The politics of accounting

Reform of the public sector accounting process to an accruals-based system of accounting is gaining momentum, but don’t expect the transition to be total in the short-term, warns Dr Brian Keegan.

Last month, the Institute launched a report by Queen’s University Belfast academics, Prof Ciaran Connolly and Dr Elaine Stewart, into the modernisation of public sector accounting. Ireland has long managed its public finances on what essentially is a cash basis of accounting. Modernisation would migrate the State to an accruals basis for accounting for public spending.

The fact of the matter is that government over the years has simply gotten bigger. There are 50,000 more people employed in the Irish public service than in 2011, and annual spending has almost doubled in that time. Despite the constant carping from opposition politicians and the commentariat, we have better education, better transport infrastructure, better regulation and governance, and better health services than we used to. All of this demands even more rigorous financial management.

Recent surveys by the Chartered Institute of Public Finance and Accounting and the International Federation of Accountants note that 25% of countries worldwide have already migrated to an accruals-based system of accounting. There is an expectation that this will rise to 65% in the next few years. The UK is already operating an accruals-based system of accounting. The Minister for Finance, Paschal Donohoe TD, announced in 2019 that, in part due to OECD prompting, Ireland would undertake a similar public sector changeover. Nevertheless, as the Connolly and Stewart report notes, even the successful adoption of accruals accounting has its pitfalls.

A cash-based system of accounting often suits politicians and civil servants alike. It is more difficult to explain away misspent funds or fudge budgeting processes if everything has to be tied up in neat, unaccrued bundles at the end of each year. In Ireland, these pitfalls may be particularly pronounced because we are not good at multi-year politics.
Perhaps the most obvious instance of this is pension reform, where there have been at least as many reports and policy papers as there have been governments in recent times. Multi-year capital investment programmes can also fall by the wayside. The 20-year National Spatial Strategy, devised in 2002, seemed to run out of room. Both attempts to establish rainy day funds this century have yielded empty kitties.

Constant change is both the glory and the weakness of the democratic process. Introducing an accruals-based accounting system will undoubtedly result in benefits in expenditure management. However, the multi-year budgeting and planning process is a different matter entirely, inextricably linked as it is with the political cycle.

The process of change already underway seems to have considerable momentum, and Ireland will have better public accounting systems within the next few years. Even before the 2019 announcement, there was a process of improvement underway with the introduction of a Budget Oversight Committee and a Parliamentary Budget Office. The latter organisation does excellent work in explaining the shape of the public finances. Yet, the complete transition to the accruals basis will have to be phased in, with a long journey towards total change that will include staff training and the typically painful wrangling of recalcitrant IT systems.

Arguably the most important stakeholders in this process are government ministers. They stand to benefit most from improvements in the financial management of their departments. However, great plans for long-term investment or reform too often fall by the wayside when the responsible minister loses their job at the polls. The prospects of re-election frequently depend on immediate policies with immediate spend and immediate results. It will be harder to run a political campaign on accruals accounting principles.