Reserve Bank of Australia Annual Report – 2013 Financial Statements Note 1 – Accounting Policies

Notes to and Forming Part of the Financial Statements – 30 June 2013
Reserve Bank of Australia and Controlled Entities

The Reserve Bank of Australia (RBA) reports its consolidated financial statements in accordance with the Reserve Bank Act 1959 and the Commonwealth Authorities and Companies Act 1997 (CAC Act). These financial statements for the year ended 30 June 2013 have been prepared under Australian Accounting Standards (AAS), other accounting standards and accounting interpretations issued by the Australian Accounting Standards Board, in accordance with the Finance Minister's Orders for Financial Reporting (FMOs), which are issued pursuant to the CAC Act. These financial statements comply fully with International Financial Reporting Standards. The RBA has not sought any exemptions from the requirements of the FMOs in 2012/13. In preparing these financial statements, the RBA has not ‘early adopted’ new accounting standards or amendments to current standards that will apply from 1 July 2013.

These financial statements and attached notes are a general purpose financial report prepared in accordance with relevant AAS. Elections as to the accounting treatment under AAS made by the Bank are noted appropriately. All amounts are expressed in Australian dollars, the functional and presentational currency of the RBA, unless another currency is indicated. The RBA is classified as a for-profit public sector entity for purposes of financial disclosure. Fair values are used to measure the RBA's major assets, including domestic and foreign marketable securities, gold and foreign currency, and properties, plant and equipment. Revenue and expenses are brought to account on an accruals basis. All revenues, expenses and profits of the RBA are from ordinary activities.

These financial statements were approved and authorised for issue by a resolution of the Reserve Bank Board on 6 August 2013.

(a) Consolidation and joint venture

The financial statements show information for the economic entity only; this reflects the consolidated results for the parent entity, the Reserve Bank of Australia, and its wholly owned subsidiary, Note Printing Australia Limited (NPA). The results of the parent entity do not differ materially from the economic entity and have therefore not been separately disclosed.

Note Printing Australia Limited

NPA was incorporated as a wholly owned subsidiary of the RBA on 1 July 1998, with an initial capital of $20.0 million. The RBA provided NPA with additional capital of $15.0 million in July 2008 and a further $25.0 million of capital in July 2009. NPA's total assets, liabilities and equity as at 30 June 2013 were $135.7 million, $23.4 million and $112.3 million, respectively ($151.2 million, $37.8 million and $113.4 million as at 30 June 2012).

The assets, liabilities and results of NPA have been consolidated with the parent entity accounts in accordance with AASB 127 – Consolidated and Separate Financial Statements. All internal transactions and balances have been eliminated on consolidation.

Innovia Security Pty Ltd (formerly Securency International Pty Ltd)

The RBA formerly held 50 per cent of the shares in Securency International Pty Ltd (Securency). The other 50 per cent was owned by Innovia Films, a UK-based film manufacturer. In November 2010, the RBA announced it was pursuing with Innovia Films a joint sale of Securency. This process was terminated late in 2011, after Innovia advised the Bank that it no longer intended to sell its share. Subsequently, the Bank pursued the sale of its interest in Securency. On 28 February 2013, the RBA completed the sale of this interest to a related entity of Innovia Films (refer Note 7). The RBA's investment in Securency was classified in its financial statements as at 30 June 2012 as held for sale, in accordance with AASB 5 – Non-current Assets Held for Sale and Discontinued Operations. This was based on the expectation that the carrying amount of the asset would be recovered through a sale transaction within one year.

Legal issues

During 2011 charges were laid against several former employees of NPA and Securency, and against the companies, alleging that they had conspired to provide, or offer to provide, benefits to foreign public officials that were not legitimately due. Further charges were laid against several former NPA employees in March 2013. The RBA has accounted for these matters in accordance with the relevant accounting standards. Specific information relating to the charges and associated costs has not been disclosed in the notes to the accounts as legal matters remain before the courts.

(b) Financial instruments

A financial instrument is defined as any contract that gives rise to both a financial asset of one entity and a financial liability or equity instrument of another entity. The RBA's financial instruments are its Australian dollar securities, foreign government securities, repurchase agreements, deposits with the Bank for International Settlements (BIS) and other central banks, interest rate futures, foreign currency swap contracts, gold loans, cash and cash equivalents, notes on issue, deposit liabilities and a shareholding in the BIS. The RBA accounts for its financial instruments in accordance with AASB 139 – Financial Instruments: Recognition and Measurement and reports these instruments under AASB 7 – Financial Instruments: Disclosures.

The RBA brings its securities transactions and foreign exchange transactions to account on a trade date basis; that is, it recognises the effects of purchases and sales of these securities in the Statement of Financial Position and Statement of Comprehensive Income on the date these transactions are arranged (not when the transactions are settled). Bank deposits and repurchase agreements are brought to account on settlement date.

Financial assets

Australian dollar securities

The RBA holds Commonwealth Government Securities and securities issued by the central borrowing authorities of state and territory governments. These holdings include fixed coupon, inflation indexed and discount securities. It also holds under repurchase agreements: bank bills, certificates of deposit and debt securities of authorised deposit-taking institutions licensed in Australia; Australian dollar-denominated securities issued by foreign governments, foreign government agencies that have an explicit government guarantee (or equivalent support) and by certain highly rated supranational organisations; and eligible Australian dollar domestic residential and commercial mortgage-backed securities, asset-backed commercial paper and corporate securities.

Domestic securities, except those held under buy repurchase agreements, are classified under AASB 139 as ‘at fair value through profit or loss’, as they are held for the purpose of conducting monetary policy and may be sold or lent, typically for short terms, under repurchase agreements. In accordance with this standard, the securities are valued at market bid prices on balance date; realised and unrealised gains or losses are taken to profit. Only realised gains and losses are available for distribution in accordance with the Reserve Bank Act (Note 1(f)). Interest earned on the securities is accrued over the term of the security and included as revenue in the Statement of Comprehensive Income.

Interest on fixed coupon securities is received biannually at the coupon rate and the principal is received at maturity. Inflation indexed bonds are coupon securities with the nominal value of the security indexed in line with movements in the Consumer Price Index each quarter until maturity; interest is paid quarterly. Interest earned on discount securities is the difference between the purchase cost and the face value of the security; this is accrued over the term the securities are held. The face value is received at maturity.

Foreign exchange

Foreign exchange holdings are invested mainly in securities issued by the governments of the United States, Germany, France, the Netherlands, Canada and Japan, and deposits with the BIS and other central banks. The RBA engages in interest rate futures and foreign currency swaps.

Foreign exchange translation

Assets and liabilities denominated in foreign currency are converted to Australian dollar equivalents at the relevant market bid or offer exchange rate ruling on balance date in accordance with AASB 121 – The Effects of Changes in Foreign Exchange Rates. Realised and unrealised gains or losses on foreign currency are taken to profit, but only realised gains and losses are available for distribution in accordance with the Reserve Bank Act (Note 1(f)). Interest revenue and expenses and revaluation gains and losses on foreign currency assets and liabilities are converted to Australian dollars using the relevant market exchange rate on the date they are accrued or recognised, in accordance with AASB 121.

Foreign government securities

Foreign government securities comprise coupon and discount securities. Coupon securities have biannual or annual interest payments depending on the currency and type of security; the principal of these securities is received at maturity. Interest earned on discount securities is the difference between the purchase cost and the face value of the security; this is accrued over the term the securities are held. The face value is received at maturity. Foreign securities, except those held under buy repurchase agreements, are classified under AASB 139 as ‘at fair value through profit or loss’, as they are held for trading in the course of managing the portfolio of foreign exchange reserves. In accordance with this standard, the securities are valued at market bid prices on balance date; realised and unrealised gains or losses are taken to profit. Only realised gains and losses are available for distribution in accordance with the Reserve Bank Act (Note 1(f)). Interest earned on securities is accrued over the term of the security as revenue in the Statement of Comprehensive Income.

Foreign deposits

The RBA invests part of its foreign currency reserves in deposits with the BIS and other central banks. Deposits are classified as ‘loans and receivables’ under AASB 139 and recorded at their face value, which is equivalent to their amortised cost using the effective interest method. Interest is accrued over the term of deposits and is received periodically or at maturity. Interest accrued but not received is included in Accrued Interest (Note 15).

Buy repurchase agreements

In the course of its financial market operations, the RBA engages in repurchase agreements involving foreign and Australian dollar marketable securities. Securities purchased and contracted for sale under buy repurchase agreements are classified under AASB 139 as ‘loans and receivables’ and valued at amortised cost. If the Bank enters into a buy repurchase agreement, the Bank records a receivable equal to the consideration paid; this is the equivalent of fair value. The difference between the purchase and sale price is accrued over the term of the agreement and recognised as interest revenue (see below for the treatment of sell repurchase agreements).

Foreign currency swaps

The RBA uses foreign currency swaps with market counterparties to assist daily domestic liquidity management. A foreign currency swap is the simultaneous purchase and sale of one currency against another currency for specified maturities. The cash flows are the same as borrowing one currency for a certain period, and lending another currency for the same period. The pricing of the swap must therefore reflect the interest rates applicable to these money market transactions. Interest rates are implicit in the swap contract but interest itself is not paid or received.

Interest rate futures

The RBA uses interest rate futures contracts on overseas exchanges to manage interest rate risk on its portfolio of foreign securities. An interest rate futures contract is a contract to buy or sell a specific amount of securities for a specific price on a specific future date.

Interest rate futures positions are classified under AASB 139 as ‘at fair value through profit or loss’. In accordance with this standard, futures positions are marked to market on balance date at the relevant bid or offer price and valuation gains and losses taken to profit. Only realised gains and losses are available for distribution in accordance with the Reserve Bank Act (Note 1(f)).

Bank for International Settlements

Under AASB 139 the RBA's shareholding in the BIS is classified as ‘available for sale’ for accounting purposes. The shareholding is valued at fair value and revaluation gains and losses are transferred directly to the revaluation reserve for shares in international and other institutions (Note 5). The fair value is estimated on the basis of the BIS' net asset value, less a discount of 30 per cent. This discount is consistent with the decision of the Hague Arbitral Tribunal, and has been applied by the BIS to new central bank subscriptions of shares. When declared, dividends are recognised as revenue in the Statement of Comprehensive Income.

Financial liabilities

Deposit liabilities

Deposits include deposits at call and term deposits. Deposits are classified as financial liabilities under AASB 139. Deposit balances are shown at their amortised cost, which is equivalent to their face value. Interest is accrued over the term of deposits and is paid periodically or at maturity. Interest accrued but not paid is included in Other Liabilities (Note 10). Details of deposits are included in Note 9.

Australian notes on issue

Notes on issue are recorded at face value. Prior to 2005/06, the RBA periodically adjusted its liability for note series that had ceased to be issued – to reflect the likelihood that the remaining notes on issue from these series would not be presented for redemption – and the gains were included in accounting profits. If the written-down notes are subsequently presented, the RBA charges an expense against profits. In 2012/13, notes with a face value of $208,491, which had previously been written down, were presented to the RBA and expensed ($254,636 in 2011/12).

The RBA pays interest on working balances of currency notes held by banks under cash distribution arrangements. Details of the interest expense are included in Note 4.

Costs related to the production of currency notes are included in General Administrative Expenses in Note 2.

Sell repurchase agreements

Securities sold and contracted for purchase under sell repurchase agreements are classified under AASB 139 as ‘at fair value through profit or loss’, as they are held for trading, and reported on the Balance Sheet within the relevant investment portfolio. The counterpart obligation to repurchase the securities is reported in Other Liabilities (Note 10) at amortised cost; the difference between the sale and purchase price is accrued over the term of the agreement and recognised as interest expense.

(c) Gold

Gold holdings (including gold on loan to other institutions) are valued at the Australian dollar equivalent of the 3 pm fix in the London gold market on balance date. Revaluation gains and losses on gold are transferred to the gold revaluation reserve. The RBA lends gold to financial institutions participating in the gold market. As outlined in Note 1(b), gold loans are a financial instrument and the RBA accounts for them in accordance with AASB 139 and reports these loans under AASB 7.

(d) Property, plant and equipment

The RBA accounts for its property, plant and equipment at fair value in accordance with AASB 116 – Property, Plant and Equipment. Valuation gains (losses) are generally transferred to (from) the relevant revaluation reserve. Valuation losses which exceed the balance in the relevant asset revaluation reserve are expensed. Subsequent valuation gains are included in income, to the extent that the gains offset prior losses treated as an expense.

Property

Formal valuations of all the RBA's Australian properties are conducted annually; overseas properties are formally valued on a triennial basis. Australian properties are valued by an independent valuer; overseas properties are valued by local independent valuers. The most recent independent valuation of overseas properties was at 30 June 2013. In accordance with AASB 116, properties are recognised at fair value, which reflects observable prices and is based on the assumption that assets would be exchanged between knowledgeable, willing parties at arm's length. The value of the RBA's property at Craigieburn reflects fair value based on the renegotiation in 2012/13 of leases with NPA and Innovia Security, the tenants of this property. These leases are on commercial terms. The fair value of the Craigieburn property had previously been determined on the basis of vacant possession.

Reflecting its specialised nature, the RBA's Business Resumption Site in outer metropolitan Sydney continues to be valued on a depreciated replacement cost basis. The latest valuations have been incorporated in the accounts. Annual depreciation is based on fair values and assessments of the useful remaining life of the relevant asset, determined by the independent valuer.

Plant and equipment

Plant and equipment is valued by independent valuers on a triennial basis. The most recent independent valuation was at 30 June 2011. Between revaluations, plant and equipment is carried at the most recent valuation less any subsequent depreciation. Annual depreciation is based on fair values and the RBA's assessments of the useful remaining life of individual assets.

Computer software and other intangible assets are accounted for in accordance with AASB 138 – Intangible Assets. Intangibles are recognised at cost less accumulated amortisation, which is calculated on the basis of the estimated useful life of the relevant assets. Amortisation expense for intangibles is included in Other Expenses in Note 2.

The range of useful lives used for each class of newly purchased assets is:

Details of annual net expenditure, revaluation adjustments and depreciation of buildings, and plant and equipment are included in Note 8; details of computer software and other intangibles are included in Note 7.

(e) Capital and Reserves

The capital of the Reserve Bank is established by the Reserve Bank Act.

The Reserve Bank Reserve Fund (RBRF) is also established by the Reserve Bank Act and is regarded essentially as capital. The RBRF is a permanent reserve maintained by the RBA to provide for events which are contingent and not foreseeable, including to cover losses from exceptionally large falls in the market value of the RBA's holdings of domestic and foreign securities that cannot be absorbed by its other resources. The RBRF also provides for other risks to which the RBA is exposed, including fraud and operational risk. This reserve is funded by transfers from earnings available for distribution.

The Reserve Bank Board assesses the adequacy of the balance of the RBRF each year. In line with section 30 of the Reserve Bank Act, the Treasurer, after consultation with the Board, determines any amounts to be credited to the RBRF from earnings available for distribution (refer Note 1(f)). As accounting losses in 2009/10 and 2010/11 reduced this reserve, the Board will, over time, seek to restore its balance from future profits to a level that it regards as satisfactory.

The Bank also holds a number of other reserves which form part of its equity.

Unrealised gains and losses on foreign exchange, foreign securities and Australian dollar securities are recognised in profit from ordinary activities. Such gains or losses are not available for distribution to the Australian Government and are transferred to the Unrealised Profits Reserve where they remain available to absorb future unrealised losses or become available for distribution when gains are realised as assets are sold. When calculating distributable earnings, unrealised losses that exceed the balance held in the Unrealised Profits Reserve are initially charged against other components of income, consistent with the Reserve Bank Act.

Unrealised gains and losses on the asset which represents the staff superannuation funds are also recognised in the Statement of Comprehensive Income in accordance with the ‘corridor’ approach under AASB 119 – Employee Benefits. These amounts are reflected in the Unrealised Profits Reserve (refer Note 1(h)). A sum of $70.7 million, representing an unrealised loss on the RBA's superannuation asset, was transferred to this reserve in 2012/13.

Balances of asset revaluation reserves reflect differences between the fair value of relevant assets, mainly non-traded assets, and their cost. These assets are gold; property, plant and equipment; and shares in international and other institutions. These unrealised gains are transferred directly to the relevant reserves and are included in Other Comprehensive Income. The unrealised gains on these assets are not distributable until the gains are realised through the sale of the relevant asset.

(f) Profits

Profits of the RBA are dealt with in the following terms by section 30 of the Reserve Bank Act:

1. Subject to subsection (2), the net profits of the Bank in each year shall be dealt with as follows:

   27. such amount as the Treasurer, after consultation with the Reserve Bank Board, determines is to be set aside for contingencies; and
   1. such amount as the Treasurer, after consultation with the Reserve Bank Board, determines shall be placed to the credit of the Reserve Bank Reserve Fund; and
   2. the remainder shall be paid to the Commonwealth.
2. If the net profit of the Bank for a year is calculated on a basis that requires the inclusion of unrealised gains on assets during the year, the amount to which subsection (1) applies is to be worked out as follows:
   1. deduct from the net profit an amount equal to the total of all amounts of unrealised gains included in the net profit; and
   2. if an asset in respect of which unrealised gains were included in the net profit for a previous year or years is realised during the year – add to the amount remaining after applying paragraph (a) the total amount of those unrealised gains.

(g) Provisions

The RBA maintains provisions for accrued annual leave in accordance with AASB 119, based on expected salaries when leave is expected to be taken and including associated payroll tax. The RBA also maintains provisions for long service leave and post-employment benefits, in the form of health insurance and housing assistance, and associated fringe benefits tax; these provisions are made on a present value basis consistent with AASB 119. In addition, the RBA makes provision for future workers compensation claims in respect of incidents which have occurred before balance date.

(h) Superannuation funds

The RBA includes in its balance sheet as an asset or liability the position of its defined benefit superannuation funds. Actuarial gains and losses are included in the asset or liability in accordance with the ‘corridor’ approach under AASB 119. Movements in the superannuation asset or liability are reflected in the Unrealised Profits Reserve. Actuarial gains and losses in excess of 10 per cent of the greater of the funds' assets or its defined benefit obligations are charged or credited to income in subsequent years over the expected average remaining working life of members. Details of the superannuation funds and superannuation expenses are included in Note 14.

(i) Rounding

Amounts in the financial statements are rounded to the nearest million dollars unless otherwise stated.

(j) New and revised accounting standards

A number of new and revised accounting standards will be applied from 1 July 2013. The RBA's assessment of the main effects of these standards on its financial statements is set out below.

AASB 119 – Employee Benefits and AASB 2011–10 – Amendments to Australian Accounting Standards

Revisions to AASB 119 and AASB 2011-10 will amend the basis for recognising and measuring employee benefits, in particular post-employment benefits. As a result of the change, the ‘corridor’ approach is no longer available to account for the remeasurement of defined benefit superannuation obligations. Accordingly, service costs and net interest amounts will be recognised in net profit. The calculation of net interest has also been amended and is to be calculated by applying the discount rate to the net defined benefit liability. Actuarial gains and losses will be recognised as part of other comprehensive income in the reporting period in which they occur.

Based on current estimates, application of the revised standard would have resulted in the recognition of a superannuation liability of $370.9 million as at 30 June 2013 (compared with a liability of $668.5 million had the standard been applied as at 30 June 2012) as well as a corresponding adjustment to the RBA's total comprehensive income. Additional narrative disclosures will also be required to be made in the notes to the financial statements around the RBA's defined benefit obligations.

The revised standard also amends the recognition and measurement of short-term and long-term employee benefits. These changes are not expected to have a material effect on the RBA's financial statements.

The revised AASB 119 will be applied in the RBA's financial statements for the year ending 30 June 2014.

AASB 13 – Fair Value Measurement

AASB 13 provides a framework for measuring fair value. The standard is not expected to have a material effect on the RBA's financial statements but will require additional disclosures to be made around fair value measurements contained in the notes to the financial statements. AASB 13 will be first applied in the RBA's financial statements for the year ending 30 June 2014.

AASB 9 – Financial Instruments

AASB 9 contains new requirements for the classification, measurement and de-recognition of financial assets and liabilities. It will replace the corresponding requirements in AASB 139. The Bank is assessing the impact of the new standard, which will first become applicable for annual reporting periods beginning on or after 1 January 2015.