ACKNOWLEDGEMENT

The Government Accounting Manual (GAM) for National

Government Agencies (NGAs) is a product of hard work and selfless
commitment of the working group composed of the heads of the
services and selected personnel of the Government Accountancy
Sector (GAS), Commission on Audit (COA) with the proficient guidance
and direction of Assistant Commissioner Lourdes M. Castillo, Director
Usmin P. Diamel, Director Luzvi Pangan Chatto, Director Maria Fe A.
Dinapo, as well as Director Sheila U. Villa and Director Marlon M.
Marquina.
The review and evaluation of the various policies in this Manual
by the National Government Sector (NGS); the Corporate Government
Sector (CGS); the Planning, Finance and Management Sector (PFMS);
and the Professional and Institutional Development Sector (PIDS) of this
Commission helped in identifying issues and concerns that need to be
addressed in the GAM.
The gathering of valuable inputs through the conduct of two (2)
batches of Focus Group Discussions (FGDs) was successfully done with
the unwavering support of the Assistant Commissioners, Directors,
selected auditors and personnel of the NGS, PFMS and PIDS under the
able leadership of Assistant Commissioners Susan P. Garcia, Carmela S.
Perez and Luz Loreto-Tolentino, respectively. The FGDs were led by
Assistant Commissioner Lourdes M. Castillio, GAS, and panelists from
the GAS, namely, Director Usmin P. Diamel, Director Luzvi Pangan
Chatto, Director Maria Fe A. Dinapo and Director Marlon R. Marquina,
and from the NGS, namely, Director Marietta M. Lorenzo and Director
Adelina Concepcion L. Ancajas. The FGDs were participated in by the
following COA and various government agency personnel, who
unselfishly shared their meaningful recommendations on how to make
the Manual more useful to its intended users:
Commission on Audit, Government Accountancy Sector:
Elena B. Monteza, Emelita V. Cayetano, Annabelle A. Puserio,
Romeo C. Cruz, Annabella P. Gabiran, Carmen Z. Zafe, Agustina
Q. Baseo, Susana M. De Guzman, Avelina G. Marquez, Jorgen Z.
Fulleros, Juanita C. Fuggan, Vanessa Donnabel F. Manito,
Cristina C. Gungon, Pretizel Ivy T. Arteche, Mairyl Ann R. Merced,
Bernadeth P. Virrey and Berlin M. Quevedo; Planning, Finance
and Management
Sector: Rebecca C. Dacanay, Zenaida A. Botona, Sofronio B.
Bustamante, Imelda P. Angeles and Beverly L. Letada; and
National Government Sector:
Director Aurora A. Ebora, OIC-Director III Maribeth F. De Jesus,
Karlo P. Almonidovar, Marieta V. Andoy, Flordeliza A. Ares, Gloria
M. Bacani, Flovitas U. Felipe, Jesusa R. Gauang, Myrna D. Monzon,
Normita N. Narvaez, Rosemarie

Valenzuela, Teresa C. Atis, Remedios F. Pacheco, Joycelyn R.

Ramos, Cecilia
23 Raeses, Melinda R. Barcial, Gloria R. Baylon, Luz R. Cadano,
Myrna B. Cells, Edna L. De Leon, Ma. Carmen C. De los Santos,
Alma B. Enriquez, Perla D. Libunao, Marilyn B. Miran, Felicidad G.
Rellen, Rebecca B. Sabuelba, Caridad
23 Sarmiento, Reynalda M. Sorra, Nenita V. Talion, Melinda S. Torio,
Ma. Luisa
23 Villanueva and Victoria R. Yumang.

National Government Agencies, Bureau of Internal Revenue:

Assistant Commissioner Zenaida B. Chang, Sittie Alyssah A.
Banisil, Edna L. Bautista,
Teresa A. Cancino, Ma. Teresa C. Gonzales, Teresita G. Marquinez,
Joyce A. Nipal, Maria Victoria B. Villena and Roy B. Villena;
Bureau of the Treasury:
Carol D. Jorge, Marites B. Masarap, Salvacion C. Rios, Emilia T.
Tuquero,
Avelina H. Zumarraga, Gloria M. Antazo, Marcela J. Dalangin,
Agnes D. Lacuata, Rowena R. Gamba and Reynaldo Z. Delos
Santos; Civil Service Commission: Rodel R. Timbol, Julius B.
Remudaro, and Escarlet G. Conde; Commission on Elections:
Danilo E. Lustre and Minerva N. Madjus; Department of
Agriculture: Edna S. Camacho, Marcela H. Nepomuceno,
Corazon A. Saldivar and Nelson E. Vagilidad; Department of
Agrarian Reform: Rowena U. Agbayani and Ma. Lourdes G.
Ranara; Department of Education: Neliza G. Advincula and
Presentacion A. Salandanan; Department of Environment and
Natural Resources: Marivic B. Hidalgo, Renato E. Ho and Dia
M. Nillosan; Department of Finance: Josef G. Espiritu;
Department of Foreign Affairs: Fernette A. Ubanos, Danilo G.
Cabanayan and Maria Celesty D. Cornejo; Department of
Health: Racquel P. Alvendia and Agnes D. Marfori; Department
of Health-East Avenue Medical Center: Laiza Marie V. Annang
and Marietta M. Cruz; Department of the Interior and Local
Government: Estela R. Basaes, Sharry I. Sinon, Rina B.
Capistrano and Aira Kathrina C. Perez; Department of National
Defense-Proper: Rolando J. Romero; Department of Justice:
Vicente B. Mirano III and Jelly B. Tugbo;
Department of Public Works and Highways: Marilou D.
Alfanta, Mary Antoinette Z. Puno and Jessica J. Catibayan;
Department of Science and Technology: Rosario D. Balde,
Van Rijn A. Espinoza, Adora L. Gabiana, Luciana C. Panaligan and
Rosalia F. Sosa; Department of Social Welfare and
Development: Meriel P. Castillo, Joan V. Bias, Grace Ann S.
Nisperos
and
Angelina
E.
Racho;
Department
of
Transportation and Communications:
Edna C. Tapar, Evangeline T. Fernandez and Elvira F. Villar;
National Historical Commission of the Philippines: Pricila M.
Manalo; National Museum: Consuelo M. Bernardo; PublicPrivate Partnership Center of the Philippines: Heidee-May
H. Aquitania; Supreme Court: Violeta T. Alarcon, Moises B.
Figueroa and Nelson C. Martin; and University of the
Philippines-Diliman: Alexandria P. Pineda and Karen Krista F.
Villanueva.
The dream of producing this Manual as guide in the
implementation of the Philippine Public Sector Accounting Standards
was made a reality with the financial support from the Public Financial
Management Committee through the Accounting and Auditing Reform

Project Implementation Unit, and the Kreditanstalt fr Wiederaufbau

(KFW). The release of the funds was facilitated by the International
Finance Group of the Department of Finance and the Department of
Budget and Management.
The printing of this Manual was carefully done by the Printing and
Publication Services, Policy Research and Institutional Development
Office, PIDS, this Commission.

More importantly, the painstaking efforts of the working group

became more invaluable because of the support and guidance of the
top officials of the Commission: the Honorable Members of the
Commission Proper composed of Chairperson Michael G. Aguinaldo,
Commissioner Heidi L. Mendoza, and Commissioner Jose A. Fabia.
Finally, the Government Accountancy Sector is very grateful to all
the aforementioned individuals and entities for all their priceless
contributions in this Manual.
Name

Position

Office of the Assistant Commissioner

Lourdes M. Castillo
Editha M. Ramirez
Luisa S. Nadonga
Officer
Benjie D. Baturi
Maricel S. Ampoc
Magdalena M. Gaviola

Assistant Commissioner
State Auditor V
Supervising Administrative
Administrative Aide VI
Administrative Aide VI
Administrative Aide IV

Government Accountancy Office

Office of the Director
Usmin P. Diamel
Director IV
Maria Fe A. Dinapo
Director III
Ma. Belen L. Estuaria
State Auditor III
Mary Jane S. Liberato
Administrative Aide VI
Maria C. Lainez
Administrative Aide V
Rufa L. Gunabe
Administrative Aide V
Teddy N. Alejandro
Administrative Aide IV
Local Government Accounts Services
Emelita V. Cayetano
State Auditor V
Avelina G. Marquez
State Auditor IV
Aida A. Donasco
State Auditor III
Joven L. Recto
State Auditor III
Maribel G. Cablayan
State Auditor III
Elizabeth D. Ducay
State Auditor II
General Accounts Services-National I
Thelma F. Panganiban
State Auditor V
Lorelie L. Datu
State Auditor IV
Josefino O. Lainez
State Auditor III
Susan C. Vega
State Auditor III
Carol F. Manzanillo
Administrative Officer III
General Accounts Services-National II
Marilyn C. Bibat
State Auditor V
Narcisa S. dela Rosa
State Auditor III
Ma. Corazon D. Eguia
State Auditor II
Jane L. Maramag
State Auditor II
Rodel Joseph Y. Navarro
State Auditing Examiner II
Corporate Government Accounts Services
Agustina Q. Baseo
State Auditor IV

Name

Position

Vanessa Donnabel F. Manito State Auditor III

Zenaida P. Balmes
State Auditor III
Princess M. Buan
State Auditor I
Elizabeth P. Quiban
State Auditor I
Public Debt and Miscellaneous Accounts Services
Anicia H. Guillermo
State Auditor V
Elmer M. Grande
State Auditor IV
Ma. Lourdes D. Marayan
State Auditor III
Visitacion T. Corpuz
State Auditor II
Jose Jayson L. Medel
State Auditor I
Accounting Systems Development and Other Services
Office
Office of the Director
Luzvi Pangan Chatto
Director IV
Elena B. Monteza
State Auditor V
Editha C. Ramirez
Administrative Assistant VI
Lailah D. Chua
Administrative Aide VI
Marissa D. Labajan
Administrative Aide IV
Roberto L. Palita, Jr.
Administrative Aide IV
Accounting Systems Development and Other Services-National
Annabelle A. Puserio
State Auditor V
Cristina C. Gungon
State Auditor III
Pretizel Ivy T. Arteche
State Auditor I
Berlin M. Quevedo
Administrative Aide VI
Accounting Systems Development and Other ServicesCorporate
Annabella P. Gabiran
State Auditor IV
Juanita C. Fuggan
State Auditor III
Mairyl Ann R. Merced
State Auditor I
Bernadette P. Virrey
Administrative Officer III
Accounting Systems Development and Other Services-Local
Carmen Z. Zafe
State Auditor IV
Susana M. de Guzman
State Auditor IV
Hannah Grace P. Valente
State Auditing Examiner II
Mhay D. Litada
Administrative Aide IV
Technical Assistance and Help Desk Services
Romeo C. Cruz
State Auditor V
Jorgen Z. Fulleros
State Auditor IV
Michelle M. Gagarra
Administrative Officer III
Gabriel B. Mercado
Computer Maintenance Technologist I
Lara Jane M. Dela Torre
Administrative Aide IV

GOVERNMENT ACCOUNTING MANUAL

(GAM)
For National Government Agencies
Volume I
Accounting Policies, Guidelines and Procedures
and Illustrative Accounting Entries

Table of Contents
Chapter No.

Title

Page No.

Introduction

General Provisions, Basic Standards and Policies

Budget Execution, Monitoring and Reporting

15

Responsibility Accounting

30

Revenue and Other Receipts

33

Disbursements

61

Financial Instruments

114

Inventories

130

Investment Property

145

10

Property, Plant and Equipment

164

11

Agriculture

213

12

Intangible Assets

227

13

Leases

236

14

Service Concession Arrangements: Grantor

251

15

Interests in Joint Venture

258

16

The Effects of Changes in Foreign Exchange Rates

265

17

Borrowing Costs

269

18

Provisions, Contingent Liabilities and Contingent Assets

274

19

Financial Reporting

280

20

Consolidated and Separate Financial Statements

310

21

Bank Reconciliation

316

22

Illustrative Accounting Entries

326

GOVERNMENT ACCOUNTING MANUAL

(GAM)
For National Government Agencies
Volume I
Accounting Policies, Guidelines and Procedures
and Illustrative Accounting Entries

Table of Contents
Annex No.

Title

Page No.

Statement of Financial Position

327

A-1

Statement of Financial Position-Detailed

328

Statement of Financial Performance

343

B-1

Statement of Financial Performance-Detailed

344

Statement of Changes in Net Assets/Equity

352

Statement of Cash Flows

353

D-1

Statement of Cash Flows-Detailed

354

Statement of Comparison of Budget and Actual Amounts

360

Sample Notes to Financial Statements

361

Statement of Management Responsibility for Financial

Statements

405

Illustrative Accounting Entries:

H

Regular Agency Fund

406

Foreign Assisted Projects Fund

430

Special Account-Locally Funded/Domestic Grants Fund

443

Special Account-Foreign Assisted/Foreign Grants Fund

447

Retained Income

450

Trust Receipts-IATF Remitted to Bureau of the Treasury

452

Trust Receipts-Deposited with AGDB

461

Trust Receipts-Other than IATF

462

Composition of Fund Clusters

464

Acronyms

479

Chapter 1
INTRODUCTION

Recent developments brought about by the Philippine Public Financial Management

Reforms and significant changes in the field of accounting prompted the harmonization of the
existing accounting standards with the international accounting standards. This Commission
revised the New Government Accounting System (NGAS) Manual prescribed under Commission
on Audit (COA) Circular No. 2002-002 dated June 18, 2002 to make it responsive to dynamic
changes and modern technology.
Sec. 1. Legal Basis. The Government Accounting Manual (GAM) is prescribed by COA
pursuant to Article IX-D, Section 2 par. (2) of the 1987 Constitution of the Republic of the
Philippines which provides that:
The Commission on Audit shall have exclusive authority, subject to the
limitations in this Article, to define the scope of its audit and examination,
establish the techniques and methods required therefor, and promulgate
accounting and auditing rules and regulations, including those for the
prevention and disallowance of irregular, unnecessary, excessive,
extravagant, or unconscionable expenditures, or uses of government funds
and properties". (Underscoring supplied)
Sec. 2. Coverage. This Manual presents the basic accounting policies and principles in
accordance with the Philippine Public Sector Accounting Standards (PPSAS) adopted thru COA
Resolution No. 2014-003 dated January 24, 2014 and other pertinent laws, rules and regulations.
It includes the Revised Chart of Accounts (RCA) prescribed under COA Circular No. 2013-002
dated January 30, 2013, as amended; the accounting procedures, books, registries, records, forms,
reports, and financial statements; and illustrative accounting entries. It shall be used by all
National Government Agencies (NGAs) in the:
23 preparation of the general purpose financial statements in accordance with the PPSAS and
other financial reports as may be required by laws, rules and regulations; and
24 reporting of budget, revenue and expenditure in accordance with laws, rules and
regulations.
Sec. 3. Objective of the Manual. The Manual aims to update the following:
1

standards, policies, guidelines and procedures in accounting for government funds and
property;
2

coding structure and accounts; and

accounting books, registries, records, forms, reports and financial statements.

Chapter 2
GENERAL PROVISIONS, BASIC STANDARDS AND POLICIES

Sec. 1. Scope. This chapter covers the general provisions from existing laws, rules and
regulations; and the basic standards/fundamental accounting principles for financial reporting by
national government agencies.
Sec. 2. Definition of Terms. For the purpose of this Manual, the terms used as stated
below shall be construed to mean as follows:
Accrual basis means a basis of accounting under which transactions and other events are
recognized when they occur (and not only when cash or its equivalent is received or
paid). Therefore, the transactions and events are recognized in the accounting records and
recognized in the financial statements of the periods to which they relate. The elements
recognized under accrual accounting are assets, liabilities, net assets/equity, revenue, and
expenses.
Assets are resources controlled by an entity as a result of past events, and from which future
economic benefits or service potential are expected to flow to the entity.
Contributions from owners means future economic benefits or service potential that have
been contributed to the entity by parties external to the entity, other than those that result
in liabilities of the entity, that establish a financial interest in the net assets/equity of the
entity, which:
conveys entitlement both to (i) distributions of future economic benefits or service
potential by the entity during its life, such distributions being at the discretion of the
owners or their representatives; and to (ii) distributions of any excess of assets over
liabilities in the event of the entity being wound up; and/or
can be sold, exchanged, transferred, or redeemed.
Distributions to owners means future economic benefits or service potential distributed by
the entity to all or some of its owners, either as a return on investment or as a return of
investment.
Entity refers to a government agency, department or operating/field unit. It may be referred
to in this GAM as an agency.
Expenses are decreases in economic benefits or service potential during the reporting period
in the form of outflows or consumption of assets or incurrence of liabilities that result in
decreases in net assets/equity, other than those relating to distributions to owners.
Government Accounting encompasses the processes of analyzing, recording, classifying,
summarizing and communicating all transactions involving the receipt and disposition
of government funds and property, and interpreting the results thereof. (Sec. 109,
Presidential Decree (P.D.) No. 1445)
Government Budget is the financial plan of a government for a given period, usually for a fiscal
year, which shows what its resources are, and how they will be generated

and used over the fiscal period. The budget is the government's key instrument for
promoting its socio-economic objectives. The government budget also refers to the
income, expenditures and sources of borrowings of the National Government (NG)
that are used to achieve national objectives, strategies and programs.
1 Liabilities are firm obligations of the entity arising from past events, the settlement of
which is expected to result in an outflow from the entity of resources embodying
economic benefits or service potential.
2 Net assets/equity is the residual interest in the assets of the entity after deducting all its
liabilities.
3 Revenue is the gross inflow of economic benefits or service potential during the reporting
period when those inflows result in an increase in net assets/equity, other than increases
relating to contributions from owners.
4 Revenue funds comprise all funds derived from the income of any agency of the
government and available for appropriation or expenditure in accordance with law.
(Section 3, P.D. No. 1445)
Sec. 3. Responsibility, Accountability and Liability over Government Funds and
Property
1

Responsibility over Government Funds and Property

It is the declared policy of the State that all resources of the government shall be
managed, expended or utilized in accordance with laws and regulations, and
safeguarded against loss or wastage through illegal or improper disposition, with a
view to ensuring efficiency, economy and effectiveness in the operations of
government. The responsibility to take care that such policy is faithfully adhered to
rests directly with the chief or head of the government agency concerned. (Sec. 2,
P.D. No. 1445)

Fiscal responsibility shall, to the greatest extent, be shared by all those exercising
authority over the financial affairs, transactions, and operations of the government
agency. (Sec. 4(4), P.D. No. 1445)

The head of any agency of the government is immediately and primarily responsible
for all government funds and property pertaining to his agency. Persons entrusted
with the possession or custody of the funds or property under the agency head shall
be immediately responsible to him, without prejudice to the liability of either party to
the government. (Sec. 102, P.D. No. 1445)

Accountability over Government Funds and Property

1

Every officer of any government agency whose duties permit or require the
possession or custody of government funds or property shall be accountable
therefor and for the safekeeping thereof in conformity with law. Every AO shall
be properly bonded in accordance with law. (Sec. 101, P.D. No. 1445; Section 50,
Chapter 9, Subtitle B, Book V, Executive Order (E.O.) No. 292)

Transfer of government funds from one officer to another shall, except as allowed by
law or regulation, be made only upon prior direction or authorization of the
Commission or its representative. (Sec. 75, P.D. No. 1445)
3

When government funds or property are transferred from one AO to another, or from an
outgoing officer to his successor, it shall be done upon properly itemized invoice and
receipt which shall invariably support the clearance to be issued to the relieved or
outgoing officer, subject to regulations of the Commission. (Sec. 77, P.D. No. 1445)
c. Liability over Government Funds and Property
1

Expenditures of government funds or uses of government property in violation of law

or regulations shall be a personal liability of the official or employee found to be
directly responsible therefor. (Sec. 103, P.D. No. 1445)
2

Every officer accountable for government funds shall be liable for all losses
resulting from the unlawful deposit, use, or application thereof and for all losses
attributable to negligence in the keeping of the funds. (Sec. 105(2), P.D. No.
1445)

No AO shall be relieved from liability by reason of his having acted under the direction of
a superior officer in paying out, applying, or disposing of the funds or property with
which he is chargeable, unless prior to that act, he notified the superior officer in writing
of the illegality of the payment, application, or disposition. The officer directing any
illegal payment or disposition of the funds or property shall be primarily liable for the
loss, while the AO who fails to serve the required notice shall be secondarily liable. (Sec.
106, P.D. No. 1445)

When a loss of government funds or property occurs while they are in transit or the loss is
caused by fire, theft, or other casualty or force majeure, the officer accountable therefor
or having custody thereof shall immediately notify the Commission or the auditor
concerned and, within 30 days or such longer period as the Commission or auditor may in
the particular case allow, shall present his application for relief, with the available
supporting evidence. Whenever warranted by the evidence, credit for the loss shall be
allowed. An officer who fails to comply with this requirement shall not be relieved of
liability or allowed credit for any loss in the settlement of his accounts. (Sec. 73, P.D. No.
1445)

Sec. 4. Fundamental Principles for Revenue. All revenues accruing to the NGAs
shall be governed by the following fundamental principles:
Unless otherwise specifically provided by law, all revenues accruing to an entity by virtue of
the provisions of existing law, orders and regulations shall be deposited/remitted in the
National Treasury (NT) or in any duly authorized government depository, and shall
accrue to the General Fund (GF) of the NG. (Sec. 65(1), P.D. No. 1445)
Except as may otherwise be specifically provided by law or competent authority, all moneys
and property officially received by a public officer in any capacity or upon any occasion
must be accounted for as government funds and government property. (Sec. 42, Chapter
7, Title I(B), Book V, E.O. No. 292)
Amounts received in trust and from business-type activities of government may be
separately recorded and disbursed in accordance with such rules and regulations as
may be determined by a Permanent Committee composed of the Secretary of Finance
as Chairman, and the Secretary of Budget and Management and the Chairman, COA,
as members. (Sec. 65(2), P.D. No. 1445)
4

1 Receipts shall be recorded as revenue of Special, Fiduciary or Trust Funds or Funds

other than the GF, only when authorized by law as implemented by rules and
regulations issued by the Permanent Committee. (Sec. 66, P.D. No. 1445)
2 No payment of any nature shall be received by a collecting officer without immediately
issuing an official receipt in acknowledgement thereof. The receipt may be in the
form of postage, internal revenue or documentary stamps and the like, officially
numbered receipts, subject to proper custody, accountability, and audit. (Sec. 68(1),
P.D. No. 1445)
3 Where mechanical devices (e.g. electronic official receipt) are used to acknowledge
cash receipts, the COA may approve, upon request, exemption from the use of
accountable forms. (Sec. 68 (2), P.D. No. 1445)
4 At no instance shall temporary receipts be issued to acknowledge the receipt of public
funds. (Sec. 72, GAAM Volume I)
5 Pre-numbered ORs shall be issued in strict numerical sequence. All copies of each
receipt shall be exact copies or carbon reproduction in all respects of the original.
(Sec. 73, GAAM Volume I)
6 An officer charged with the collection of revenue or the receiving of moneys payable to
the government shall accept payment for taxes, dues or other indebtedness to the
government in the form of checks issued in payment of government obligations, upon
proper endorsement and identification of the payee or endorsee. Checks drawn in
favor of the government in payment of any such indebtedness shall likewise be
accepted by the officer concerned.
At no instance should money in the hands of the CO be utilized for the purpose of
cashing private checks. (Sec. 67(1) and (3), P.D. No. 1445)
1

Under such rules and regulations as the COA and the Department of Finance (DOF)
may prescribe, the Treasurer of the Philippines and all AGDB shall acknowledge
receipt of all funds received by them, the acknowledgement bearing the date of actual
remittance or deposit and indicating from whom and on what account it was received.
(Sec. 70, P.D. No. 1445)

Sec. 5. Fundamental Principles for Disbursement of Public Funds. Section 4 of P.D.

No. 1445, the Government Auditing Code of the Philippines, provides that all financial
transactions and operations of any government entity shall be governed by the following
fundamental principles:
0

No money shall be paid out of any public treasury or depository except in pursuance
of an appropriation law or other specific statutory authority.

Government funds or property shall be spent or used solely for public purposes.

Trust funds shall be available and may be spent only for the specific purpose for
which the trust was created or the funds received.

Fiscal responsibility shall, to the greatest extent, be shared by all those exercising
authority over the financial affairs, transactions, and operations of the government
agency.

Disbursement or disposition of government funds or property shall invariably bear the

approval of the proper officials.
Claims against government funds shall be supported with complete documentation.
All laws and regulations applicable to financial transactions shall be faithfully adhered to.
Generally accepted principles and practices of accounting as well as of sound management
and fiscal administration shall be observed, provided that they do not contravene existing
laws and regulations.
Sec. 6. Basic Government Accounting and Budget Reporting Principles. Each entity
shall recognize and present its financial transactions and operations conformably to the following:
1 generally accepted government accounting principles in accordance with the PPSAS and
pertinent laws, rules and regulations;
2 accrual basis of accounting in accordance with the PPSAS;
3 budget basis for presentation of budget information in the financial statements (FSs) in
accordance with PPSAS 24;
4 RCA prescribed by COA;
5 double entry bookkeeping;
6 financial statements based on accounting and budgetary records; and
7 fund cluster accounting.
Sec. 7. Keeping of the General Accounts. The COA shall keep the general accounts of
the Government and, for such period as may be provided by law, preserve the vouchers and other
supporting papers pertaining thereto, pursuant to Section 2, par. (1), Article IX-D of the 1987
Philippine Constitution.
Sec. 8. Financial Reporting System for the National Government. The financial
reporting system of the Philippine government consists of accounting system on accrual basis and
budget reporting system on budget basis under the statutory responsibility of the NGAs, Bureau
of the Treasury (BTr), Department of Budget and Management (DBM), and the COA, as follows:
1

Each entity of the National Government (NG) maintains complete set of accounting
books by fund cluster which is reconciled with the records of cash transactions
maintained by the BTr.
2

The BTr accounts for the cash, public debt and related transactions of the NG.

Each entity maintains budget registries which are reconciled with the budget records
maintained by the DBM and the Government Accountancy Sector (GAS), COA.
4

The COA, through the GAS:

maintains budget records showing the overall approved budget of the NG and its
execution/implementation;
6

consolidates the FSs and budget accountability reports of all NGAs and the BTr
with COAs records to come up with an Annual Financial Report (AFR) for the
NG as required in Section 4, Article IX-D of the 1987 Philippine Constitution;
and

prepares other financial reports required by law for submission to oversight

agencies.

Sec. 9. Objectives of General Purpose Financial Statements. The objectives of general

purpose financial statements (GPFSs) are to provide information about the financial position,
financial performance, and cash flows of an entity that is useful to a wide range of users in
making and evaluating decisions about the allocation of resources. Specifically, the objectives of
general purpose financial reporting in the public sector are to provide information useful for
decision-making, and to demonstrate the accountability of the entity for the resources entrusted to
it.
Sec. 10. Responsibility for Financial Statements. The responsibility for the preparation
of the FSs rests with the following:
1

for individual entity/department FSs the head of the entity/department central office
(COf) or regional office (RO) or operating unit (OU) or his/her authorized
representative jointly with the head of the finance/accounting division/unit; and

for department/entity FSs as a single entity the head of the entity/department COf
jointly with the head of the finance unit.

Sec. 11. Components of General Purpose Financial Statements. The complete set of
GPFSs consists of:
1
2
3
4
5
6

Statement of Financial Position (Annex A);

Statement of Financial Performance (Annex B);
Statement of Changes in Net Assets/Equity (Annex C);
Statement of Cash Flows (Annex D);
Statement of Comparison of Budget and Actual Amounts (Annex E); and
Notes to the Financial Statements, comprising a summary of significant accounting
policies and other explanatory notes. (Annex F)

Sec. 12. Books of Accounts and Registries. The books of accounts and registries of the
NG entities consist of:
1

Journals
1 General Journal (Appendix 1)
2 Cash Receipts Journal (Appendix 2)
3 Cash Disbursements Journal (Appendix 3)
4 Check Disbursements Journal (Appendix 4)

Ledgers
1 General Ledgers (Appendix 5)
2 Subsidiary Ledgers (Appendix 6)

Registries
1
2
3
4

Registries of Revenue and Other Receipts (Appendices 7, 7A, 7B, 7C and 7D)
Registry of Appropriations and Allotments (Appendix 8)
Registries of Allotments, Obligations and Disbursements (Appendices 9A, 9B, 9C
and 9D)
Registries of Budget, Utilization and Disbursements (Appendices 10A, 10B, 10C
and 10D)

Sec. 13. Fund Accounting. The books of accounts shall be maintained by fund cluster as
follows:
Code
01
02
03
04
05
06
07

Description
Regular Agency Fund
Foreign Assisted Projects Fund
Special Account-Locally Funded/Domestic Grants Fund
Special Account-Foreign Assisted/Foreign Grants Fund
Internally Generated Funds
Business Related Funds
Trust Receipts

The composition of fund clusters is enumerated in Annex P.

Sec. 14. Components of Budget and Financial Accountability Reports. The budget
reports consist of the following Budget and Financial Accountability Reports (COA-DBM-DOF
Joint Circular No. 2013-1, as amended by COA and DBM Joint Circular No. 2014-1 dated July 2,
2014):
1
2

Quarterly Physical Report of Operation (QPRO) BAR No. 1

Statement of Appropriations, Allotments, Obligations, Disbursements and Balances

(SAAODB) FAR No. 1
3

Summary of Appropriations, Allotments, Obligations, Disbursements and Balances by

Object of Expenditures (SAAODBOE) FAR No. 1-A

List of Allotments and Sub-Allotments (LASA) FAR No. 1-B

Statement of Approved Budget, Utilizations, Disbursements and Balances (SABUDB)

FAR No. 2 (for Off-Budget Fund)

Summary of Approved Budget, Utilizations, Disbursements and Balances by Object of

Expenditures (SABUDBOE) FAR No. 2-A (for Off-Budget Fund)
7

Aging of Due and Demandable Obligations (ADDO) FAR No. 3

Monthly Report of Disbursements (MRD) FAR No. 4

Quarterly Report of Revenue and Other Receipts (QRROR) FAR No. 5

Sec. 15. Fair Presentation. The FSs shall present fairly the financial position, financial
performance and cash flows of an entity. Fair presentation requires the faithful representation of
the effects of transactions, other events, and conditions in accordance with the definitions and
8

recognition criteria for assets, liabilities, revenue, and expenses set out in PPSAS. The application
of PPSAS, with appropriate disclosures, if necessary, would result in fair presentation of the FS.
Sec. 16. Compliance with PPSASs. An entity whose financial statements comply with
PPSASs shall make an explicit and unreserved statement of such compliance in the notes.
Financial statements shall not be described as complying with PPSASs unless they comply with
all the requirements of PPSASs. Inappropriate accounting policies that do not comply with
PPSAS are not rectified either by disclosure of the accounting policies used, or by notes or
explanatory material.
Sec. 17. Departure from PPSAS. In the event that Management strongly believes that
compliance with the requirement of PPSAS would result in misleading presentation that it would
contradict the objective of the FSs set forth in PPSAS, the entity may depart from that
requirement if the relevant regulatory framework allows, or otherwise does not prohibit, such a
departure.
Sec. 18. Going Concern. The FSs shall be prepared on a going concern basis unless there
is an intention to discontinue the entity operation, or if there is no realistic alternative but to do so.
Sec. 19. Consistency of Presentation. The presentation and classification of items in the
FSs shall be retained from one period to the next unless laws, rules and regulations, and PPSAS
require a change in presentation.
Sec. 20. Materiality and Aggregation. Each material class of similar items shall be
presented separately in the financial statements. Items of a dissimilar nature or function shall be
presented separately unless they are immaterial. If a line item is not material, it is aggregated with
other items either on the face of FSs or in the Notes to the FSs. A specific disclosure requirement
in a PPSAS need not be satisfied if the information is not material.
Sec. 21. Offsetting. Assets and liabilities, and revenue and expenses shall not be allowed
to offset unless required or permitted by a PPSAS except when offsetting reflects the substance of
the transaction or other event.
Sec. 22. Comparative Information. Comparative information shall be disclosed with
respect to the previous period for all amounts reported in the FSs. Comparative information shall
be included for narrative and descriptive information when it is relevant to an understanding of
the current periods FSs.
Sec. 23. Structure and Content. The FSs and each component shall be identified clearly
and distinguished from other information in the same published document.
Sec. 24. Statement of Financial Position. An entity shall present current and non-current
assets, as well as current and non-current liabilities, as separate classifications on the face of the
Statement of Financial Position (SFP).
Sec. 25. Statement of Financial Performance. The Statement of Financial Performance
(SFPer) shall include line items that present the revenue, expenses and net surplus or deficit for
the period.

Sec. 26. Statement of Changes in Net Assets/Equity. An entity shall present in the
Statement of Changes in Net Assets/Equity (SCNA/E) the following:
1
2

Net Income or Deficit for the period;

Each item of revenue and expenses for the period that, as required by Standards, is
recognized directly in net assets/equity, and the total of these items;
3

Total revenue and expenses for the period; and

For each component of net assets/equity separately disclosed, the effects of changes in
accounting policies and corrections of errors recognized in accordance with PPSAS 3Accounting Policies, Changes in Accounting Estimates and Errors.

Sec. 27. Statement of Cash Flows. The Statement of Cash Flows (SCF) provides
information to users of FSs a basis to assess the ability of the entity to generate cash and cash
equivalents and to determine the entitys utilization of funds. This also provides information on
how the entity generates income authorized to be used in their operation and its utilization.
Sec. 28. Statement of Comparison of Budget and Actual Amounts. A comparison of
budget and actual amounts will enhance the transparency of financial reporting in government.
This shall be presented by government agencies as a separate additional financial statement
referred in this Manual as the Statement of Comparison of Budget and Actual Amounts (SCBAA).
Sec. 29. Notes to Financial Statements. The Notes to FSs contain information in
addition to that presented in the SFP, SFPer, SCNA/E, SCF and SCBAA. Notes provide narrative
descriptions or disaggregation of items disclosed in those FSs and information about items that do
not qualify for recognition in those statements.
Sec. 30. Qualitative Characteristics of Financial Reporting. An entity shall present
information including accounting policies in a manner that meets a number of qualitative
characteristics such as understandability, relevance, materiality, reliability and comparability.
These qualitative characteristics are the attributes that make the information provided in the FSs
useful to users.
Sec. 31. Key Features of Assets. The key features of an asset are:

the benefits must be controlled by the entity;

the benefits must have arisen from a past event; and

future economic benefits or service potential must be expected to flow to the entity.
The following are indicators of control of the benefits by the entity:
1

the ability of an entity to benefit from the asset and to deny or regulate the access of
others to that benefit.

an entity can, depending on the nature of the asset, exchange it, use it to provide
goods or services, exact a price for others use of it, use it to settle liabilities, hold it,
or perhaps even distribute it to owners.

10

possession or ownership of an object or right would normally be synonymous with

control over the future economic benefits embodied in the right or object.
However, there are instances when an entity may possess an object or right but not expect
to enjoy the benefits embodied in it, e.g. under a finance lease agreement, control over the
leased property owned by the lessor is transferred to the lessee.
The following are indicators of past event:

1024 the specification of a past event differentiates assets from intentions to acquire
assets, which are not to be recognized.
1025 a transaction or event giving rise to control of the future economic benefits must
have occurred.
The following are indicators of future economic benefits:
1

distinguishable from the source of the benefit i.e. the particular physical resource or legal
right;

does not imply that assets necessarily generate cash flows, the benefits can also be in the
form of service potential;

in determining whether a resource or right needs to be accounted for as an asset, the

potential to contribute to the objectives of the entity should be the prime consideration;
4

capacity to contribute to activities/objectives/programs; and

the fact that an asset cannot be sold does not preclude it from providing future economic
benefits.

Sec. 32. Recognition of an Asset. An asset shall be recognized in the financial position
when and only when (a) it is probable that the future economic benefits will flow to the entity; and
(b) the asset has a cost or value that can be measured reliably.
The following are indicators of probable inflow of future economic benefits:
1

the chance of benefits arising is more likely rather than less likely (e.g. greater than 50%).
2

benefits can be expected on the basis of available evidence or logic.

The following are indicators of reliable measurement:

5888

valuation method is free from material error or bias.

5889

faithful representation of the assets benefits.

5890
reliable information will, without bias or undue error, faithfully represent those
transactions and events.

11

Sec. 33. Accounting Standards for Revenue. The following accounting standards shall
apply for revenue and receipts of government entities:
23 Revenue includes only the gross inflows of economic benefits or service potential
received and receivable by the entity in its own account. (PPSAS 9)
24 Receipts/Collections shall refer to all cash actually received from all sources during a
given accounting period.
25 Fines shall include economic benefits or service potential received or receivable by a
public sector agency, as determined by a court or other law enforcement body, as a
consequence of the breach of laws or regulations. Fines and penalties, either on tax
revenue or other specific income account, shall be recognized as income of the year
these were collected.
26 Gifts and donations shall consist of voluntary transfers of assets including cash or other
monetary assets, goods in-kind and services in-kind that one agency makes to another,
normally free from stipulations. (PPSAS 23)
27 Goods in-kind are tangible assets transferred to an agency in a non-exchange
transaction, without charge, but may be subject to stipulations. External assistance
provided by multilateral or bilateral development organizations often includes a
component of goods in-kind. (PPSAS 23)
28 Taxes are economic benefits or service potentials compulsory paid or payable to
public sector agencies, in accordance with laws and or regulations, established to
provide revenue to the government. Taxes do not include fines or other penalties
imposed for breaches of the law. (PPSAS 23)
29 Transfers are inflows of future economic benefits or service potential from nonexchange transactions, other than taxes. (PPSAS 23)
Sec. 34. Use of Appropriated Funds. All moneys appropriated for functions, activities,
projects and programs shall be available solely for the specific purposes for which these are
appropriated.
Sec. 35. Appropriation for Loan Proceeds. Expenditures funded by foreign and
domestic borrowings shall be included within the expenditure program of the entity concerned.
Loan proceeds, whether in cash or in kind, shall not be used without the corresponding release of
funds through a Special Budget.
Sec. 36. Basic Requirements for Disbursements and the Required Certifications.
Disbursements of government funds shall comply with the following basic requirements and
certifications:
23 Availability of allotment/budget for obligation/utilization certified by the Budget
Officer/Head of Budget Unit;
24 Obligations/Utilizations properly charged against available allotment/budget by the Chief
Accountant/Head of Accounting Unit;
25 Availability of funds certified by the Chief Accountant. The Head of the Accounting
Unit shall certify the availability of funds before an Agency Head or his duly
authorized representative enter into any contract that involves the expenditure of
public funds based on the copy of budget release documents;
12

23 Availability of cash certified by the Chief Accountant. The Head of the Accounting
Unit shall certify the availability of cash and completeness of the supporting
documents in the disbursement voucher and payroll based on the Registry of
Allotments and Notice of Cash Allocation/Registry of Allotment and Notice of
Transfer of Allocation;
24 Legality of the transactions and conformity with existing rules and regulations. The
requesting and approving officials shall ensure that the disbursements of government
funds are legal and in conformity with applicable rules and regulations;
25 Submission of proper evidence to establish validity of the claim. The Head of the
Requesting Unit shall certify on the necessity and legality of charges to allotments
under his/her supervision as well as the validity, propriety and legality of supporting
documents. All payments of government obligations and payables shall be covered by
Disbursement Vouchers (DV)/Payrolls together with the original copy of the
supporting documents which will serve as basis in the evaluation of authenticity and
authority of the claim. It should be cleared, however, that the submission of the
supporting documents does not preclude reasonable questions on the funding, legality,
regularity, necessity and/or economy of the expenditures or transactions; and
26 Approval of the disbursement by the Head of Agency or by his duly authorized
representative. Disbursement or disposition of government funds or property shall
invariably bear the approval of the proper officials. The DVs/Payrolls shall be signed and
approved by the head of the agencies or his duly authorized representatives.
Sec. 37. Certification of Availability of Funds. No funds shall be disbursed, and no
expenditures or obligations chargeable against any authorized allotment shall be incurred or
authorized in any department, office or agency without first securing the certification of its Chief
Accountant or head of accounting unit as to the availability of funds and the allotment to which
the expenditure or obligation may be properly charged.
No obligation shall be certified to accounts payable unless the obligation is founded on a
valid claim that is properly supported by sufficient evidence and unless there is proper authority
for its incurrence. Any certification for a non-existent or fictitious obligation and/or creditor shall
be considered void. The certifying official shall be dismissed from the service, without prejudice
to criminal prosecution under the provisions of the Revised Penal Code. Any payment made under
such certification shall be illegal and every official authorizing or making such payment, or taking
part therein or receiving such payment, shall be jointly and severally liable to the government for
the full amount so paid or received. (Book VI, Section 41 of EO No. 292)
Sec. 38. Prohibition against the Incurrence of Overdraft. Heads of departments,
bureaus, offices and agencies shall not incur nor authorize the incurrence of expenditures or
obligations in excess of allotments released by the DBM Secretary for their respective
departments, offices and agencies. Parties responsible for the incurrence of overdrafts shall be
held personally liable therefor. (Book VI, Chapter 5, Section 41 of EO No. 292)
Sec. 39. Mode of Disbursements. Payments/Disbursements by NGAs may be effected
through the Treasury Single Account (TSA), by issuing Modified Disbursements System (MDS)
check or commercial check, cash through cash advance, Advice to Debit Account (ADA), or NonCash Availment Authority (NCAA).

13

Sec. 40. Authority to Disburse/Pay. NGAs are authorized to disburse/pay based on the Notice of
Cash Allocation (NCA), Notice of Transfer of Allocation (NTA), Cash Disbursement Ceiling (CDC) or
other authority that may be provided by law.
Sec. 41. Disbursement Voucher/Payroll. Checks/ADA shall be drawn based on duly approved
disbursement voucher or payroll.
Sec. 42. Maintenance of Records. All checks/ADA drawn during the day, whether released or
unreleased including cancelled checks shall be recognized chronologically in the Checks/ADA
Disbursement Record maintained by the Cash/Treasury Unit.
Sec. 43. Reporting of Disbursements. All payments/disbursements shall be reported using the
prescribed forms for recording in the books of accounts.