22 September 2008
Sir David Tweedie
Chairman
International Accounting Standards Board
30 Cannon Street
London EC 4M 6XH
UNITED KINGDOM
Dear Sir David
Reducing Complexity in Reporting Financial Instruments
The Group of 100 (G100) is an organisation of chief financial officers from Australia’s largest business enterprises with a purpose of advancing Australia’s financial competitiveness. The G100 is pleased to provide comments on the Discussion Paper ‘Reducing Complexity in Reporting Financial Instruments’.
Overall, the G100 supports the IASB’s objective of reducing complexity in accounting for financial instruments and supports transparency of financial information. However, we are concerned that the IASB is dealing with aspects of accounting for financial instruments, including measurement, in advance of important work being undertaken on other IASB projects. For example, there is a risk that decisions on the appropriate measurement bases for financial assets and liabilities will pre-empt the outcomes of the current Conceptual Framework project. We do not believe that the measurement of financial instruments should be determined in isolation from such projects.
We note the increasing emphasis by standard-setters on the use of fair value. While fair value may conceptually be an appropriate measurement model, we have significant concerns about how changes in fair value should be presented in an entity’s income statement, and how they marry with the entity’s performance measurement objectives. Our position is that fair value will be an appropriate measurement model when, and only when, entities use fair value for risk management purposes and efficient and active markets exist for all financial instruments. Furthermore, users of financial instruments must find fair value as the most relevant measure in order for it to be meaningful.
The Discussion Paper acknowledges many concerns which need to be addressed prior to full implementation of a fair value measurement model, such as artificial stability and volatility, difficulty in estimating fair value and the presentation of gains and losses which may never be realised. These are significant issues and their resolution is a necessary condition to the adoption of fair value as a long-term solution.
Our responses to specific questions follow:
Question 1
Do current requirements for reporting financial instruments, derivative
instruments and similar items require significant change to meet the concerns of
preparers and their auditors and the needs of users of financial statements? If
not, how should the IASB respond to assertions that the current requirements are
too complex?
Financial instruments may have multiple, fundamentally different purposes. Some instruments are entered into for short term gain, others to receive contractual cash flows over their life and others for risk management purposes. The current mixed measurement model reflects these differences. While the current requirements are complex, any measurement model must take into account the varying nature and purpose of financial instruments. A full fair value approach to measuring financial instruments (with fair value movements taken through the profit and loss account) in our view would not appropriately reflect the performance impact relating to the intended use of all instruments. A fair value approach with allowable exceptions (opt outs) would in practice differ little from a mixed measurement model. We need to accept complexity as a reality.
It is our position that the existing measurement requirements, while in some aspects complex, are bedded down and implemented within the financial community. Further changes, motivated by a need for improvement, will necessitate modifications of systems, increase costs and create potential confusion for users and preparers of financial statements while providing little relief to the complexity issues for the reasons discussed above. The more fundamental concerns from our perspective relate to improving the existing standards to address practical issues and specific problem areas such as hedge accounting and the incurred loss model for impairment measurement.
The G100 believes that the requirements need to be aligned with the IASB’s principles-based approach to standard setting rather than the current rules-based requirements that govern accounting for financial instruments.
We believe that the current project should aim to be an interim measure focused on resolving specific problem areas (such as cross currency swaps) many of which are not addressed in the DP. These are identified in responses to questions below.
Question 2
(a) Should the IASB consider intermediate approaches to address
complexity arising from measurement and hedge accounting? Why or why not? If you
believe that the IASB should not make any intermediate changes, please answer
questions 5 and 6, and the questions set out in Section 3.
Yes. Intermediate steps are necessary but it is important to acknowledge that complexity is a reality when dealing with and reporting on financial instruments. Intermediate steps must address the fundamental and practical issues faced by entities when applying the current requirements. Issues relating to hedge accounting give rise to significant problems in implementation and monitoring and are inconsistent with good business practice. The current hedge accounting requirements also induce behaviour and outcomes which are driven by achieving a particular accounting result, rather than being aligned with prudent risk management policies, practices and the underlying economics of transactions and business operations.
(b) Do you agree with the criteria set out in paragraph 2.2? If not, what criteria would you use and why?
The criteria seem reasonable. However, we do not necessarily agree with the objective that full fair value should be the long-term objective at this stage. Instead of this criterion, we propose the following additional criteria:
Question 3
Approach 1 is to amend the existing measurement requirements. How would
you suggest existing measurement requirements should be amended? How are the
suggestions consistent with the criteria for any proposed intermediate changes
as set out in paragraph 2.2?
The proposed changes to eliminate certain categories of financial instruments such as held-to-maturity and/or eliminate tainting rules are sensible. However, such changes pose practical difficulties given that the existing requirements have been implemented and are operational. As such, they would represent a change which will likely be of marginal benefit compared to those which would result from improved hedging rules and modifications to the incurred loss impairment criteria.
Necessary improvements to the current hedge accounting requirements are outlined in detail under question 6 (d) below. In relation to impairment of financial assets, we believe that expected loss approaches, consistent with sound internal risk ratings and methodologies, provide a better reflection of the economics of the instruments and a better indication of management decisions and performance than the incurred loss methodology.
Expected loss is also consistent with how prudential supervisors regulate entities. While expected loss is a quasi-fair value approach and would typically be applied to an amortised cost financial asset, that “mixed-model” approach does not, in our view, undermine its utility to users of financial reports.
Question 4
Approach 2 is to replace the existing measurement requirements with a
fair value measurement principle with some optional exceptions.
(a) What restrictions would you suggest on the instruments eligible to be measured at something other than fair value? How are your suggestions consistent with the criteria set out in paragraph 2.2?
The implication that restrictions are necessary is inconsistent with the notion of developing principles-based standards.
Until such time as the issues outlined above relating to the use of fair value have been appropriately addressed, we would expect that many non-traded financial instruments would require an amortised cost opt-out. Furthermore, given the need for financial performance to reflect the nature and purpose of the underlying instrument, we would also expect fair value movements on equity instruments which are not held for trading and certain hedging arrangements to be recognised in comprehensive income.
Therefore, we do not support the “fair value with optional exceptions” approach on the basis that through the use of the opt out, practically the result will be not dissimilar to the current mixed measurement model. It therefore would not satisfy criteria 4 in paragraph 2.2 (it would not be significant enough to justify the cost of implementation).
(b) How should instruments that are not measured at fair value be measured?
These instruments should be measured at amortised cost or measured at fair value with the fair value movements taken to comprehensive income
(c) When should impairment losses be recognized and how should the amount of impairment losses be measured?
As mentioned above, the G100 considers that an expected loss approach to impairment better reflects the economics of most financial instruments. In addition, if applied consistently with sound internal risk ratings and methodologies, it provides a better indication of management decisions and performance than the current incurred loss methodology. Expected loss is also consistent with the approach taken by prudential supervisors when regulating entities.
(d) Where should unrealized gains and losses be recognized on instruments measured at fair value? Why? How are your suggestions consistent with the criteria set out in paragraph 2.2?
We believe that the treatment of gains and losses on financial instruments should follow the nature and intended purpose of the instrument. For instance, where the instruments relate to the underlying business operations such as sale transactions in a foreign currency, the changes in fair value should be recognised through profit and loss. However, where the instruments relate to financing/funding activities the changes in fair value should be recognised as part of comprehensive income.
(e) Should reclassification be permitted? What types of reclassifications should be permitted and how should they be accounted for? How are your suggestions consistent with the criteria set out in paragraph 2.2?
Yes, where the reclassification reflects a change in the underlying nature/purpose of the instrument.
Question 5
Approach 3 sets out possible simplification of hedge accounting.
(a) Should hedge accounting be eliminated? Why or why not?
No. The G100 considers that the IASB should focus on developing solutions and accounting requirements which faithfully represent the underlying economics and substance of business transactions. Hedging is a legitimate business practice which is undertaken as a risk management activity to reduce the uncertainty relating to the anticipated outcome of business transactions. The act of eliminating hedge accounting would result in accounting standards becoming divorced from business practice and further contribute towards disaffection with the standard-setting process.
(b) Should fair value hedge accounting be replaced? Approach 3 sets out three possible approaches to replacing fair value hedge accounting.
Which method(s) should the IASB consider, and why?
We do not support the full fair value (with all fair value movements through profit and loss) methodology of measuring financial instruments. For this reason we are not seeking a replacement of hedge accounting but rather, as set out below, we believe that the practical issues associated with the current model need to be addressed. We consider that gains and losses on fair value hedging instruments should be recognized as part of comprehensive income and not included in operating earnings.
Are there any other methods not discussed that should be considered by the IASB? If so, what are they and how are they consistent with the criteria set out in paragraph 2.2? If you suggest changing measurement requirements under approach 1 or approach 2, please ensure your comments are consistent with your suggested approach to changing measurement requirements.
Refer comments in the next section.
Question 6
Section 2 also discusses how the existing hedge accounting models might
be simplified. At present, there are several restrictions in the existing hedge
accounting models to maintain discipline over when a hedging relationship can
qualify for hedge accounting and how the application of the hedge accounting
models affects earnings. This section also explains why those restrictions are
required.
(a) What suggestions would you make to the IASB regarding how the existing hedge accounting models could be simplified?
The current requirements relating to hedge accounting is a rules-based accounting solution to the challenge of recognising the effects of an entity’s risk management practices in financial statements. The G100 considers that the IASB should ultimately adopt an approach which is consistent with the “management approach” to hedge accounting. This would mean that if hedging transactions are consistent with the company’s mandate and the risk management policies, hedge accounting should be permitted. As such, there should not be a need to specify detailed accounting rules relating to the designation of hedges and their effectiveness. As an anti-avoidance measure there may need to be requirements in place that ensure an entity has a documented policy and that this policy outlines formal requirements for designation and ongoing assessment of effectiveness. This constitutes good risk management practices and should underpin all hedging activities that an entity undertakes.
(b) Would your suggestions include restrictions that exist today? If not, why are those restrictions unnecessary?
No. The restrictions, specifically those relating to designation and effectiveness, are an impediment to entities undertaking hedging activities. Additional restrictions in an accounting standard would be unnecessary as companies would set their own designation and effectiveness requirements in their formal hedging policy.
(c) Existing hedge accounting requirements could be simplified if partial hedges were not permitted. Should partial hedges be permitted and, if so why? Please also explain why you believe the benefits of allowing partial hedges justify the complexity?
Yes. We do not believe that allowing partial hedges would result in significant complexity as the complexity arises from accounting rules rather than the features of partial hedging. The G100 considers that if an entity enters a partial hedge, (in line with its formal risk management strategy) that hedge should be treated as a hedge for accounting purposes. Entities have protocols and practices, including monitoring activities, as part of their management strategy and if a hedge transaction is within the risk management policies of the entity, the accounting should reflect the status of those activities. For example, an entity may enter a partial hedge because this is the most effective outcome it can achieve in the circumstances. In doing so, the entity has made the judgment that the transaction is consistent with maximising the outcome for shareholders. To prevent hedge accounting for such transactions may impede management undertaking value adding or value preserving transactions.
(d) What other comments or suggestions do you have with regard to how hedge accounting might be simplified while maintaining discipline over when a hedging relationship can qualify for hedge accounting and how the application of the hedge accounting models affects earnings?
As mentioned previously, there are many practical issues with the current requirements for hedge accounting. A list of these items has been provided below and further details in respect of three issues are included in Attachment A. (These issues were raised in the G100/FRC Workshop with IASB members on 11 August 2008). We reiterate that hedge accounting should ultimately enable the financial information of an entity to reflect its underlying business performance. All methods of hedging should be allowed as they reflect normal risk mitigation courses of action that an organisation may legitimately take. Accounting requirements should not drive decision making, accounting should reflect decision making, regardless of the complexity.
Since we believe that the IASB should focus on an interim measure that addresses problems arising from applying the existing Standard the issues which give rise to the most difficulty and complexity and which should be addressed include the following:
• permitting changes to the local currency interest rate profile of foreign
debt which is hedged with a cross currency swap without forcing a de-designation
of the initial cross currency interest rate swap; and
• the terms routinely denominated/commonly used must both be clearly defined as
they currently interpreted differently.
Question 7
Do you have any other intermediate approaches for the IASB to consider other
than those set out in Section 2? If so, what are they and why should the IASB
consider them?
Refer Question 6
Question 8
To reduce today’s measurement-related problems Section 3 suggests that the
long-term solution is to use a single method to measure all types of financial
instruments within the scope of a standard for financial instruments.
Do you believe that using a single method to measure all types of financial instruments within the scope of a standard for financial instruments is appropriate? Why or why not? If you do not believe that all types of financial instruments should be measured using only one method in the long term, is there another approach to address measurement-related problems in the long term? If so, what is it?
While the advantages of a single model to measure financial instruments are acknowledged and conceptually a single measurement model may be most appropriate in the long term, we cannot support a full fair value methodology unless issues relating to how changes are reflected in the performance statement, measurement issues and the concerns outlined throughout this paper are resolved. Furthermore, we strongly believe that the measurement of financial instruments in the long-term should not be part of the current project. Rather, long-term issues should first be addressed as part of the conceptual framework project dealing with measurement.
Question 9
Part A of Section 3 suggests that fair value seems to be the only measurement
attribute that is appropriate for all types of financial instruments within the
scope of a standard for financial instruments.
(a) Do you believe that fair value is the only measurement attribute that is appropriate for all types of financial instruments within the scope of a standard for financial instruments?
However, amortised cost (or fair value with movements recognised in comprehensive income) is more appropriate in certain circumstances, depending on the nature and purpose of the instrument. Refer to comments in questions 1 and 4 above.
(b) If not, what measurement attribute other than fair value is appropriate for all types of financial instruments within the scope of a standard for financial instruments? Why do you think that measurement attribute is appropriate for all types of financial instruments within the scope of a standard for financial instruments? Does that measurement attribute reduce today’s measurement-related complexity and provide users with information that is necessary to assess the cash flow prospects for all types of financial instruments?
Refer to comments in question 1 and 4 above. Since financial instruments have a vast number of uses and characteristics the specification of a single measurement is not appropriate.
Question 10
Part B of Section 3 sets out concerns about fair value measurements of
financial instruments. Are there are significant concerns about fair value
measurement of financial instruments other than those identified in Section 3?
If so, what are they and why are they matters for concern?
Yes. The concerns identified are significant. Other concerns relate to risk management and the perspective of the users of financial instruments. Entities must be using fair value to manage their business if it is to be considered the most relevant measurement model and this is currently not the case for a large portion of financial instruments. Furthermore, users must find fair value information meaningful and useful for their decision making in order to justify the preparation and presentation of fair value financial information. Finally, in order for fair value to be the most appropriate measurement model, efficient markets must exist for financial instruments to be measured effectively, reliably and consistently.
Question 11
Part C of Section 3 identifies four issues that the IASB needs to resolve
before proposing fair value measurement as a general requirement for all types
of financial instruments within the scope of a standard for financial
instruments.
(a) Are there other issues that you believe the IASB should address before proposing a general fair value measurement requirement for financial instruments? If so, what are they? How should the IASB address them?
Part C adequately identifies the issues that require resolution.
(b) Are there any issues identified in part C of Section 3 that do not have to be resolved before proposing a general fair value measurement requirement? If so, what are they and why do they not need to be resolved before proposing fair value as a general measurement requirement?
No, all issues require appropriate resolution.
Question 12
Do you have any other comments for the IASB on how it could improve and
simplify the accounting for financial instruments?
The G100 supports improvements to the current mixed measurement model in the areas of hedging and impairment. We believe that any other interim solution is likely to cause more change and instability in the financial reporting environment with little added value to preparers and users.
Yours sincerely
Tony Reeves
National President
Key issues in AASB 139 include:
| 1. |
Treatment of Options as a Hedge Instrument
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Options – Current Practice
Options – Proposed Solutions
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| 2. |
Financial Assets & Liabilities v Non-Financial Assets & Liabilities AASB 139.81 allows a financial asset or liability to be a hedged item with respect to the risks associated with only a portion of its cash flows or fair values provided that effectiveness can be measured, eg a financial liability may include both interest rate and FX risk elements that can each be hedged separately.
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Current Practice – Non-Financial Assets and Liabilities
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Proposed Solution: Non-Financial Assets & Liabilities
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| 3. |
“Opportunity Cost’ Accounting
Current Practice: ‘Opportunity Cost’ Accounting For example:
Proposed Solution: ‘Opportunity Cost’ Accounting
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G100
9/2008
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