Student Union - Decentralization - California State University
Student Union Decentralization Presentation by: Financing & Treasury September 21 and 30, 2004 Introductions Financing and Treasury Colleen Nickles, Senior Director Rosa Renaud, Senior Financial Manager Angelique Sutanto, Financial Analyst Financial Services Accounting George Ashkar, Senior Director/Controller Lam Le, Manager Lawrence Gutierrez, Lead Accountant Humboldt Student Union Heidi Chien, Associate Director San Bernardino Student Affairs Helga Kray, Assistant Vice President
Agenda Systemwide Revenue Bond Program Decentralization of the Student Union Program Changes Affecting: Flexibility with New Bond Indenture Executive Order 876 Student Unions Campus CFOs Financing and Treasury Accounting Process
Traditional Student Union Budget Forms New Debt Service Coverage Ratio Form Systemwide Revenue Bond Program (SRB) A pooled security debt program that provides greater security to bondholders and thus benefits the CSU by: Lower interest rate cost More efficient use of proceeds: No Debt Service Reserve Lower Cost of Issuance Commercial paper program contributes to additional savings during a projects construction phase. Systemwide Revenue
Bond Program (SRB) Bonds issued under the SRB program are secured by a gross revenue pledge of all established fees. Pooled security with: Housing Student Union Parking Health Center Continuing Education Systemwide Revenue Bond Program (SRB) Also incorporates other Auxiliary Organizations into the debt program as the CSU issues new
debt. Credit Rating Agencies have always counted Auxiliary Organizations as part of CSU debt. SRB and Student Unions Under the SRB program, we have been able to issue bonds for student unions for: New capital projects Refunding existing senior bonds SRB and Student Unions The SRB bond indenture is more flexible in certain areas than prior bonds, for example:
No more Return of Surplus Test requirement which under Section 5.02 of the old bond resolutions prevented distribution of funds to operate the union facility until after setting reserves to cover the coming years bond interest and principal payments. The excess reserves were then identified as Surplus. Improves cash flow with a pay-as-you-go concept similar to other programs such as for Housing and Parking. No bond reserve requirement. SRB and Student Unions Decentralization for the student unions occurred with Richard West memo dated April 30, 2004. The decentralization became effective 2004/05. (See handout.) We saw this as an opportunity to decentralize student unions that are fully in SRB, that is only those that have all the related bond debt in SRB or have no bonds outstanding. Those unions with only senior bonds or with a
combination of senior bonds and SRB bonds are not eligible to be decentralized. Student Unions Eligible for Decentralization Bakersfield Refunded Bonds Dominguez Hills Refunded Bonds Fresno Refunded Bonds & Issued New Bonds Hayward Refunded New Bonds & Issued New Bonds Humboldt Issued New Bonds Long Beach Refunded Bonds Los Angeles Refunded Bonds Sacramento Refunded Bonds San Bernardino Refunded Bonds & Issued New Bonds
San Marcos Issued New Bonds Sonoma Issued New Bonds Stanislaus Refunded Bonds Note: Channel Islands, Monterey Bay, and Maritime Academy No Existing Bonds Are Outstanding. In the future new bonds would be in SRB. Executive Order 876 Financing & Debt Management Policy A CABO advisory committee was created to develop a financing and debt management policy. The focus was to: Establish standards to maintain advantages of SRB including low financing costs. Address debt capacity issues (i.e. a limit to how much the CSU can issued debt). Establish a better capital planning process. Retain flexibility to do special priority projects.
Give campuses guidelines. Executive Order 876 Financing & Debt Management Policy All student union programs regardless of whether they have been decentralized fall under this executive order. The executive order is a good baseline for the decentralized student unions particularly because it parallels the new bond indenture requirements. Executive Order 876 Critical Requirements Two key benchmarks are defined in the policy to monitor campus and program financial position:
Net Revenue Debt Service Coverage Ratio (DSCR). See Section 4 and Attachment A. Debt Capacity. See Section 5. Reserve Requirements. See Section 7. Executive Order 876 Critical Requirement - DSCR The Net Revenue Debt Service Coverage Ratio (DSCR) is computed using total gross revenue less operating expenses divided by debt service. For the unions this means: Fee Revenue + Interest Income Return of Surplus
= Net Income Net Income then is Divided by Annual Debt Service Amount. It is important that a campus appropriately records revenues and expenditures to avoid errors in calculating the DSCR. Executive Order 876 Critical Requirement - DSCR Policy Minimum DSCR Benchmarks are: Systemwide: 1.45 Campus: 1.35 Program: 1.10 * Project: 1.0 (if part of an existing program) 1.10 (if stand alone project). * Note: if one campus program is at 1.10 then other campus programs must be higher than 1.35 to meet the campus goal of 1.35.
Executive Order 876 Critical Requirement Debt Capacity Debt Capacity is a measure that focuses on the overall campus. The campus debt payments compared to its net unrestricted expenditures need to be within the maximum CSU benchmark of 4.0%. Financing and Treasury notifies the campuses annually of their positions. Further, the Board of Trustees is notified with every project that is being considered for financing approval. Executive Order 876 Critical Requirement Reserves Campuses are responsible for developing reserve policies that, at a minimum, address:
Major Maintenance and Repair/Capital Renovation and Upgrade Working Capital Capital Development for New Projects Catastrophic Events. Executive Order 876 Critical Requirement Reserves Repair and Replacement Funds Decentralized Student Unions are no longer required to set aside a specific amount however, student union budgets should identify transfers to the fund that will meet their future needs. Working Capital or Local Reserves the Campus CFO is required to develop guidelines for the union. Decentralization of the Student Union Program Effects on the Unions
Unions are still under the same operating agreements with the campuses. The primary focal point for approvals and funding for operations and maintenance/repair will be directly with the campus CFO. The budget process will now be shaped from the direction received from the CFO. Receipt of funds for operations and maintenance/repair expenses will be quicker given the more direct accounting process established with the campus. Construction project review/approval process has not changed. It is a coordinated effort between the union, VP Admin/Finance and staff, CPDC, and FT. Decentralization of the Student Union Program Effects on the Unions
Unions/campuses will receive an annual PFA budget memo from FT that identifies the amount needed to be transferred on a quarterly basis to cover: Payment of principal and interest on outstanding bonds; Debt reserves of 15% of debt service when applicable; Payment of centrally paid administrative expenses such as State and Chancellors Office overhead expenses; This is a big accounting and budget change from prior years. Decentralization of the Student Union Program Effects to the Campus CFOs
Richard West requests that the campus CFO be responsible for the implementation of the decentralization and oversight of the student union program. The campus CFO is delegated direct expenditure authority for the DRF Student Union Revenue Fund (#580) and the DRF Student Union Repair and Replacement Fund (#575). The CFO must assure that sufficient funds are available in Fund 580 to cover the quarterly transfers for payment of debt service and overhead obligations. Decentralization of the Student Union Program Effects to the Campus CFOs The CFO is responsible for the review and oversight of an annual budget package received from the union. The CFO has the authority to release funds to the union to cover upcoming operating
expenditures and a working capital reserve. The CFO will monitor the unions performance related to the Net Revenue Debt Service Coverage Ratio (DSCR) and Reserve requirements per E.O. 876. Decentralization of the Student Union Program Effects to the Campus CFOs The CFO must assure that the student union fee revenues are invested in the Surplus Money Investment Fund (SMIF) in the DRF Student Union Revenue Fund and other DRF accounts. The CFO must make prudent decisions as to how much is distributed to the unions auxiliary organization. Decentralization of the Student Union Program Effects to Financing and Treasury (FT)
FT continues to monitor student unions with senior bonds outstanding to assure compliance with specific bond requirements. FT will monitor decentralized student unions on a global basis given the new DSCR form. FT will provide campuses with an annual budget (PFA memo) in the Spring showing transfers that are required to pay for debt service and overhead expenses. FT continues to be responsible for the approval of capital/construction projects. FT continues to be a resource for all campuses and unions. Major Accounting Changes for Decentralized Student Unions Presentation by: Systemwide Financial Operations Funding student union operations
(Return of Surplus) Centralized Decentralized Campuses are required to submit operating budgets to the Financing and Treasury department for review and approval. Each campus CFO is responsible for review and oversight of an annual budget package submitted by the student union director. Financing and Treasury notifies Systemwide Financial Operations to issue a check for funding student union operations. The campus CFO will notify their accounting department to issue a check for funding their student union operations. Systemwide Financial Operations issues the check to the student union.
The campus accounting department issues the check to their student union. Fund 580 Dormitory Revenue Fund Centralized Decentralized Campuses remit all their student body center fee revenue to State Controllers Offi ce (SCO) revenue code 299100-other revenue. Campuses remit all their student body center fee revenue to State Controllers Offi ce (SCO) revenue code 299100-other revenue. The SCO will record the remittance as a debit to cash and a credit to the campus revenue account. The SCO will record the remittance as a debit to cash and a credit to
the campus revenue account. No cross posting occurs. The SCO will cross post the funds to the campus expenditure account, which gives campuses the authority to spend the funds. Systemwide Financial Operations (SFO) functions as a liaison between the State Controllers Offi ce and the campuses by managing the cash activity. Systemwide Financial Operations (SFO) has contacted the SCO to allow campuses to have the spending authority of the available funds prior to the inception of cross SMIF interest earnings Centralized Decentralized All funds are invested in a Surplus
Money Investment Fund (SMIF) at the State Treasurers Offi ce. All funds are invested in a Surplus Money Investment Fund (SMIF) at the State Treasurers Offi ce. SMIF earnings are distributed to campuses quarterly via a Transfer Request. SMIF earnings are distributed to campuses quarterly via a Transfer Request. SCO will transfer the SMIF earning to the campus SMIF account 250300; however, no cross posting will occur to give the campus the spending authority over the funds. SCO will transfer the SMIF earning to the campus SMIF account 250300 and automatically cross post the funds to the campus expenditure account to increase their spending authority.
Campuses are notified with a Systemwide Financial Operations Accounting Department Notice of Accounting Transaction (ADNOAT). Campuses are notified with a Systemwide Financial Operations Accounting Department Notice of Accounting Transaction (ADNOAT). Cost recovery for centrally paid expenses (e.g. debt service obligations and reserves, State Pro Rata, and Chancellors Office overhead) Centralized Decentralized Systemwide incurs expenses on behalf of each campus student union program. Systemwide incurs expenses on behalf of each campus student union program. Systemwide Financial Operations prepares a schedule of the expenses incurred.
Financing and Treasury will issue a memorandum annually for the centrally paid costs. The campus CFO is responsible for ensuring that the funds are available to cover the semi-annual PFA. The campus CFO is responsible for ensuring that the funds are available to cover the quarterly PFA. A semi-annual PFA is submitted to the SCO for recovering costs associated with the student union bond program. A quarterly PFA is submitted to the SCO for recovering costs associated with the student union bond program. An allocation order is needed. An allocation order is no longer needed. Transfers to funds 575 & 576 are included as part of the PFA. Transfers to funds 575 & 576 will be
handled individually as they arise. Transfers to Fund 575 Dormitory Building Maintenance and Equipment Reserve Fund (DBMER) also known as the Repair & Replacement Fund Centralized Decentralized Campuses request a transfer and allocation order from the Financing and Treasury department. Financing and Treasury will submit a formal request to Systemwide Financial Operations. SFO will perform the transfer and pass it to the campus through the PFA process described above under costs recovery for centrally paid expenses. Campuses will perform the transfer directly through their agency via a transfer request to the State Controllers Offi ce. An allocation order is needed because transfers are made through the Chancellors Offi
ce agency with no automatic cross posting to the campus agencys expenditure account. No allocation order is needed since transfers are now made at the campus agency level and automatic cross posting has been established by the SCO. Transfers to Fund 576 Dormitory Construction Fund (DCF) Centralized Decentralized Campuses request a transfer and allocation order from the Financing and Treasury department. Campuses request a transfer and allocation order from the Financing and Treasury department. Financing and Treasury will submit a formal request to Systemwide Financial Operations.
Financing and Treasury will submit a formal request to Systemwide Financial Operations. SFO will perform the transfer and pass it to the campus through the PFA process described above under costs recovery for centrally paid expenses. SFO will perform the transfer via a transfer request to the State Controllers Offi ce using the campus agency for the disbursing side (e.g. fund 580 DRF) and COs agency for fund 576 DCF. Allocation order is needed. Allocation is order needed. State Controllers Office Contacts Dana Parrish (916) 324-5921 Plan of Financial Adjustments, Allocation Orders
Karen Brenenstall (916) 323-2154 SMIF Interest Earnings Karri Boyer (916) 327-1719 Transfer Requests Financing and Treasury Student Union Budget Review Process Student Union Budget Forms Review of Student Union Budget Forms Handout. Campuses have flexibility to modify schedules to fit their needs. However, for unions considering capital construction projects, FT recommends
maintaining the same format for consistency. Additional schedules are always welcomed. Senior Bonds - Student Unions Flow of Funds Old Method Fee Revenue Interest & Redemption Overhead Gross Revenue Test of 1.25 Debt Service & Overhead Transfers to Repair & Repl. Surplus Construction Projects Union Oper. Exp./ Aux. Org.
Decentralized Student Unions - Flow of Funds Fee Revenue & Int. Income Union Oper. Expenses/ Aux. Org. PFA for Debt Service & Overhead Transfers to Repair & Repl. Construction Projects Net Oper. Incom e Net Incom e DSCR calculation based On E.O. 876
Student Union Budget Analysis Sheet Confirm that actuals trace to audited DRF financial statements; Confirm that actuals trace to auxiliary audited financial statements; Confirm that budget uses FT coded memo data; Verify budget accurately adds/subtracts data. Review budget to actuals trends; Verify operating agreements and leases are current; Review current and future fee levels; Review capital expenditures are within minor capital outlay guidelines; Review financial plan vs. approved Major capital outlay plan; Verify compliance with key bond covenants (i.e. Fee Revenue to Debt; Return of Surplus test; Requirements for Interest and Redemption Fund
balances); NOTE: Would be modified for Decentralized Student Unions. Confirm that working capital levels at local level are within Chancellors Office policy limits; Comments: Student Union Budget Analysis Key Reviews Schedule 1 Cash Flow and Operation Projections: This Schedule combines DRF Revenue Fund and Auxiliary Org./Local Funds We review trends of Revenue Fees; Fund Balances; Operating Expenses, Check reasonableness of assumptions for Operating Revenue; Operating Expenses and all Transfers. Verify that Capital/Construction project has an approved financial plan and is incorporated into
the financing and CPDC processes. SCHEDULE 1 STUDENT UNION CASH FLOW AND OPERATING PROJECTION CAMPUS Budget Year 2002/03 Audited 2003/04 Estimated 2004/05 Proposed 2005/06 Projected REVENUE FUND 1. PRIOR YEAR FUND BALANCE 2. REVENUE FROM FEES 3. INT. INC. FROM REVENUE FUND 4. DHUD SUBSIDY GRANT PAYM ENT 5. SUB-TOTAL (Lines 1 thru 4) LESS: 6. ADJUSTM ENTS & RETURN TO OP'S 7. NET TRANS. TO INT. & REDEM PT: 8. TRANSFER TO REP & REPL. 9. GENERAL OVERHEAD EXPENSE 10. TRANSFER TO CONSTRUCTION FUND PROJECT 11. SUB-TOTAL (Lines 6 thru 10)
12. ENDING FUND BALANCE (line 5 less line 11) __________ __________ __________ __________ __________ __________ __________ __________ CAMPUS OPERATIONS 13. RET. OF SURPLUS REVENUE FUNDS 14. INCOM E FROM OPERATIONS 15. INT. INCOM E /LOCAL FUNDS 16. SUB-TOTAL (Lines 13 thru 15) LES S : 17. OPERATING EXP & EQUIP. 18. SALARIES & WAGES 19. STAFF BENEFITS 20. TOTAL EXPENDITURES __________ __________
__________ __________ 21. NET FROM OPERATIONS (Line 16 less line 20) ADD OR DEDUCT 22. CAPITAL EQUIPM ENT & RELATED EXPENSES 23. DEPRECIATION 24. PRIOR YEAR ADJUSTM ENTS 25. BEGINNING FUND BALANCE 26. ENDING FUND BALANCE (Line 21 thru 25) 27. YEAR END WORKING CAPITAL FOOTNOTES : NOT APPLICABLE MUST BE FILLED OUT - INTEREST INCOME FROM REVENUE FUND, ASSUM PTIONS: - INCOM E FROM OPERATIONS, ASSUMPTIONS: - INTEREST INCOME FROM LOCAL INVESTMENTS, ASSUM PTIONS: NOT APPLICABLE NOT APPLICABLE
REVISED 4/04 FT 04-05 Student Union Budget Analysis Key Reviews Schedule 2 Working Capital and Contingency Reserve Computation: Verify accuracy of calculation and traceability to Schedule 1. Verify that if the auxiliary organization has excess Working Capital then a decrease in the coming years Net from Operations (line 21) is identified to bring it back in line. We also compare with the calculation of: Working Capital = Current Assets Current Liabilities
Note: for Decentralized Student Unions the Campus CFO may develop own policy. Schedule 2 FT 04-05 WORKING CAPITAL AND CONTINGENCY RESERVE COMPUTATION (1) A. 2003/04 Total Expenditures (Line 20) $ B. Reserve Factor. x .35 C. Computed Maximum WC Reserve. D. Add one half of 2004/05 proposed Capital Equipment & Related Expenditures (Line 22)..
E. SUBTOTAL (Computed Max. Need).. F. Estimated 2003/04 Working Capital (Line 27).. G. Enter difference between Line E and F. Notes: (1) This form should be completed and submitted with the budget package. (2) Line number referrences are to Schedule 1, Student Union Cash Flow and Operating Projection. (3) The Net (Line 21) for 2004/05 may not exceed the amount entered on Line G or H. Adjust 2004/05 Return of Surplus (Line 13) accordingly. (2)
(3) Student Union Budget Analysis Key Reviews Schedule 3 Fee Revenue Summary: Confirm that Actual Revenues tie with Audited Financial Statements. Identify a fee increase or decrease and research as needed. FT and Campus CFO have responsibility to assure that fees are at sufficiently high levels to meet bond indenture and E.O. 876 requirements. Confirm traceability to Schedule 1. SCHEDULE 3 FEE REVENUE SUMMARY
FIS CAL YEAR ANNUAL F.T. ENRL. F.T. FEE S UB-TOTAL P.T. FEE S UB-TOTAL S UM. ENRL. S UM. FEE S UB-TOTAL TOTAL REV. AUDIT REV. ACTUAL 2001/02 ACTUAL 2002/03
ESTIM ATED 2003/04 PROJECTED 2004/05 PROJECTED 2005/06 Revised 4/04 FT 04-05 Student Union Budget Analysis Key Reviews Schedule 4 Capital Equipment and Related Expenses: Review reasonableness of project
descriptions. Identify large projects that need to be funded by the Repair & Replacement Fund in order to assure that the State procurement process is followed. Confirm traceability to Schedule 1. SCHEDULE 4 CAPITAL EQUIPMENT AND RELATED EXPENSES ($1,000 or more only) DESCRIPTION OF PROJECT FISCAL YEAR $(AMOUNT) TOTAL (Sched. 1, Line 22) Revised 4/04 FT 04-05 Student Union Budget Analysis Key Reviews Schedule 5 Summary of Key Bond
Covenant Test: The old format is Not Applicable to the new SRB bond indenture. We modified the schedule in your handout with both the new and old formats. The new format duplicates some of Schedule 1 information yet is not complete. For Senior Bonds: we review per the requirements of Section 5.02 of the bond resolution. We review trends of Uncommitted Facility Bond Fund Reserve levels and confirm that levels are not negative. We adjust the budget accordingly to prevent covenant default. We confirm traceability to Schedule 1. SCHEDULE 5: SUMMARY OF KEY BOND COVENANT TEST (SECTION 5.2 SENIOR BOND RESOLUTION) As of 6/30/04 ESTIMATED REVENUE FUND BALANCE $
PLUS ESTIMATED I&R FUND BALANCE $ PLUS DHUD SUBSIDY $ LESS I&R REQUIREMENT FOR R. OF S. TEST LESS BOND RESERVE REQUIREMENT EQUALS SURPLUS REVENUE $
$ $ VERSUS 2004/05 RETURN OF SURPLUS FOR OPERATIONS $ Parallel to Systemwide Revenue Bond Idea: As of 6/30/04 ESTIMATED REVENUE FUND BALANCE $ PLUS 04/05 FEES $ LESS 04/05 I&R RESERVE
LESS 04/05 DEBT SERVICE $ $ EQUALS SURPLUS LESS 04/05 RETURN OF SURPLUS EQUALS UNCOMMITTED RESERVE $ $ $ EQUALS UNCOMMITTED/
FACILITY BOND FUND RESERVE $ New Debt Service Coverage Ratio Form FT will request from campuses to submit this summary form for each of the pledged programs. The decentralized student union program is the first segment that we are requesting feedback. Target for receipt of information: tentatively set for November 1, 2004. The CFO will be requested to respond. Program Budget Summary Form - Debt Service Coverage Ratio (DSCR) Analysis Campus: Program: Student Union Prior Year Actuals
2003/04 Current Year Budget 2004/05 Revenue from Fees Interest Income Total Revenues Operating Expense (1) Net Operating Income Debt Service DSCR Transfers & Other Expenses: Net Transfers to Interest & Redemption Transfer related to 15% I&R Reserve Transfers to Repair & Replacement General Overhead Expense Transfers to Construction Fund Other Total Transfers & Other Expenses Net Income Prepared by: Name: Title: Date:
CFO Approval: Name: Title: Date Financing and Treasury Receipt of Info.: Name: Title: Date Note: (1) For student unions, operating expenses are only those directly supported by student fees. Projected 2005/06 Conclusion Questions. Contacts: Financing and Treasury: (562) 951-4570.
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