278 -89.1 -393,190 -432,464 39,274 -9.1
FINANCING CASH FLOWS
Receipts
Capital contributions from owners .. .. .. 0.0 .. .. .. 0.0
Proceeds from new borrowings .. 168,370 -168,370 -100.0 247,620 185,610 62,010 33.4
Payments
Repayment of borrowings -3,000 -3,000 .. 0.0 -13,578 -28,824 15,246 -52.9
Dividends paid .. .. .. 0.0 .. .. .. 0.0
Net Cash Flows from Financing
Activities -3,000 165,370 -168,370 -101.8 234,042 156,786 77,256 49.3
CASH AND CASH EQUIVALENTS
Balances as at 1 January 19,618 25,308 10,373 34,085
Currency changes on opening balances .. .. .. ..
Net increases/(decreases) for period 5,690 -14,935 -20,625 -138.1 23,712 -96,250 -119,962 -124.6
Balances as at 31 December 25,308 10,373 34,085 -62,165
Example Manufacturing Organization
Notes to the Financial Statements
[Format for year-end reporting]
for the year ended 31 December 20X2
For the Year Ended 31 December 20X2 Cumulative Since Project Start-Date
Actual Forecast Variance Actual Forecast Variance
$’000 $’000 $’000 % $’000 $’000 $’000 %
Note 1: Gross Margin by Product
Sales by Product:
Product A 240,318 284,659 -44,341 -15.6 394,096 433,618 -39,522 -9.1
Product B 230,868 258,132 -27,264 -10.6 357,413 393,240 -35,827 -9.1
Product C 262,416 586,880 -324,464 -55.3 812,700 894,080 -81,380 -9.1
Product D 149,919 287,022 -137,103 -47.8 397,913 437,760 -39,847 -9.1
Product E 9,600 14,400 -4,800 -33.3 14,400 14,400 .. 0.0
Total 893,121 1,431,093 -537,972 -37.6 1,976,522 2,173,098 -196,576 -9.0
Cost of Sales by Product:
Product A 203,418 311,059 107,641 34.6 352,165 405,723 53,558 13.2
Product B 203,418 336,981 133,563 39.6 316,948 367,083 50,135 13.7
Product C 260,375 414,746 154,371 37.2 739,546 734,166 -5,380 -0.7
Product D 138,324 220,334 82,010 37.2 334,556 405,723 71,167 17.5
Product E 8,138 12,961 4,823 37.2 17,608 19,321 1,713 8.9
Total 813,673 1,296,081 482,408 37.2 1,760,823 1,932,016 171,193 8.9
Gross Profit by Product ($’000):
Product A 36,900 -26,400 63,300 -239.8 41,931 27,895 14,036 50.3
Product B 27,450 -78,849 106,299 -134.8 40,465 26,157 14,308 54.7
Product C 2,041 172,134 -170,093 -98.8 73,154 159,914 -86,760 -54.3
Product D 11,595 66,688 -55,093 -82.6 63,357 32,037 31,320 97.8
Product E 1,462 1,439 23 1.6 -3,208 -4,921 1,713 -34.8
Total 79,448 135,012 -55,564 -41.2 215,699 241,082 -25,383 -10.5
Gross Margin by Product (%):
Product A 15.4 -9.3 24.6 .. 10.6 6.4 4.2 ..
Product B 11.9 -30.5 42.4 .. 11.3 6.7 4.7 ..
Product C 0.8 29.3 -28.6 .. 9.0 17.9 -8.9 ..
Product D 7.7 23.2 -15.5 .. 15.9 7.3 8.6 ..
Product E 15.2 10.0 5.2 .. -22.3 -34.2 11.9 ..
Total 8.9 9.4 28.2 .. 10.9 11.1 20.5 ..
Note 2: Cost of Goods Sold
Raw Materials 424,751 690,624 265,873 38.5 945,534 1,039,383 93,849 9.0
Utilities 238,734 416,461 177,727 42.7 592,612 679,561 86,949 12.8
Direct Labor 79,639 121,775 42,136 34.6 118,937 112,413 -6,524 -5.8
Direct Depreciation 35,257 66,012 30,755 46.6 76,988 71,601 -5,387 -7.5
Other Variable Costs 22,750 38,117 15,367 40.3 52,182 57,366 5,184 9.0
801,131 1,332,989 531,858 39.9 1,786,253 1,960,324 174,071 8.9
Plus opening finished goods 93,437 80,895 -12,542 -15.5 117,803 143,233 25,430 17.8
Less closing finished goods -80,895 -117,803 -36,908 31.3 -143,233 -171,541 -28,308 16.5
Cost of Goods Sold 813,673 1,296,081 482,408 37.2 1,760,823 1,932,016 171,193 8.9
Appendix 7 83 83 83 83 83
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Example Manufacturing Organization
Notes to the Financial Statements
[Format for year-end reporting]
for the year ended 31 December 20X2
For the Year Ended Cumulative Since Project
31 December 20X2 Start-Date
Actual Forecast Variance Actual Forecast Variance
$’000 $’000 $’000 % $’000 $’000 $’000 %
Note 3: Receivables
By Organization Type:
Related parties 576 700 750 750
State-owned organizations 10,256 12,500 17,200 19,000
Other organizations 9,744 9,000 12,500 14,000
Gross Receivables 20,576 22,200 30,450 33,750
By Age
Less than 30 days old 10,000 11,000 15,000 19,000
30–60 days old 5,000 5,500 7,000 9,000
60–90 days old 2,500 2,500 5,000 4,000
90–180 days old 2,000 2,000 2,000 1,000
More than 180 days old 1,076 1,200 1,450 750
Gross Receivables 20,576 22,200 30,450 33,750
Less: Provision for Doubtful Debts -1,871 -2,219 -2,853 -3,408
Net Receivables per balance 18,705 19,981 27,597 30,342
Note 4: Inventories
By Age
Less than 2 months old 100,000 120,000 125,000 160,000
2–4 months old 80,000 90,000 95,000 150,000
4–6 months old 100,000 95,000 95,000 90,000
6–9 months old 60,000 60,000 70,000 40,000
9–12 months old 20,000 30,000 35,000 20,000
More than 12 months old 15,150 17,058 17,488 5,796
Gross Inventories 375,150 412,058 437,488 465,796
Less: Provision for Obsolete Inventories -10,000 -10,000 -10,000 -10,000
Net Inventories per balance sheet 365,150 402,058 427,488 455,796
Note 5: Reconciliation of Income Statement to Operating Cash Flows
Net Surplus/(Deficit) per Income Statement .. .. .. ..
Items included in net surpluses but not in
net cash flows from operations:
Unrealized net foreign exchange gains .. .. .. ..
Interest revenues .. .. .. ..
Interest expenses .. .. .. ..
Asset movements
Depreciation .. .. .. ..
Gains/(losses) on sales of assets .. .. .. ..
Other non-cash items
Movements in employee benefit liabilities .. .. .. ..
Movements in working capital
Decrease/(increase) in receivables .. .. .. ..
Decrease/(increase) in inventories .. .. .. ..
Decrease/(increase) in work in progress .. .. .. ..
Increase/(decrease) in payables .. .. .. ..
Net Cash Flows from Operations .. .. .. ..
Appendix 8 Model Auditor Terms of Reference:
Executing Agency Audit
Paragraph 5.73 (page 37) refers to this appendix.
ENTITY NAME: XYZ
AUDIT OF ANNUAL FINANCIAL STATEMENTS
AUDITOR TERMS OF REFERENCE
GUIDANCE: This template is appropriate for the audit of executing agencies
(EAs) or implementing agencies (IAs). It should be completed—by the
borrower, EA or project preparatory technical assistance (PPTA)
consultants—and provided to ADB for comments before fact finding. This
template can be applied to the audit of either a revenue-earning or
nonrevenue-earning EA.
Introduction
GUIDANCE: Briefly describe the audit assignment. Specify whether the
engagement is for one or more financial years. A longer period (e.g., 3–5
years) will enable the auditor to become familiar with the entity. The actual
contract should allow for termination for inadequate performance, but
not for issuing a qualified, adverse or disclaimer opinion.
1. The management of XYZ requires an auditor to carry out the
following audit services for the [X] years ended 31 December 20xx:
• An audit of XYZ Annual Financial Statements (AFS).
2. This letter describes the assignment scope and terms and invites
you to submit a proposal for delivery of these services.
General Background
GUIDANCE: Briefly describe the project in the context of its contribution to
achievement of the EA’s economic goals. The auditor must understand
the “purpose for which the funds are intended” in the context of the broad
project objec-tives as well as in terms of the specific project budget.
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3. …
GUIDANCE: Briefly summarize relevant accounting and financial
management practices. Various diagnostic reports are available that
describe accounting and financial man-agement practices (e.g., ADB
Diagnostic Studies of Accounting and Auditing, World Bank Country
Financial Accountability Assessments). Emphasis should be placed on
issues raised and risks identified in these reports.
4. …
Employing Authority or Entity
GUIDANCE: The details of the proposed contractor of the auditor’s services
should be provided. If the contractor is acting on behalf of, or is part of, a
larger authority or entity, this should be disclosed, to assist prospective
auditors to determine their independence.
5. The audit services will be contracted by:
Delivery of Opinions and Reports
GUIDANCE: The required opinions and documents should be clearly
specified, together with delivery time frames.
6. The auditor will provide the following opinions and reports to
management (with copies to ADB), in accordance with the following time
frames:
• Audit Opinion on Annual Financial Statements of [XYZ]
• Management Letter relating to [XYZ]
7. All reports must be provided in the English language.
Objectives
8. The primary objective of the AFS audit is to enable the auditor to
express an independent opinion on whether the AFS present fairly, in all
material respects the financial position of XYZ as of 31 December 20xx,
and of the results of its operations and its cash flows for the year then
ended in accordance with agreed accounting standards (see Terms and
Definitions).
9. Secondary objectives include confirming compliance, or
otherwise, with: (i) each financial covenant contained in the legal
documents for the project (see Terms and Definitions); and (ii) all other
financial assurances contained in the legal documents for the project (see
Terms and Definitions).
Description of XYZ
GUIDANCE: A detailed description—both legal and generally informative—
should be provided to enable the auditor to understand fully the nature,
location and objective of the entity under audit. Geographic characteristics
should be described, together with: (i) organization charts; (ii) names of
senior managers; (iii) name and qualification of the person(s) responsible
for financial management, accounting and internal audit; (iv) name and
address of any existing external auditor; (v) computing or other data
processing facilities in use; (vi) a copy of the latest published financial
statements; and (vii) internal facilities (if any) available to an external
auditor (e.g., office accommodation, calculators, and computer facilities).
A general summary of the financial management assessment of the EA
should be included, together with a reference that the full financial
management assessment will be made available to the auditor. Detailed
information should be appended.
10. …
Description of Materials and Timing of Delivery
GUIDANCE: The AFS and supporting documentation that will be supplied
to the auditor, and on which they are to give an opinion and a report,
should be specified. The estimated time for providing these documents to
the auditor should be stated (e.g., one month after financial year-end).
This schedule helps the auditee and the auditor plan for the accounts-
preparation and the audit process.
11. The AFS (see Terms and Definitions) and supporting
documentation will be provided to the auditor on the following estimated
dates:
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Audit Scope
GUIDANCE: The scope of the audit should be sufficiently clear to properly define
what is expected of the auditor but not in any way restrict the audit procedures
or the tech-niques the audi-tor may wish to use to form an opinion. This section
will not generally have to be customized to a particular audit situation.
12. Auditing Standards and Program. The audit will be carried out
in accordance with the agreed auditing standards (see Terms and
Definitions), including professional or general standards, standards of
fieldwork and reporting standards.
13. The audit program will consider the risk of material
misstatements resulting from fraud or error. It should include procedures
that are designed to provide reasonable assurance that material
misstatements (if any) are detected.
14. Internal Control Systems. The auditor will assess the adequacy
of financial management systems, including internal controls.
15. The auditor should communicate with independent board
members (where present). Among other things, this dialogue should cover
the adequacy of bad-debt provisions, contingent liabilities, related-party
transactions, internal control systems, management and board reporting,
and management systems, integrity and capability.
16. Accounting Policies and Changes. The auditor should comment
on the entity’s accounting policies, and confirm the extent to which the
agreed accounting standards (see Terms and Definitions) have been
applied. In particular, the auditor should note the impact on the AFS arising
from any material deviations from agreed accounting standards. The
auditor should also comment on any material accounting policy changes,
either during a financial year, or from one year to another.
17. Compliance with Financial Covenants. The auditor will confirm
compliance with each financial covenant contained in the legal documents
for the project (see Terms and Definitions). Where present, the auditor
should indicate the extent of any noncompliance by comparing required
and actual performance measurements for each financial covenant for
the financial year concerned.
18. Compliance with Financial Assurances. The auditor will confirm
compliance with all financial assurances contained in the legal documents
for the project (see Terms and Definitions). Where present, the auditor
should indicate the extent of any noncompliance by comparing required
and actual performance of the borrower in respect of these ADB
requirements for the financial year concerned.
Management Letter
19. On conclusion of the audit, the auditor will prepare a
management letter, detailing:
• any material weaknesses in the accounting and internal
control systems that were identified during the audit,
• recommendations to rectify identified weaknesses,
• the status of significant matters raised in previous
management letters and any corrective actions taken by the
organization,
• practical recommendations on the steps that the organization
could take to become materially compliant with the agreed
accounting standards (see Terms and Definitions), together
with a time frame for making these changes,
• any other matters that the auditor considers should be brought
to the attention of the organization’s management, and
• any significant matters that the auditor considers should be
brought to ADB’s attention.
Statement of Access
20. The auditor will have full and complete access, at all reasonable
times, to all records and documents including books of account, legal
agreements, bank records, invoices and any other information associated
with the project and deemed necessary by the auditor.
21. The auditor will be provided with full cooperation by all
employees of [XYZ] and the project-implementing units, whose activities
involve, or may be reflected in, the annual financial statements. The auditor
will be assured rights of access to banks and depositories, consultants,
contractors and other persons or firms hired by the employer.
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Independence
22. The auditor will be impartial and independent from any aspects
of management or financial interest in the entity under audit. In particular,
the auditor should be independent of the control of the entity. The auditor
should not, during the period covered by the audit, be employed by, or
serve as director for, or have any financial or close business relationship
with the entity. The auditor should not have any close personal relationships
with any senior participant in the management of the entity. The auditor
must disclose any issues or relationships that might compromise their
independence.
Auditor and Audit Staff Competence
23. The auditor must be authorized to practice in the country and
be capable of applying the agreed auditing standards (see Terms and
Definitions). The auditor should have adequate staff, with appropriate
professional qualifications and suitable experience, including experience
in auditing the accounts of entities comparable in nature, size and
complexity to the entity whose audit they are to undertake.
24. To this end, the auditor is required to provide curriculum vitae
(CV) of the auditors who will provide the opinions and reports, together
with the CVs of managers, supervisors and key personnel likely to be
involved in the audit work. These CVs should include details of audits
carried out by these staff, including ongoing assignments.
Submission of Proposal and Work Plan
25. You are invited to submit a proposal and a work plan to provide
the audit services described in this letter. Proposals should address, among
other things:
• the extent (if any) that you would not conform to the agreed
auditing standards (see Terms and Definitions) and indicate
any alternative standards to which the auditor may (be
required to) conform;
• whether the audit would be conducted as a completed audit
(i.e., will you carry out the audit after financial year-end, when
the books of account are, or are being, closed);
• whether an audit carried out after the close of a financial year
would be supplemented by one or more interim audits during
a financial year. The principal purpose is to test ongoing
systems and internal controls, and to relieve pressure on the
staff of the entity and on the auditor at year-end;
• the manner in which the auditor proposes to address any
statutory requirements relating to audit (e.g., certifications
relating to shareholders’ equity required under the
companies’ act) or to which they may be implicitly bound by
contractual obligations of the employer (e.g., ADB auditing
requirements, Statements of Expenditure, Imprest Accounts);
• procedural requirements for certain verification procedures
(e.g., checking of stocks, inventories, assets, etc.);
• specific actions required on the part of the employer (e.g.,
access to computer systems and records, disclosures);
• discussions before signing the opinion and report on any
matters arising from the audit, and with whom these
discussions would be held; and
• the timetable for provision of opinions and reports.
Terms and Definitions
26. This section defines the terms used in this document.
1. Annual Financial Statements
GUIDANCE: The EA will prepare Annual Financial Statements (AFS). Most
revenue-earning EAs (e.g., Utilities) will prepare accrual-based financial
statements. EA reporting requirements will usually be specified in the
Report and Recommendation of the President and in the loan agreement.
The component parts of the AFS should be specified in this section.
27. The AFS comprises:
[Option A: Generally IAS-compliant Accrual-based Financial Statements]:
• Statement of Accounting Policies,
• Statement of Financial Performance (or income statement),
• Statement of Financial Position (or balance sheet),
• Statement of Movements in Equity,
• Statement of Cash Flows,
• Notes to the Financial Statements, abd
• Other Information (specify).
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[Option B: Other Financial Reports]:
• Statement of Accounting/Financial Policies,
• Statement of Income/Cash Receipts,
• Statement of Expenses/Cash Payments,
• Statement of Cash Flows/Cash Receipts and Payments,
• Notes to the Financial Statements, and
• Other Information (specify).
2. Agreed Accounting Standards
GUIDANCE: The accounting standards that govern AFS preparation will
normally be agreed and documented in the RRP and/or loan agreement.
Choose the appropriate option.
28. “Agreed accounting standards” regarding the preparation of the
AFS, means:
• [Option A: International Accounting Standards] the
International Financial Reporting Standards (IFRS) issued by
the International Accounting Standards Board (IASB)
(commonly known as international accounting standards).
• [Option B: National Accounting Standards] the accounting
standards issued by [national authority].
• [Option C: Modified National Accounting Standards] the
accounting standards issued by [national authority], with the
following modifications and/or additional disclosures:
• [Option D: Cash-based International Public Sector Accounting
Standards] the cash-based International Public Sector
Accounting Standards (IPSAS) promulgated by the
International Federation of Accountants (IFAC).
• [Option E: Accrual-based International Public Sector
Accounting Standards] the accrual-based International Public
Sector Accounting Standards (IPSAS) promulgated by the
International Federation of Accountants (IFAC).
• [Option F: Specific Government Accounting Standards]
describe these standards.
3. Agreed Auditing Standards
GUIDANCE: The agreed auditing standards will normally be documented
in the RRP and/or loan agreement. Choose the appropriate option.
29. “Agreed auditing standards” means:
• [Option A: International Standards on Auditing] the
International Standards on Auditing (ISA) promulgated by the
International Auditing and Assurance Standards Board
(IAASB).
• [Option B: INTOSAI Auditing Standards] the auditing
standards promulgated by the International Organization of
Supreme Audit Institutions (INTOSAI).
• [Option C: National Auditing Standards] the auditing
standards promulgated by [national authority].
4. Financial Covenants Applicable to [XYZ]
GUIDANCE: The financial covenants that are applicable to the EA will be
included in the loan agreement (e.g., Self-financing Ratio). This section
should list, describe and fully reference all applicable financial covenants.
30. The following financial covenants, regarding [XYZ], have been
agreed:
5. Financial Assurances Applicable to [XYZ]
GUIDANCE: The financial assurances that are applicable to the EA—such
as a commitment to employ suitably-qualified accounting personnel—
will be included in project legal documents. This section should list,
describe and fully reference all applicable financial assurances.
31. The following financial assurances, regarding [XYZ], have been
given:
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Appendix 9 Model Auditor Terms of Reference:
Annual Project Accounts Audit
Paragraph 5.73 (page 37) refers to this appendix.
[ENTITY NAME: XYZ]
AUDIT OF ANNUAL PROJECT ACCOUNTS
AUDITOR TERMS OF REFERENCE
GUIDANCE: This template is appropriate for an APA audit. It should be
completed—by the borrower, executing agency (EA) or project preparatory
technical assistance (PPTA) consultants—and provided to ADB for
comments before fact finding. This template can be applied to the audit
of either a revenue-earning or nonrevenue-earning project.
A. Introduction
GUIDANCE: Briefly describe the audit assignment. Specify whether the
engagement is for one or more financial years. A longer period (e.g., 3–5
years) will enable the auditor to become familiar with the entity. The actual
contract should allow for termination for inadequate performance, but
not for issuing a qualified, adverse or disclaimer opinion.
32. The management of XYZ requires an auditor to carry out the
following audit services for the [X] years ended 31 December 20xx:
• An audit of the Annual Project Accounts (APA) for each of the
loan projects listed below (see Terms and Definitions).
33. This letter describes the assignment scope and terms and invites
you to submit a proposal for delivery of these services.
General Background
GUIDANCE: Briefly describe the supervising agency and the EA. Describe
the project in the context of its contribution to achievement of the EA’s
economic goals. The auditor must understand the “purpose for which the
funds are intended” in the context of the broad project objectives as well
as in terms of the specific project budget.
34. …
GUIDANCE: Briefly summarize relevant accounting and financial
management practices. Various diagnostic reports are available that
describe accounting and financial man-agement practices (e.g., ADB
Diagnostic Studies of Accounting and Auditing, World Bank Country
Financial Accountability Assessments). Emphasis should be placed on
issues raised and risks identified in these reports.
35. …
Employing Authority or Entity
GUIDANCE: The details of the proposed contractor of the auditor’s services
should be provided. If the contractor is acting on behalf of, or is part of, a
larger authority or entity, this should be disclosed, to assist prospective
auditors to determine their independence.
36. The audit services will be contracted by:
Delivery of Opinions and Reports
GUIDANCE: The required opinions and documents should be clearly
specified, together with delivery time frames.
37. The auditor will provide the following opinions and reports to
management (with copies to ADB), in accordance with the following time
frames:
• Audit Opinion on the Annual Project Accounts of:
– Loan xxx
– Loan xxx
• Management Letter on the following projects:
– Loan xxx
– Loan xxx
38. All reports must be provided in the English language.
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Objectives
GUIDANCE: Specify the audit’s objectives.
39. The objective of the APA audit (see Terms and Definitions) is to
enable the auditor to express an opinion on the financial position of each
of the loan projects listed below (see Terms and Definitions), for the years
ending 31 December 20xx, and on the funds received and expenditures
for the years then ended.
GUIDANCE: This paragraph should be applied where it is referred to in the
loan agreement.
40. Separate opinions on the eligibility of claims made in Statements
of Expenditure (SOEs) and on the Imprest Account Statement are also
required.
Description of Materials and Timing of Delivery
GUIDANCE: The form of the APA and supporting documentation that will
be supplied to the auditor, and on which they are to give an opinion and a
report, should be specified. In practice, the form and content of APA will
vary among countries and projects. For instance, the APA may comprise a
Statement of Receipts and Payments only on project transactions. Other
schedules may include cumulative work-in-progress, assets and
inventories, and a summarized bank reconciliation. The estimated time
for providing these documents to the auditor should be stated (e.g., one
month after financial year-end). This schedule helps the auditee and the
auditor plan for the accounts-preparation and the audit process.
41. The Annual Project Accounts (APA) (see Terms and Definitions)
and supporting documentation will be provided to the auditor on the
following estimated dates:
Audit Scope
GUIDANCE: The scope of the audit should be sufficiently clear to properly
define what is expected of the auditor, but should not restrict the audit
procedures or the tech-niques the audi-tor may wish to use to form an
opinion. This section will not generally have to be customized to a particular
audit situation. The list of issues outlined in this section is not exhaustive,
nor should all matters be addressed in every project. The scope and detail
of an audit are likely to be unique for each project.
42. Auditing Standards and Program. The audit will be carried out
in accordance with the agreed auditing standards (see Terms and
Definitions), in-cluding professional or general standards, standards of
fieldwork and reporting standards.
43. The audit program will consider the risk of material
misstatements resulting from fraud or error. It should include procedures
that are designed to provide reasonable assurance that material
misstatements (if any) are detected.
44. Accounting Policies and Changes. The auditor should comment
on the project’s accounting policies, and confirm the extent to which the
agreed project accounting policies (see Terms and Definitions) have been
applied. In particular, the auditor should note the impact on the APA arising
from any material deviations from the agreed accounting standards. The
auditor should also comment on any accounting policy changes, either
during a financial year, or from one year to another.
45. Imprest Account (or Special Account). The Imprest Account
reflects: (i) deposits and replenishment received from financiers; (ii)
payments substantiated by withdrawal applications; and (iii) the remaining
balance at financial year-end. The auditor will examine whether the
Imprest Account has been maintained in accordance with the provisions
of the relevant financing agreements.
46. The auditor must form an opinion on whether the Imprest
Account was used in compliance with required procedures (e.g., those of
ADB), and the fairness of the presentation of Imprest Account activity and
the year-end balance. The auditor should examine the eligibility and
correctness of financial transactions during the period under review,
account balances at the end of the period, the operation and use of the
Imprest Account in accordance with the financing agreement, and the
adequacy of internal controls for this particular disbursement mechanism.
47. Statements of Expenditures (SOEs). The auditor will audit all
SOEs used as the basis for the submission of credit withdrawal applications
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to ADB. These expenditures should be compared for project eligibility with
the relevant financing agreements (and with reference to the RRP and
other project documents for guidance when considered necessary). Where
ineligible expenditures are identified as having been included in
withdrawal applications and reimbursed against, these should be
separately noted by the auditor. The annual audit report should include a
separate paragraph commenting on the accuracy and propriety of
expenditures withdrawn under SOE procedures, and the extent to which
ADB can rely on those SOEs as a basis for credit disbursement. Annexed
to the APA should be a schedule listing individual SOE withdrawal
applications by specific reference number and amount.
48. Compliance with Financial Covenants. The auditor will confirm
compliance with each financial covenant contained in the project legal
documents (see Terms and Definitions). Where present, the auditor should
indicate the extent of any noncompliance by comparing required and
actual performance measurements for each financial covenant for the
financial year concerned.
49. Compliance with Financial Assurances. The auditor will confirm
compliance with all financial assurances contained in the project legal
documents (see Terms and Definitions). Where present, the auditor should
indicate the extent of any noncompliance by comparing required and
actual performance of the borrower in respect of these ADB requirements
for the financial year concerned.
50. Use of Funds for the Purpose Intended. The auditor will
confirm, or otherwise, that:
• All external funds have been used in accordance with the
relevant financing agreements covering each project, with
due attention to economy and efficiency, and only for the
purpose for which the financing was provided;
• Counterpart funds have been provided and used in
accordance with the relevant financing arrangements and
only for the purpose for which the financing was provided;
and
• Goods and services financed have been procured in
accordance with the relevant financing agreements.
51. Record Keeping. The auditor will pay particular attention to
whether all necessary supporting documents, records, and accounts have
been kept in respect of all project activities, with clear linkages between
the accounting records and the APA. This will include: (i) computation
and recalculation, including checking the mathematical accuracy of
estimates, accounts or records; (ii) reconciliation, including reconciling
related accounts to each other, subsidiary records to primary records and
internal records to external documents; (iii) physical observation, including
inspecting or counting tangible assets, such as materials, inventory, land
buildings, property or equipment; (iv) confirmation, including directly
confirming balances or transactions with external third parties, such as
cash balances, accounts receivable or accounts payable; (v) sampling,
including vouching or examining supporting documentation to determine
if balances are properly stated; and (vi) tracing, including tracing journal
postings, subsidiary ledger balances, and other details to corresponding
general ledger accounts or trial balances.
52. Internal Control Systems. The auditor will assess the adequacy
of the project financial management systems, including internal controls,
including whether: (i) proper authorizations are obtained and documented
before transactions are entered into; (ii) accuracy and consistency are
achieved in recording, classifying, summarizing and reporting transactions;
(iii) reconciliations with internal and external evidence are performed on
a timely basis by the appropriate level of management; (iv) balances can
be confirmed with external parties; (v) adequate documentation and an
audit trail is retained to support transactions; (vi) transactions are allowable
under the agreements governing the project; (vii) errors and omissions
are detected and corrected by project personnel in the normal course of
their duties, and management is informed of recurring problems or
weaknesses; (viii) management does not override the normal procedures
and the internal control structure; and (ix) assets are property accounted
for, safeguarded and can be physically inspected.
Management Letter
53. On conclusion of the audit, the auditor will prepare a
Management Letter for each of the audited projects, detailing:
• Any material weaknesses in the accounting and internal
control systems that were identified during the audit;
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• Recommendations to rectify identified weaknesses;
• The status of significant matters raised in previous
management letters;
• Practical recommendations on the steps that could be taken
to become materially compliant with the agreed project
accounting policies (see Terms and Definitions), together with
a time frame for making these changes;
• The degree of compliance with each of the financial
covenants in the loan agreement and recommendations for
improvement;
• Matters that have come to the auditor’s attention during the
course of the audit which have a significant impact on project
implementation;
• Any other matters that the auditor considers should be
brought to the attention of the project’s management; and
• Significant matters that the auditor considers should be
brought to ADB’s attention.
Statement of Access
54. The auditor will have full and complete access, at all reasonable
times, to all records and documents including books of account, legal
agreements, bank records, invoices and any other information associated
with the project and deemed necessary by the auditor.
55. The auditor will be provided with full cooperation by all
employees of [XYZ] and the project-implementing units, whose activities
involve, or may be reflected in, the annual financial statements. The auditor
will be assured rights of access to banks and depositories, consultants,
contractors and other persons or firms hired by the employer.
Independence
56. The auditor will be impartial and independent from any aspects of
management or financial interest in the entity under audit. In particular, the
auditor should be independent of the control of the entity. The auditor should
not, during the period covered by the audit, be employed by, or serve as director
for, or have any financial or close business relationship with the entity. The
auditor should not have any close personal relationships with any senior
participant in the management of the entity. The auditor must disclose any
issues or relationships that might compromise their independence.
Auditor and Audit Staff Competence
57. The auditor must be authorized to practice in the country and
be capable of applying the agreed auditing standards (see Terms and
Definitions). The auditor should have adequate staff, with appropriate
professional qualifications and suitable experience, including experience
in auditing the accounts of entities comparable in nature, size and
complexity to the entity whose audit they are to undertake.
58. To this end, the auditor is required to provide curriculum vitae
(CV) of the auditors who will provide the opinions and reports, together
with the CVs of managers, supervisors and key personnel likely to be
involved in the audit work. These CVs should include details of audits
carried out by these staff, including ongoing assignments.
Submission of Proposal and Work Plan
59. You are invited to submit a proposal and a work plan to provide
the audit services described in this letter. Proposals should address, among
other things:
• the extent (if any) that you would not conform to the agreed
auditing standards (see Terms and Definitions) and indicate
any alternative standards to which you may (be required to)
conform;
• whether the audit would be conducted as a completed audit
(i.e., will the auditors carry out their audit after financial year-
end, when the books of account are, or are being, closed);
• whether an audit carried out after financial year-end would
be supplemented by one or more interim audits during a
financial year. The principal purpose is to test ongoing systems
and internal controls, and to relieve pressure on the staff of
the entity and on the auditor at year-end;
• the manner in which the auditor proposes to address any
statutory requirements relating to audit (e.g., certifications
relating to shareholders’ equity required under the
companies’ act) or to which they may be implicitly bound by
contractual obligations of the employer (e.g., ADB auditing
requirements, Statements of Expenditure, Imprest Accounts);
• procedural requirements for certain verification procedures
(e.g., checking of stocks, inventories, assets, etc.);
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• specific actions required on the part of the employer (e.g.,
access to computer systems and records, disclosures);
• discussions before signing the opinion and report on any
matters arising from the audit, and with whom these
discussions would be held; and
• the timetable for provision of opinions and reports.
Terms and Definitions
60. This section defines the terms used in this document.
Annual Project Accounts
GUIDANCE: The Annual Project Accounts (APA) may comprise a Statement
of Receipts and Payments (Cash flow statement). This template is specifically
intended for audits of these types of APA. Other schedules of value or
cumulative work-in-progress, assets and inventories and a summarized
reconciled bank statement are to be attached. Project reporting requirements
will usually be specified in the RRP and in the loan agreement. The
component parts of the APA should be specified in this section.
61. The Annual Project Accounts (APA) comprises:
[Option A: Generally IAS-compliant Accrual-based Financial Statements]:
• Statement of Accounting Policies,
• Statement of Financial Performance (or income statement),
• Statement of Financial Position (or balance sheet),
• Statement of Movements in Equity,
• Statement of Cash Flows,
• Notes to the Financial Statements, and
• Other Information (specify).
[Option B: Other Financial Reports]:
• Statement of Accounting/Financial Policies,
• Statement of Income/Cash Receipts,
• Statement of Expenses/Cash Payments,
• Statement of Cash Flows/Cash Receipts and Payments,
• Statement of Uses of Funds by Project Activity,
• Notes to the Financial Statements, and
• Other Information (specify).
GUIDANCE: The APA should include: (a) a summary of funds received
showing ADB funds, any cofinancing and counterpart funds separately;
(b) a summary of expenditures shown under the main project components
and by main categories of expenditures (as referenced in loan and appraisal
documentation) for the year ending 31 December 20xx and cumulative
expenditures on the project to date; and (c) statement of fund balance as
of 31 December 20xx.
Loan Projects
GUIDANCE: List the loan projects that will be audited. Provide brief details
and attach relevant documents.
62. Annual Project Accounts (APA) and supporting documentation
will be provided for the following loan projects financed by the Asian
Development Bank (ADB) [and IDA, EBRD, etc]:
• Loan xxxx,
• Loan xxxx, and
• Loan xxxx.
Agreed Project Accounting Policies
GUIDANCE: The project accounting policies that govern APA preparation
will normally be agreed and documented in the RRP and/or loan
agreement. Choose the appropriate option.
63. “Agreed project accounting policies” with regard to preparation
of Annual Project Accounts, means
• [Option A: Cash-based International Public Sector Accounting
Standards] the cash-based International Public Sector
Accounting Standard (IPSAS) promulgated by the
International Federation of Accountants (IFAC).
• [Option B: Accrual-based International Public Sector
Accounting Standards] the accrual-based International Public
Sector Accounting Standards (IPSAS) promulgated by the
International Federation of Accountants (IFAC).
• [Option C: International Accounting Standards] the
International Financial Reporting Standards (IFRS) issued by
the International Accounting Standards Board (IASB) (also
known as international accounting standards).
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• [Option D: National Accounting Standards] the accounting
standards issued by [national authority].
• [Option E: Modified National Accounting Standards] the
accounting standards issued by [national authority], with the
following modifications and/or additional disclosures:
• [Option F: Specific Government Accounting Standards]
describe these standards.
Agreed Auditing Standards
GUIDANCE: The agreed auditing standards will normally be documented
in the RRP and/or loan agreement. Choose the appropriate option.
64. “Agreed auditing standards” means
• [Option A: International Standards on Auditing] the
International Standards on Auditing (ISA) promulgated by the
International Auditing and Assurance Standards Board (IAASB).
• [Option B: INTOSAI Auditing Standards] the auditing
standards promulgated by the International Organization of
Supreme Audit Institutions (INTOSAI).
• [Option C: National Auditing Standards] the auditing
standards promulgated by [national authority].
Financial Covenants Applicable to Projects
GUIDANCE: The financial covenants that are applicable to projects will be
included in loan agreements. This section should list, describe and fully
reference all applicable financial covenants.
65. The following financial covenants have been agreed for the
following projects:
Financial Assurances Applicable to Projects
GUIDANCE: The financial assurances that are applicable to the EA—such
as a commitment to employ suitably-qualified accounting personnel—
will be included in project legal documents. This section should list,
describe and fully reference all applicable financial assurances.
66. The following financial assurances, regarding the following
projects, have been given:
Appendix 10 Model Auditor Opinion for a
Nonrevenue-Earning Project
Paragraph 5.84 (page 41) refers to this appendix.
To: Borrower (or designated agency)
We have audited the accompanying financial statements
(pages _____ to _____) of the _______________ Project financed under the
Asian Development Bank Loan No. _____as of 31 December, 20____, and
for the year then ended.
These financial statements are the responsibility of the
management of [the EA]. Our responsibility is to express an opinion on
the accompanying statements based on our audit.
We conducted our examination in accordance with International
Standards on Auditing. Those standards require that we plan and perform
the audit to obtain reasonable assurance about whether the financial
statements are free of material misstatement. Our audit includes
examining, on a test basis, evidence supporting the amounts and
disclosures in the financial statements. Our audit also includes assessing
the accounting principles and significant estimates made by management,
as well as evaluating the overall statement presentation. We believe that
our audit provides a reasonable basis for our opinion.
_______ [The EA’s] policy is to prepare the accompanying
statements in the format agreed between the Asian Development Bank
and the Government of _______ as noted in the Minutes of Negotiations for
the Loan [on a cash receipts and disbursements basis in which cash is
recognized when received and expenses are recognized when paid, rather
than when incurred]/[on an accruals basis in which expenses are
recognized when incurred and revenue is reported when income is due].
In our opinion, (A) the aforementioned financial statements and
appended notes that were also the subject of the audit, fairly present in all
material respects the financial position of the _________ project as at
___________ 20____ and the results of its operations for the year ended
___________ 20____, in conformity with _______________ accounting standards,
applied on a basis consistent in all material respects with that of the
previous year; (B) the [Borrower] [EA] has utilized all proceeds of the
loan withdrawn from the Asian Development Bank only for purposes of
the Project as agreed between the Asian Development Bank and [the
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Borrower] in accordance with the loan agreement; and no proceeds of
the loan have been utilized for other purposes; and (C) the [Borrower]
[EA] was in compliance as at the date of the balance sheet of the year of
audit with all financial covenants of the loan agreement.
In addition:
(i) (a) With respect to Statements of Expenditures, adequate supporting
documentation has been maintained to support claims to the Asian
Development Bank for reimbursements of expenditures incurred;
and (b) which expenditures are eligible for financing under Loan
Agreement No. _____.
(ii) (a) The Imprest Accounts (page ___) give a true and fair view of the
receipts collected and payments made during the year ending
______; and (b) these receipts and payments support Imprest
Account liquidations/replenishments during the year.
[(i) and (ii) above are to be provided where the loan agreement requires
separate Imprest Account and statement of expenditures audits and audit
opinions.]
Appendix 11 Model Auditor Opinion for a Revenue-Earning Agency
Paragraph 5.84 (page 41) refers to this appendix.
To: Borrower (or designated agency)
“We have examined the Balance Sheet of ___________as of
________ 20__ , and the Income Statement, Cash Flow Statement and
related statements and Notes (see pages____ to ____ of our Report) of the
_________________ Project financed under the Asian Development Bank
Loan No.________________ as of 31 December, 20___, and for the year then
ended.
We conducted our examination in accordance with International
Standards on Auditing [auditing standards of the country of ______]. Those
standards require that we plan and perform the audit to obtain reasonable
assurance about whether the financial statements are free of misstatement.
Our audit includes examining, on a test basis, evidence supporting the
amounts and disclosures in the financial statements. Our audit also
includes assessing the accounting principles and significant estimates
made by the Management, as well as evaluating the overall statement
presentation. We believe that our audit provides a reasonable basis for
our opinion.
In our opinion, (A) the aforementioned financial statements and
appended notes that were also the subject of the audit, fairly present
separately (i) the financial position of the ___________ Project and (ii) the
overall operations of the __________________ [name of EA] as
at__________20___and the separate results of the project operations and
the EA’s operations for the year ended _________ 20__, in conformity with
International Accounting Standards [accounting standards of the country
of___________], applied on a basis consistent in all material respects with
that of the previous year; (B) the [Borrower] [EA] has utilized all proceeds
of the loan withdrawn from the Asian Development Bank (ADB) only for
purposes of the Project as agreed between the Asian Development Bank
and [the Borrower] in accordance with the loan agreement; and no
proceeds of the loan have been utilized for other purposes; and (C) the
[Borrower] [EA] was in compliance as at the date of the Balance Sheet of
the year of audit with all financial covenants of the loan agreement.
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In addition:
(i) (a) With respect to statements of expenditures, adequate supporting
documentation has been maintained to support claims to the Asian
Development Bank for reimbursements of expenditures incurred;
and (b) which expenditures are eligible for financing under loan
agreement No. ___________________. (Required where an SOE audit
is required under the loan agreement.)
(ii) The Imprest Accounts (page ____) gives a true and fair view of the
receipts collected and payments made during the year ending
_________________.
[(i) and (ii) above to be provided where a separate Imprest Account audit
is required under the Loan Agreement.]
Appendix 12 Useful Reference Materials
Users of this Handbook may find the following reference materials useful.
They are available from Asian Development Bank (ADB) in hard copy or
can be freely downloaded from www.adb.org.
Selected ADB Guidelines
Guidelines for the Economic Analysis of Projects (1997)
Guidelines for the Economic Analysis of Telecommunications Projects
(1997)
Guidelines for the Economic Analysis of Water Supply Projects (1998)
Guidelines for the Financial Governance and Management of Investment
Projects financed by ADB (2002)
Guidelines on the Use of Consultants by Asian Development Bank and
Its Borrowers (2002)
Selected ADB Handbooks
Handbook for Integrating Poverty Impact Assessment in the Economic
Analysis of Projects (2001)
Handbook for Integrating Risk Analysis in the Economic Analysis of Projects
(2002)
Handbook for the Economic Analysis of Health Sector Projects (2000)
Handbook for the Economic Analysis of Water Supply Projects (1999)
Handbook for Users of Consulting Services: Procedures and Practices –
Volume I, Fifth Edition (2002)
Loan Disbursement Handbook (2001)
Other Recommended Reading
Anticorruption Policy: Description and Answers to Frequently Asked
Questions (2000)
Economic Analysis of Subregional Projects (1999)
Economic Evaluation of Environmental Impacts: A Workbook (1996)
Framework for the Economic and Financial Appraisal of Urban
Development Sector Projects (1994)
Appendix 12 109 109 109 109 109
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