Avon School District 2024 Audit
Avon School District 2024 Audit
Avon School District 2024 Audit
District
Financial Management
Report Highlights . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Financial Management. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2
How Should a School Board and School District Officials Effectively Manage
Fund Balance and Reserves?. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2
The Board and District Officials Appropriated Fund Balance That Was Not Needed. . . . 3
What Do We Recommend? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8
Audit Objective
Audit Period
Determine whether the Avon Central School District
(District) Board of Education (Board) and District July 1, 2018 – May 23, 2024
officials effectively managed fund balance and
reserves. Background
The District serves the Towns of Avon,
Key Findings Caledonia, Lima and York in Livingston
County and the Town of Rush in Monroe
The Board and District officials did not effectively
County.
manage fund balance and reserves.
l The Board-approved budgets overestimated The elected five-member Board is
appropriations by an average of approximately responsible for managing and controlling
$1.7 million per year which made it appear the District’s financial and educational
the District needed to appropriate $300,000 affairs. The Superintendent of Schools
of fund balance each year and increase real (Superintendent) is the chief executive
property taxes to close budget gaps. However, officer and is responsible for the District’s
the District incurred operating surpluses in all day-to-day management under the
five years we reviewed, totaling $8.2 million. Board’s direction.
Appropriating fund balance that is not needed The Business Manager is responsible
is, in effect, a reservation of fund balance that for administration and supervision of
is not provided for by statute and circumvents financial activities, including working with
the statutory limit. the Board and Superintendent to develop
l Six reserves totaling over $5 million had and administer the budget.
high balances that were not needed or
Quick Facts
used. For example, the District’s reserve for
unemployment expenditures will cover annual 2023-24 Appropriations $23.9 million
expenditures for 344 years and the debt Total Reserves as of
$13.4 million
reserve in the debt service fund had $866,000 June 30, 2023
in unidentified money that should be returned to
the general fund.
l The District lacked written multiyear financial and capital plans. This inhibited effective financial
management and justification for the levels of accumulated fund balance and reserves.
Recommendations
The audit report includes six recommendations to help improve the District’s financial management.
District officials generally agreed with our recommendations and indicated they planned to initiate
corrective action. Appendix B includes our comments on issues raised in the District’s response.
To properly manage fund balance, the board and school district officials should develop and adopt
reasonably estimated and structurally balanced budgets based on historical data or known trends in
which recurring revenues finance recurring expenditures. In preparing the budget, the board must
estimate the amounts the school district will spend and receive, the amount of fund balance that will be
available at fiscal year-end to use toward the upcoming year’s budget, and the expected real property
tax levy. Accurate and reasonable budget estimates help ensure that the tax levy is not greater than
necessary, the budget is presented transparently to the public, and surplus fund balance does not
exceed the legal limit. During the course of the fiscal year, as school district officials have a better
understanding of the results of financial operations, they should consider using anticipated surplus fund
balance to finance one-time expenditures, fund needed reserves or pay off debt.
School districts are also allowed to establish reserves (restricted fund balance) and accumulate funds
for certain future purposes (e.g., unemployment or retirement expenditures). While school districts are
generally not limited to the amount of funds that can be held in reserves, a board should ensure reserve
balances are reasonable. A board should balance the desire to accumulate funds for identified future
needs with the obligation to make sure real property taxes are not higher than necessary.
To help ensure that reserve balances do not exceed reasonable amounts necessary to address long-
term obligations or planned expenditures, a board should adopt a comprehensive written policy or plan
that states its rationale for establishing reserve funds, objectives for each reserve, maximum targeted
funding levels, conditions under which reserves will be used or replenished and a periodic review of
reserve balances to assess reasonableness.
The Board’s financial accountability policy requires a “long-term (three to five years) financial plan
for both capital projects and operating expenses.” Such plans enable officials to identify revenue and
expenditure trends, establish long-term priorities and goals, consider the impact of near-term budgeting
decisions on future fiscal years and assess the merits of alternative approaches (such as using surplus
fund balance or establishing and using reserves) to finance operations. Any comprehensive written
multiyear financial and capital plan should be monitored and updated on an on-going basis to help
ensure that decisions are made using the most accurate information available.
The Board’s budgets made it appear as though it needed to appropriate fund balance and increase real
property taxes to close projected budget gaps. In the 2018-19 through 2022-23 fiscal year budgets, the
Board appropriated a total of $1.3 million of fund balance – which should have resulted in operating
deficits – and increased the real property tax levy by a total of nearly $600,000 or 6 percent. However,
the District instead incurred operating surpluses in each of those five years totaling $8.2 million and the
appropriated fund balance was not used to finance expenditures (Figure 1).
In addition, the annual reserve report prepared by District officials as required by the Board’s reserve
policy was an inadequate tool to effectively manage reserves because it did not include an analysis of
the projected need to use reserve funds and contained inaccurate information (See the Officials Did Not
Develop Comprehensive Written Multiyear Financial and Capital Plans section).
Our review of the 14 reserve funds’ activity identified that the teachers’ retirement contribution reserve
was funded within the statutory limit and the employee benefit accrued liability reserve balance was
adequately supported. The five capital reserves were funded within voter-authorized levels and were
properly used. The remaining reserves may not be necessary or reasonably funded, as described
below. OSC has a Local Government Management Guide on reserves that can assist District officials
on the use of these and other reserve funds. See Figure 3.
While the District did not use this reserve balance6to pay off related debt or return the unidentified
balance to the general fund, the Business Manager provided schedules showing tentative plans to
use $605,000, or almost half, of the debt reserve balance as of June 30, 2023 to offset some costs
of the upcoming capital projects in 2024-25 and 2025-26 and reduce borrowing needs.
l Unemployment Reserve – In 2018-19 and 2019-20, District officials used this reserve to pay
for $15,932 in unemployment costs incurred during those years but did not use the reserve
to pay for any unemployment costs in 2021-22 and 2022-23. Based on the District’s average
annual unemployment expenditures of $3,186 over the last five years, this reserve’s balance
of approximately $1.1 million as of June 30, 2023 would cover applicable expenditures for over
344 years. In addition, given the recent increases in interest earnings, including over $47,000
in 2022-23, this balance will grow more significantly, with little need for it to fund any minimal
unemployment costs.
l Employees’ Retirement Contribution Reserve – The Board budgeted and officials recorded the use
of $20,000 from this reserve, in three of the last five years, toward annual retirement contributions
which averaged $218,967 over the five-year period. This reserve’s balance of $965,249 as of June
30, 2023 can fully cover almost four and a half years of retirement contributions, or would last over
48 years if the District continues its minimal usage of $20,000 per year.
2 Per New York State Local Finance Law, Section 165.00 and New York State General Municipal Law, Section 6-L
While it is a prudent practice for the Board and District officials to save for future expenditures by using
reserves, retaining excess funds in this manner results in a higher than necessary real property tax
burden on current taxpayers.
Officials Did Not Develop Comprehensive Written Multiyear Financial and Capital Plans
The Board and District officials did not transparently communicate and justify their financial decisions
by developing comprehensive written multiyear financial and capital plans as required by the Board’s
financial accountability policy. However, officials told us at the beginning of our audit, that they had
contracted with a consultant to help develop long-range financial plans. The consultant met with
the Board on March 25, 2024 and presented an analysis and projections of general fund revenues
and expenditures through 2028-29, and some general recommendations related to budgeting and
monitoring, which included creating reserves for potential electric bus purchases.
In addition, although the Board adopted a written reserve policy in 2017 that requires District officials
to provide a detailed annual reserve report to the Board to aid in managing reserve fund balances,
the reports did not contain an analysis of projected needs of the reserve funds in the upcoming fiscal
year, as required by the policy. In addition, the annual reserve report was not accurate. We identified
3 Funds reserved for tax certiorari judgments and claims pursuant to Education Law, Section 3651[1-a] that are not expended for the
payment of judgments or claims arising out of tax certiorari proceedings for the tax roll in the year the money is deposited to the fund and/or
that will not be “reasonably required to pay any such judgment or claim,” must be returned to the general fund on or before the first day of the
fourth fiscal year following the deposit of such money to the reserve fund.
Without complete and accurate information about reserve activity, and analysis of projected reserve
needs, the Board cannot make necessary and informed decisions to adequately manage reserve funds,
or adequately share and justify reserve planning and balances for taxpayers.
The annual reserve report did include a section on end-of-year financial practices and reserves
allocation which described some systemic budgeting procedures. These include routinely appropriating
“approximately $300,000 of current year funds as a revenue source for the coming year,” then
transferring any surplus funds in excess of the 4 percent statutory limit to reserves based on the
District’s long-term planning. However, the District had no documented long-term plan to support the
reserve balances it has accumulated this way. District officials also stated in the annual reserve report
that, while there is no established industry standard for reserve funds, the District is one of only 22
school districts in the State with at least 50 percent of an allowable budget set aside in various reserve
accounts. We confirmed that for the last three years, the District’s reserves (restricted fund balance)
exceeded 50 percent of its budget appropriations (Figure 4).
1. Develop and adopt budgets that include reasonable estimates for appropriations, revenues and
the amount of fund balance and reserves that will be available to fund operations.
2. Review and amend the reserve policy to address circumstances under which reserve funds will
be used or replenished.
3. Review reserve fund balances to determine whether the amounts are necessary and
reasonable. To the extent that they are not, transfers should be made to surplus fund balance,
where allowed by law, or to other reserves established and maintained in compliance with
statute.
4. Transfer remaining funds improperly held in the debt reserve in the debt service fund to the
general fund surplus fund balance.
5. Develop, adopt and periodically update comprehensive written multiyear financial and capital
plans to be used in conjunction with the annual budget process.
6. Ensure that District officials provide it with an accurate comprehensive annual reserve report,
with all components provided for in the District’s reserve policy, and use it to make informed
and documented decisions related to the funding and use of reserves to finance operations or
portions of capital projects or acquisitions and to justify accumulated reserve balances.
See
Note 1
Page 11
See
Note 2
Page 11
Note 1
The audit objective focused on the effective management of fund balance and reserves. The audit
team assessed the risk of fraud occurring that is significant within the context of this audit objective, as
required by generally accepted government auditing standards. Therefore, these audit results cannot
be used to conclude there is no fraud, theft or professional misconduct in the District’s operations.
Note 2
As discussed in detail in Appendix C, we reviewed the effectiveness of the Board and District officials’
budgeting practices, multiyear planning and monitoring of fund balance and reserves by reviewing and
analyzing the adopted Board policies and general fund budgets, results of operations, and funding
and use of fund balance and reserves. Our review and analysis determined that the Board and District
officials did not adopt realistic and transparent budgets based on historical data and known trends,
prepare multiyear financial and capital plans, or provide justification for the levels of accumulated fund
balance and reserves maintained. As a result, the District incurred operating surpluses in all five years
we reviewed, totaling $8.2 million, maintained excess fund balance and reserve levels, and levied more
taxes than necessary to fund District operations.
We conducted this audit pursuant to Article V, Section 1 of the State Constitution and the State
Comptroller’s authority as set forth in Article 3 of the New York State General Municipal Law. We
obtained an understanding of internal controls that we deemed significant within the context of the audit
objective and assessed those controls. Information related to the scope of our work on internal controls,
as well as the work performed in our audit procedures to achieve the audit objective and obtain valid
audit evidence, included the following:
l We interviewed District officials and Board members and reviewed Board and audit committee
meeting minutes, resolutions, policies and the annual reserve report to gain an understanding
of the District’s financial management policies and procedures, budgeting practices and the
monitoring of fund balance and reserves.
l We reviewed financial records to determine whether the District had operating surpluses or deficits
during our audit period and compared the operating results to the appropriated fund balance to
determine whether appropriated fund balance was used as budgeted.
l We reviewed the adopted general fund budgets from 2018-19 through 2023-24 to determine
whether they were reasonable and structurally balanced by comparing adopted budgets with
actual results of operations and analyzing significant expenditure and revenue budget-to-actual
variances.
¡ At the end of our audit fieldwork, we obtained year-to-date 2023-24 budget status reports, and
the adopted 2024-25 budget, to include an updated financial perspective in the report.
l We analyzed the fiscal year-end fund balance for the general fund and calculated surplus fund
balance as a percent of the upcoming year’s appropriations to determine whether the District was
in compliance with statute.
l We recalculated surplus fund balance by adding the unused appropriated fund balance to surplus
fund balance and compared the amount as a percentage of the upcoming year’s appropriations.
l We reviewed activity for all reserves to determine whether they were properly established and
used, and whether balances were reasonable as of June 30, 2023.
l We discussed multiyear financial and capital plans with District officials.
We conducted this performance audit in accordance with generally accepted government auditing
standards (GAGAS). Those standards require that we plan and perform the audit to obtain sufficient,
appropriate evidence to provide a reasonable basis for our findings and conclusions based on our
audit objective. We believe that the evidence obtained provides a reasonable basis for our findings and
conclusions based on our audit objective.
The Board has the responsibility to initiate corrective action. A written corrective action plan (CAP)
that addresses the findings and recommendations in this report must be prepared and provided to our
office within 90 days, pursuant to Section 35 of General Municipal Law, Section 2116-a (3)(c) of New
York State Education Law and Section 170.12 of the Regulations of the Commissioner of Education.
To the extent practicable, implementation of the CAP must begin by the end of the next fiscal year. For
Fiscal Stress Monitoring – Resources for local government officials experiencing fiscal problems
www.osc.ny.gov/local-government/fiscal-monitoring
Local Government Management Guides – Series of publications that include technical information
and suggested practices for local government management
www.osc.ny.gov/local-government/publications
Planning and Budgeting Guides – Resources for developing multiyear financial, capital, strategic and
other plans
www.osc.ny.gov/local-government/resources/planning-resources
Protecting Sensitive Data and Other Local Government Assets – A non-technical cybersecurity
guide for local government leaders
www.osc.ny.gov/files/local-government/publications/pdf/cyber-security-guide.pdf
Required Reporting – Information and resources for reports and forms that are filed with the Office of
the State Comptroller
www.osc.ny.gov/local-government/required-reporting
Research Reports/Publications – Reports on major policy issues facing local governments and State
policy-makers
www.osc.ny.gov/local-government/publications
Training – Resources for local government officials on in-person and online training opportunities on a
wide range of topics
www.osc.ny.gov/local-government/academy
osc.ny.gov