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Public Finance Management Act, 1999 (Act No. 1 of 1999)

Notices

Standards of Generally Accepted Municipal Accounting Practice (GAMAP) in terms of Section 91

Preface to the Standards of Generally Accepted Municipal Accounting Practice

 

This preface is issued to explain the transformation from the existing Statements of Generally Accepted Municipal Accounting Practice to the revised Standards of Generally Accepted Municipal Accounting Practice being issued at present. It also explains the  application, scope and authority of the Standards of Generally Accepted Municipal Accounting Practice in relation to Standards of Generally Recognised Accounting Practice. For more guidance, this preface should be read in conjunction with the preface to the Standards of Generally Recognised Accounting Practice.

 

Background to the existing Statements of Generally Accepted Municipal Accounting Practice (old GAMAP)

 

1. The National Treasury commissioned a study to develop statements of generally recognised accounting practices for local government in July 1997. The statements that were developed (old GAMAP) were based on the Statements of Generally Accepted Accounting Practice (SA GAAP) as at 30 November 1997 with the exception of GAMAP 114. SA GAAP was in the process of being harmonised with International Accounting Standards at the time that old GAMAP was being developed. A number of the SA GAAP Statements on which old GAMAP is based have subsequently been revised or withdrawn.

 

2. GAMAP 114, titled Accounting for Statutory Funds, Reserves and Capital Receipts, is the only Statement of old GAMAP that is not based on SA GAAP. It was developed to give recognition to the funding of property, plant and equipment (the old GAMAP accounting model) and the National Treasury’s policy on reserving and statutory funds. There is however, no legal framework in place to support the accounting treatment adopted in GAMAP 114.

 

Process for issuing the revised Standards of Generally Accepted Municipal Accounting Practice (new GAMAP)

 

3. The Accounting Standards Board has reviewed old GAMAP with a view to amend as appropriate or withdrawing individual Statements if considered to be in conflict with the International Public Sector Accounting Standards (IPSASs) on which the Standards that the Board is developing are based.

 

4. The broad findings of the review were as follows:
(a) Most of the SA GAAP Statements that were used as a basis to develop equivalent Statements of old GAMAP have changed.
(b) As indicated above, there is no comparative SA GAAP for GAMAP 114.
(c) A number of IPSASs have now been issued that cover topics addressed by old GAMAP Statements.
(d) There are a number of new accounting statements in SA GAAP for which there are no equivalent old GAMAP Statements.

 

5. The revised standards issued as a result of this review are known as Standards Of Generally Accepted Municipal Accounting Practice (new GAMAP). A table setting Out the old Statements and new Standards of GAMAP is attached as Appendix I.

 

Need for new GAMAP

 

6. The need to issue and implement new GAMAP is driven, inter alia, by the following main factors:

 

Old GAMAP is no longer up to date.
Significant capacity building has taken place since the Minister of Finance approved old GAMAP in October 1998, and an anti-GAMAP sentiment has moved to an eagerness to implement it. Momentum to improve financial reporting should not be lost.
The enactment of the Municipal Finance Management Act, which requires the different categories of municipalities to base their financial statements on Standards of Generally Recognised Accounting Practice.

 

7. The Board has therefore decided to reduce the exposure period for new GAMAP to two months in recognition of the process adopted in the development of old GAMAP and the extent of consultation and training that has taken place to date.

 

Replacement of new GAMAP by GRAP

 

8. When issued, Standards of Generally Recognised Accounting Practice will supersede the equivalent new GAMAP Standard.

 

9. More information on the Board’s strategy and process for the development of Standards of Generally Recognised Accounting Practice is set out in the Preface to Standards of Generally Recognised Accounting Practice.

 

Numbering of new GAMAP

 

10. The numbering of new GAMAP is based on the numbering of the IPSAS Standards. Thus, a new GAMAP Standard has the same number as the equivalent IPSAS.

 

Application of new GAMAP

 

11. New GAMAP is applicable to municipalities. Boards, commissions, companies, corporations, funds or other entities under the ownership control of a municipality are encouraged to comply with new GAMAP in order to facilitate the preparation of consolidated financial statements by municipalities.

 

12. The implementation of new GAMAP will recognise that capacities will differ at the different categories of municipalities. New GAMAP will apply from a date determined in a regulation by the Minister of Finance after consultation with the Board.

 

Exemptions

 

13. The Minister may exempt a municipality from compliance with one or Standards of GAMAP or a specific requirement thereof. The National Treasury will administer the process of applying for exemptions.

 

Guidance on issues not covered by new GAMAP

 

14. The Board recognises that the scope of new GAMAP is incomplete and that users will seek guidance in respect of those issues not considered. The attention of preparers is drawn to the following paragraph in the exposure draft of the Standard of Generally Recognised Accounting Practice on Accounting Policies, Changes in Accounting Estimates and Errors:

 

"In the absence of a particular Standard of Generally Recognised Accounting Practice that specifically applies to a transaction, other event or condition, management shall use its judgement in developing and applying an accounting policy that results in information that is:

(a) relevant to the economic decision-making needs of users; and
(b) reliable in that the financial statements:
(i) represent faithfully the financial position, financial performance and cash flows of the entity;
(ii) reflect the economic substance of transactions, other events and conditions, and not merely the legal form;
(iii) are neutral, i.e. free from bias;
(iv) are prudent; and
(v) are complete in all material respects.

 

In making the judgement described in the paragraph above, management shall refer to and consider the applicability of the following sources in descending order:

(a) the requirements and guidance in the Standards of Generally Recognised Accounting Practice, dealing with similar and related issues; and
(b) the definitions, recognition criteria and measurement concepts for assets, liabilities, revenue and expenses set out in the Framework for the Preparation and Presentation of Financial Statements.

 

In making the judgement prescribed in the paragraph above, management may also consider the most recent pronouncements of other standard-setting bodies and accepted public or private sector practices to the extent, but only to the extent, that these are consistent with the requirements in the paragraph above. For example, pronouncements of, in descending order, the International Federation of Accountants - Public Sector Committee, the international Accounting Standards Board (including the Framework for the Preparation and Presentation of Financial Statements), the South African Accounting Practices Board and the South African Institute of Chartered Accountants’ Accounting Practices Committee."

 

15. A table of such available sources is set out in Appendix II. The Board has not yet considered the guidance contained in these Standards, nor has it determined the appropriateness of applying these Standards in a municipality. Accordingly, there is no requirement to comply with the guidance in this list to claim compliance with new GAMAP.

 

16. Fair presentation of financial statements depends, inter alia, on the appropriateness and application of the accounting policies adopted in their preparation. Whilst applying GAMAP will assist in achieving fair presentation, the adoption of these  Standards will not by itself achieve that objective, as the scope of new GAMA? is not comprehensive.

 

17. Additional disclosures in the financial statements that are required by legislation are not repeated in new GAMAP.

 

Effective date

 

18. New GAMAP is effective for annual financial statements covering periods beginning on or after a date to be determined by the Minister of published in accordance with section 91(1)(b) of the Act, Act No. 1 of 1999 (PFMA), as amended.

 

 

Appendix I : New GAMAP

 

The table below lists the new GAMAP Standards that replaced the old GAMAP Statements. The table sets out the statements that comprised old GAMAP and the status of the topics included under new GAMAP and, where relevant, GRAP where a Standard in the latter series is already being developed.

 

Old GAMAP reference

Title

New reference

GAMAP 000

Framework for the Preparation and Presentation of Financial Statements

GRAP 01

GAMAP 100

Presentation of Financial Statements

GRAP 1

GAMAP 101

Net Surplus or Deficit for the Period, Fundamental Errors and Changes in Accounting Policies (now Accounting pOLICIES, CHANGES IN aCCOUNT

GRAP 3

GAMAP 102

Accounting for Leases in the Financial Statements of

Lessees

Withdrawn

GAMAP 103

Provisions, Contingent Liabilities and Contingent Assets and Events Occurring After the Balance Sheet Date (now Provisions, Contingent Liabilities and Contingent Assets)

GAMAP 19

Not a separate statement

Events After the Balance Sheet Date

Withdrawn

GAMAP 104

Inventories

GAMAP 12

GAMAP 105

Accounting for Investments in Associates and Subsidiaries (now Accounting for Investments in Associates)

GAMAP 7

Not a separate statement

Consolidated Financial Statements and Accounting for Controlled Entities

GAMAP 6

GAMAP 106

Revenue

GAMAP 9

GAMAP 107

The Effects of Changes in Foreign Exchange Rates

GAMAP 4

GAMAP 108

Lessor Accounting

Withdrawn

GAMAP 109

Research and Development Costs

Withdrawn

GAMAP 110

Retirement Benefit Costs

Withdrawn

GAMAP 111

Cash Flow Statements

GRAP 2

GAMAP 112

Financial Reporting of Interests in Joint Ventures

GAMAP 8

SAMAP 113

Property, Plant and Equipment

GAMAP 17

SAMAP 114

Accounting for Statutory Funds, Reserves and Capital Receipts

Withdrawn

 

 

Appendix II2

 

Guidance on issues not covered by GAMAP

 

The table below provides a list of available sources where the items are not covered by the scope of new GAMAP.

 

Reference

Title

IPSAS 5

Borrowing Costs

IPSAS 11

Construction Contracts

IPSAS 13

Leases

IPSAS 14

Events After the Reporting Date

IPSAS 15

Financial Instruments: Disclosure and Presentation

IPSAS 16

Investment Property

IPSAS 18

Segment Reporting

IPSAS 20

Related Parties

IAS 12

Income Taxes

IAS 19

Employee Benefits

IAS 22

Business Combinations

IAS 35

Discontinuing Operations

IAS 36

Impairment of Assets

IAS 38

Intangible Assets

IAS 39

Financial Instruments: Recognition and Measurement

IAS 41

Agriculture

 

                                                                                                     

1 In the process of finalisation
2 There is no requirement to comply with the guidance set out in this appendix to claim compliance with GAMAP.