PSAAC - What It Is & What It Does

“PSAAC” stands for the Public Sector Accounting and Auditing Committee of the Canadian Institute of Chartered Accountants (CICA). PSAAC was established in 1981, to improve and harmonize public sector accounting and auditing practices. Its creation followed extensive consultation with federal and provincial governments and legislative auditors, and an in-depth CICA study of their financial reporting.

 

That study, Financial Reporting by Governments (1980), found wide disparities in government reporting practices. Government financial statements often reported fragmented and incomplete information, leaving out major operating units and liabilities. So, the financial statement information was inadequate for both decision-making and accountability. In addition, similar transactions were being reported very differently from government to government. As a result, useful comparisons of one government’s financial statements with those of another were almost impossible. The study called for accounting standards tailored to reflect the nature of government objectives and operations, and to meet information needs of the users of government financial statements and reports.

 

In 1991, a tenth anniversary pamphlet was issued on PSAAC - What It Is & What It Does. The pamphlet explains: what it is; why it was formed; how it works; what it’s done; where it’s going; and progress to date. According to the pamphlet: “PSAAC’s role is: To serve the public interest by strengthening accountability in the public sector through developing, recommending and gaining acceptance of accounting and auditing standards of good practice. The Committee issues its recommendations in Public Sector Accounting and Auditing Statements and Guidelines. It also initiates research studies to serve as input to the standard-setting process and to stimulate thought and debate on contentious or complex issues.” An Appendix to the pamphlet lists seven accounting statements, four auditing statements, two auditing guidelines and four research studies issued up to that point in time.

Information to be included in the Annual Report to Shareholders – 1991 Research Study updated 2008

In 1991, the Canadian Institute of Chartered Accountants (CICA) published a landmark research study called Information to be included in the Annual Report to Shareholders. This 317-page study was drafted by J. Paul-Emile Roy, CA under the direction of a seven-member Study Group chaired by Gerald Trites, FCA.

The Foreword to this study states: “The annual report has long been used by an enterprise as a primary vehicle of communication, not only with its investors or members, but also with other audiences who, for a variety of reasons, have a legitimate interest in the affairs and operations of the enterprise. Generally, the annual report contains the financial statements and associated notes. It also contains additional information which both elaborates upon the financial condition and operating results of the enterprise and provides non-financial information of interest and value to its audiences.”

It further notes: “To date, accounting and auditing standards have concentrated on the financial statements. They have paid relatively little attention to information outside the financial statements, which, to a large extent, has been regarded as the domain of the enterprise’s management. It is considered, in many circles, that a greater amount of discussion and analysis of the financial information needs to be provided than that currently contained in notes to the financial statements. This has resulted in a greater scrutiny being given to such matters, particularly by regulators such as the securities commissions.”

In addition, it states that “some concern has been expressed about the general quality of annual reports, which varies significantly among enterprises. It has been noted that the annual report has the potential of being "a shining affirmation of the company’s scope, strength, philosophy and aspirations"; on the other hand, "it can be dismal, ineffectual and boring - a wonderful opportunity lost".”

To address these matters, the CICA Accounting Standards Committee was prompted, in May 1989, to commission a research study to discuss the objectives of the annual report to shareholders and to recommend what information should be provided, beyond that which must be presented in the financial statements, to assist in achieving those objectives. Besides addressing information content, the study considers the form and presentation of information, reviews the concept of effective communication and considers annual reporting formats, summary reporting, graphics and other presentation matters.

It is noteworthy that this research study was updated and re-published by the CICA in 2008, under the title Corporate Reporting to Stakeholders (also refer to the August 25, 2008 blog posting). The updated study was prepared by J. Paul-Emile Roy, CA (author of the 1991 study) under the direction of a seven-member Study Group chaired by Gerald Trites, FCA (chair of the 1991 Study Group). It aims to promote effective communication between a company and its stakeholders by providing useful guidance to preparers of corporate reports. It is based on an in-depth review of the annual reports and websites of 125 companies that participated in the ongoing CICA Corporate Reporting Awards program. In addition, this study examines practices and significant trends in corporate reporting by analyzing:

·       more than 50 different types of information disclosed in 2004-2005 annual reports;

·       major changes in the 2004, 2005 and 2006 annual reports of award-winning companies;

·       information content, presentation and navigation on company websites in 2007.

Award for Excellence in Annual Reporting by Crown Corporations

Annual reporting is an important vehicle for accountability. In 1994, the Office of the Auditor General of Canada (OAG) launched the Award for Excellence in Annual Reporting by Crown Corporations. The program aimed to promote enhanced accountability through improved disclosure of information on corporate performance by recognizing Crown corporations that do this well. Awards were presented in two categories based on corporation size.

According to the Report of the Auditor General of Canada, 1993 (Chapter 4, paragraph 4.72): “The annual report gives management and boards of directors an opportunity to report to shareholders on how they have fulfilled their responsibilities. The private sector has shown considerable interest in the role of the annual report, and its importance is widely acknowledged. Both the Canadian Institute of Chartered Accountants (refer to the 1991 research study, Information to be included in the Annual Report to Shareholders) and the Society of Management Accountants of Canada have issued research reports detailing information that should be included in the annual report, and these are excellent references.”

It is clear that information on financial results alone does not adequately address the full range of stakeholders’ interests and information requirements. Because they deliver a mix of public policy and commercial objectives, improved performance reporting is especially important in the case of Crown corporations. The practice of reporting on performance in annual reports, though much improved, still has a way to go. The first important steps are: reporting against all objectives; stating objectives in more measurable terms; and reporting performance information that focuses principally on outputs and outcomes. Also, more attention needs to be given to providing more comparable and consistent information on parliamentary funding.

After operating this program for 12 years, the OAG transferred the administration of the Award for Excellence in Annual Reporting by Crown Corporations to the Canadian Institute of Chartered Accountants (CICA) in 2006. The CICA has incorporated the OAG program into its own annual Corporate Reporting Awards program (see the previous postings on November 17, 2010 and June 9, 2011).

A History of the AICPA and Volunteer Committees

The American Institute of Certified Public Accountants (AICPA) and its predecessors have a history dating back to 1887, when the American Association of Public Accountants (AAPA) was formed.  In 1916, the American Association was succeeded by the Institute of Public Accountants, at which time there was a membership of 1,150. The name was changed to the American Institute of Accountants in 1917 and remained so until 1957, when it changed to its current name of the American Institute of Certified Public Accountants. The American Society of Certified Public Accountants was formed in 1921 and acted as a federation of state societies. The Society was merged into the Institute in 1936 and, at that time, the Institute agreed to restrict its future members to CPAs.

The use of committees began even before the AAPA was formed in 1887.  At the first meeting of what would become the AAPA on December 22, 1886, those present authorized the appointment of a committee to draft rules and regulations.  Beyond this first preliminary committee, the first Bylaws of the AAPA in 1897 established three committees: Finance and Audit Committee, Committee on Elections, Qualifications and Examinations, and the Committee on Bylaws.  The number of committees grew continually over the years.

(For more information, see the AICPA website section on History of AICPA Volunteering.)

Meeting the Challenge of Change – Report of the CICA Long-Range Strategic Planning Committee (1986)

A 1986 report by the Canadian Institute of Chartered Accountants (CICA) states (on page 5): “The Canadian CA profession - like the accounting profession worldwide - is facing fundamental and pervasive change. Led primarily by the rapidly evolving information technology that is revolutionizing business operations, but due also to altered perceptions about the value of the traditional attest audit, the role of chartered accountants in society - whatever their area of practice - is changing dramatically. CAs in public practice face new and increasing demands from their clients for services extending beyond those related to historical financial information and income tax advice and toward future-oriented information necessary for economic decision making. In the process, the CAs role is expanding from that of reporter and analyst of past events to communicator and adviser about business information affecting the future.”

The report further states: “CAs outside public practice - those in industry and government, for example - are no less subject to these demands, albeit from their employers. And CAs in education must face the challenging task of educating the profession's future members to meet this challenge. In an effort to manage change and provide strategic directions for our profession, the CICA Board of Governors formed the Long-Range Strategic Planning Committee in February 1984. Over the past two years, our assessment of these changes, via member and user surveys, focus groups, committee research, literature review and presentations at CICA and provincial institute conferences, has led us to develop an exciting vision of what the CA profession might become over the next 10 to 20 years. It is a vision of a more broadly-based profession whose highly-skilled members are the recognized experts in meeting the needs of an information society.”

The Committee’s conclusions are summarized in a mission statement and 14 specific strategic proposals. These proposals and the overall strategic direction are interrelated and should be looked on as a total concept. To learn more, read Meeting the Challenge of Change – Report of the CICA Long-Range Strategic Planning Committee (1986). Because of its multi-coloured front cover, it is commonly referred to as the “Rainbow Report.”

Report of the Commission to Study the Public’s Expectations of Audits - June 1988

The Report of the Commission to Study the Public’s Expectations of Audits (Macdonald Commission Report) was released by the Canadian Institute of Chartered Accountants (CICA) in June 1988. The Commission had a threefold mandate: (1) to study the public’s expectations of audits; (2) to determine whether there is a gap between what the public expects or needs from auditors and what auditors can reasonably expect to accomplish; (3) to the extent there is an identifiable gap, to make suggestions as to how the gap might be narrowed.

The  Macdonald Commission Report made numerous recommendations regarding: strengthening the audit environment; accounting standards; extensions of financial disclosure; valuations and estimates; disclosure outside financial statements; exercise of auditor’s judgment; additional auditor responsibilities; clarification of financial reporting responsibilities; professional self-regulation; public input to auditing standards; employee fraud; management fraud; illegal acts; changes of auditors; communication with regulators; accounting standards for financial institutions; auditor reporting on internal control; and, auditor’s knowledge of the business.

A listing of the report’s 50 recommendations is provided in Appendix A (pages 139-146) of the report.

CCAF-FCVI – 25th Anniversary Journal 2005

The CCAF was originally called the Canadian Comprehensive Auditing Foundation but, in recent years, the name was contracted to CCAF-FCVI. The CCAF is a national non-profit foundation, established in 1980. Its primary activities are research and education. Established as a public-private sector partnership, the CCAF is funded by the federal and provincial governments and the private sector. Its vision is the achievement of excellence in public sector governance, management and accountability.


The CCAF focus is on public sector organizations that operate in an environment of complex accountability relationships. These include governments, institutions and organizations that create, deliver or regulate activities that support the health, educational, social and economic well-being of Canadians.

To mark its 25^th anniversary in 2005, the CCAF published CCAF-FCVI – 25th Anniversary Journal. The Journal includes articles from various senior officials focusing on their own experiences and activities in the areas of public sector accountability, audit, management and governance. It also includes a brief history of the CCAF's research program over the last 25 years (pages 95-106).