COMMONWEALTH OF PUERTO RICO. Basic Financial Statements and Required Supplementary Information. June 30, 2014

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1 Basic Financial Statements and Required Supplementary Information

2 BASIC FINANCIAL STATEMENTS AND REQUIRED SUPPLEMENTARY INFORMATION Fiscal Year Ended Commonwealth of Puerto Rico Honorable Alejandro García Padilla Governor Prepared by: Puerto Rico Department of the Treasury Juan Zaragoza Gómez, CPA Secretary of the Treasury Juan Flores Galarza, CPA Undersecretary of Treasury

3 Table of Contents Page(s) Independent Auditors Report 1 7 Management s Discussion and Analysis (Unaudited) 8 35 Basic Financial Statements: Government-Wide Financial Statements: Statement of Net Position Statement of Activities Fund Financial Statements: Governmental Funds: Balance Sheet 40 Reconciliation of the Balance Sheet of Governmental Funds to the Statement of Net Position 41 Statement of Revenue, Expenditures, and Changes in Fund Balances 42 Reconciliation of the Statement of Revenue, Expenditures, and Changes in Fund Balances of Governmental Funds to the Statement of Activities 43 Proprietary Funds: Statement of Net Position 44 Statement of Revenue, Expenses, and Changes in Fund Net Position 45 Statement of Cash Flows Fiduciary Funds: Statement of Fiduciary Net Position 48 Statement of Changes in Fiduciary Net Position Pension (and Other Employee Benefit) Trust Funds 49 Major Discretely Presented Component Units: Combining Statement of Net Position Combining Statement of Activities

4 Table of Contents Required Supplementary Information (Unaudited) Page(s) Schedule of Funding Progress Defined-Benefit Pension Plans 310 Schedule of Funding Progress Postemployment Healthcare Plans 311 Schedule of Employers Contributions 312 Schedule of Revenue and Expenditures Budget and Actual Budgetary Basis General Fund 313 Notes to Required Supplementary Information Combining and Individual Fund Financial Statements and Schedules General Fund: General Fund 319 Supplemental Schedule of Expenditures by Agency Budget and Actual Budgetary Basis Nonmajor Governmental Funds: Nonmajor Governmental Funds Combining Balance Sheet 325 Combining Statement of Revenue, Expenditures, and Changes in Fund Balances 326 Nonmajor Proprietary Funds: Nonmajor Proprietary Funds 327 Combining Statement of Net Position 328 Combining Statement of Revenue, Expenses, and Changes in Fund Net Position 329 Combining Statement of Cash Flows 330 Fiduciary Funds: Fiduciary Funds Combining Statement of Fiduciary Net Position Pension Trust Funds 333 Combining Statement of Changes in Fiduciary Net Position Pension (and Other Employee Benefit) Trust Funds 334

5 Table of Contents Page(s) Combining Statement of Changes in Assets and Liabilities Agency Funds 335 Nonmajor Discretely Presented Component Units: Nonmajor Discretely Presented Component Units 336 Combining Statement of Net Position Combining Statement of Activities 344

6 KPMG LLP American International Plaza Suite Muñoz Rivera Avenue San Juan, PR Independent Auditors Report The Honorable Governor and Legislature Commonwealth of Puerto Rico San Juan, Puerto Rico We have audited the accompanying financial statements of the governmental activities, the business-type activities, the aggregate discretely presented component units, each major fund, and the aggregate remaining fund information of the Commonwealth of Puerto Rico (the Commonwealth) as of and for the year ended, and the related notes to basic financial statements, which collectively comprise the Commonwealth s basic financial statements as listed in the table of contents. Management s Responsibility for the Financial Statements Management is responsible for the preparation and fair presentation of these financial statements in accordance with U.S. generally accepted accounting principles; this includes the design, implementation, and maintenance of internal control relevant to the preparation and fair presentation of financial statements that are free from material misstatement, whether due to fraud or error. Auditors Responsibility Our responsibility is to express opinions on these financial statements based on our audit. We did not audit the financial statements of the following entities, funds and activities: o Governmental Activities Puerto Rico Public Housing Administration, which represents 14.17% and 2.17% of the total assets and revenues, respectively, of the General Fund. Office for the Administration of the Sales and Acquisition Fund of the Puerto Rico Department of Housing, which represents 0.58% and 0.02% of the total assets and revenues, respectively, of the General Fund. Office for the Improvements of Public Schools, which represents 0.59% and 0.00% of the total assets and revenues, respectively, of the General Fund. Labor Development Administration, which represents 0.32% and 0.31% of the total assets and revenues, respectively, of the General Fund. Public Buildings Authority special revenue, debt service, and capital projects funds, which are nonmajor governmental funds that collectively represent 6.70% and 1.74% of the total assets and revenues, respectively, of the aggregate remaining fund information. KPMG LLP is a Delaware limited liability partnership, the U.S. member firm of KPMG International Cooperative ( KPMG International ), a Swiss entity.

7 Puerto Rico Infrastructure Financing Authority special revenue, debt service, and capital projects funds, which are non-major governmental funds that collectively represent 5.21% and 0.26% of the total assets and revenues, respectively, of the aggregate remaining fund information. The Children s Trust special revenue and debt service funds, which are non-major governmental funds that collectively represent 2.37% and 0.15% of the total assets and revenues, respectively, of the aggregate remaining fund information. Special Communities Perpetual Trust special revenue and debt service funds, which are non-major governmental funds that collectively represent 1.38% and 0.07% of the total assets and revenues, respectively, of the aggregate remaining fund information. Puerto Rico Maritime Shipping Authority debt service fund, which is a non-major governmental fund that represents 0.03% and 0.00% of the total assets and revenues, respectively, of the aggregate remaining fund information. These entities collectively represent 11.99% and 2.63% of the total assets and revenues, respectively, of the governmental activities. o Business-Type Activities Unemployment Insurance Fund, which is a major enterprise fund. Additional Lottery System, representing 71.64% and 51.30% of the total assets and revenues, respectively, of the Lotteries Fund, which is a major enterprise fund. Puerto Rico Medical Services Administration, which is a major enterprise fund. Puerto Rico Water Pollution Control Revolving Fund, which is a major enterprise fund. The Governing Board of Services, which is a non-major enterprise fund, representing 0.49% and 0.94% of the total assets and revenues, respectively, of the aggregate remaining fund information. The Puerto Rico Safe Drinking Water Treatment Revolving Loan Fund, which is a non-major enterprise fund representing 2.48% and 0.14% of the total assets and revenues, respectively, of the aggregate remaining fund information. The Disability Insurance Fund, which is a non-major enterprise fund representing 1.21% and 0.53% of the total assets and revenues, respectively, of the aggregate remaining fund information. The Drivers Insurance Fund, which is a non-major enterprise fund representing 0.39% and 0.21% of the total assets and revenues, respectively, of the aggregate remaining fund information. These entities collectively represent 99.99% and 69.62% of the total assets and revenues, respectively, of the business-type activities. o Discretely Presented Component Units The discretely presented component units listed in note 1(c) represent 78.11% and 95.25% of the total assets and revenues, respectively, of the aggregate discretely presented component units. 2

8 Those financial statements were audited by other auditors whose reports thereon have been furnished to us, and our opinions, insofar as they relate to the amounts included for the activities, funds, and component units indicated above, are based solely on the reports of the other auditors. We conducted our audit in accordance with auditing standards generally accepted in the United States of America. Those standards require that we plan and perform the audit to obtain reasonable assurance about whether the financial statements are free from material misstatement. An audit involves performing procedures to obtain audit evidence about the amounts and disclosures in the financial statements. The procedures selected depend on the auditors judgment, including the assessment of the risks of material misstatement of the financial statements, whether due to fraud or error. In making those risk assessments, the auditor considers internal control relevant to the entity s preparation and fair presentation of the financial statements in order to design audit procedures that are appropriate in the circumstances, but not for the purpose of expressing an opinion on the effectiveness of the entity s internal control. Accordingly, we express no such opinion. An audit also includes evaluating the appropriateness of accounting policies used and the reasonableness of significant accounting estimates made by management, as well as evaluating the overall presentation of the financial statements. We believe that the audit evidence we have obtained is sufficient and appropriate to provide a basis for our unmodified and modified audit opinions. Summary of Opinions Opinion Unit Governmental Activities Business-Type Activities Aggregate Discretely Presented Component Units General Fund Debt Service Fund COFINA Special Revenue Fund COFINA Debt Service Fund Unemployment Insurance Fund Lotteries Fund Puerto Rico Medical Services Administration Fund Puerto Rico Water Pollution Control Revolving Fund Aggregate Remaining Fund Information Type of Opinion Unmodified Unmodified Unmodified Unmodified Unmodified Unmodified Unmodified Unmodified Unmodified Unmodified Unmodified Qualified 3

9 Basis for Qualified Opinion on the Aggregate Remaining Fund Information The non-major governmental funds include a blended component unit (Puerto Rico Infrastructure Financing Authority (PRIFA)) that purchased Commonwealth (COFINA) bonds as an investment. As a result of the blended presentation of PRIFA, the investment in COFINA bonds are presented as an interfund loan due from the COFINA Debt Service Fund. The Commonwealth evaluated its ability to repay the COFINA bonds (interfund loan) due to the non-major governmental funds (PRIFA). However, we believe the Commonwealth s analysis did not adequately consider all relevant factors that could adversely affect the collectability of the interfund receivable balance of approximately $203 million as of, including the Commonwealth s recurring deficits, negative financial position, deterioration of economic conditions, and limited ability to access credit markets. As a result, we believe that such interfund loan is overstated and is not reported at its net realizable value as of, as required by U.S. generally accepted accounting principles. The amount by which this overstatement would affect the assets, fund balances and expenses of the aggregate remaining fund information has not been determined. Qualified Opinion In our opinion, based on our audit and the reports of other auditors, except for the effects of the matter described in the Basis for Qualified Opinion on the Aggregate Remaining Fund Information paragraph, the financial statements referred to above present fairly, in all material respects, the financial position of the aggregate remaining fund information of the Commonwealth as of, and the respective changes in financial position thereof for the year then ended in accordance with U.S. generally accepted accounting principles. Unmodified Opinions In our opinion, based on our audit and the reports of other auditors, the financial statements referred to above present fairly, in all material respects, the respective financial position of the governmental activities, the business-type activities, the aggregate discretely presented component units, and each major fund of the Commonwealth as of, and the respective changes in financial position and, where applicable, cash flows thereof for the year then ended in accordance with U.S. generally accepted accounting principles. Emphasis of Matters Uncertainty about Ability to Continue as a Going Concern Primary Government The accompanying basic financial statements of the Commonwealth have been prepared assuming that the Commonwealth will continue as a going concern. As discussed in note 2 (a) to the basic financial statements, the Commonwealth s recurring deficits, negative financial position, further deterioration of its economic condition, and inability to access the credit markets raises substantial doubt about the Commonwealth s ability to continue as a going concern. Management s plans in regard to these matters are also described in note 2 (a). The basic financial statements do not include any adjustments that might result from the outcome of this uncertainty. Our opinions are not modified with respect to this matter. Uncertainty about Ability to Continue as a Going Concern Major Discretely Presented Component Units The accompanying basic financial statements have been prepared assuming that the Commonwealth s major discretely presented component units will continue as a going concern. As discussed in note 2 (b) to the basic financial statements, the following major discretely presented component units have been identified as having substantial doubt about their ability to continue as a going concern. Management s plans in regard to these matters are also described in note 2 (b). The basic financial statements do not include any adjustments that might result from the outcome of these uncertainties. Our opinions are not modified with respect to these matters. 4

10 o Government Development Bank for Puerto Rico (GDB) The Commonwealth and its public entities have not been able to repay their loans from the Bank, which has significantly affected the Bank s liquidity and ability to repay its obligations. o Puerto Rico Highways and Transportation Authority (PRHTA) The financial statements of PRHTA as of and for the year then ended were audited by other auditors whose report thereon, dated December 18, 2015, included an emphasis of matter paragraph related to PRHTA s ability to continue as a going concern. As stated in PRHTA s independent auditors report, the PRHTA has had significant recurring losses from operations and does not have sufficient funds available to fully repay its various obligations as they come due. o Puerto Rico Electric Power Authority (PREPA) The financial statements of PREPA as of and for the year then ended were audited by other auditors whose report thereon, dated January 28, 2016, included an emphasis of matter paragraph related to PREPA s ability to continue as a going concern. As stated in PREPA s independent auditors report, PREPA does not have sufficient funds available to fully repay its various obligations as they come due and has entered into a process to restructure its long-term debt. o Puerto Rico Aqueduct and Sewer Authority (PRASA) PRASA has had significant recurring operating losses, working capital deficiencies, credit downgrades, and large non-discretionary capital expenditure requirements. PRASA currently faces heightened liquidity and market access risk and, as a result of PRASA s inability to obtain long-term financing, it has not been able to pay during fiscal year 2015 certain contractor obligations related to its Capital Improvement Program. PRASA s ability to obtain long term financing for its Capital Improvement Plan is uncertain. o University of Puerto Rico (UPR) The UPR has had significant recurring operating losses and has historically relied on GDB for liquidity and financial management support. Also, approximately 70% of the operating and non-operating revenues of the UPR consist of Commonwealth appropriations, grants, and contracts. The UPR s ability to continue receiving similar operational support and financing from the Commonwealth and GDB is uncertain. o Puerto Rico Health Insurance Administration (PRHIA) PRHIA has had significant recurring operating losses, working capital deficiencies, deficits, and financial dependency on the Commonwealth resulting in PRHIA facing heightened liquidity and market access risk. PRHIA has not been able to repay during fiscal year 2015 the principal balance due on a credit facility with GDB. PRHIA s ability to continue receiving operational support from the Commonwealth, or financing from GDB or the private sector, is uncertain. Other Liquidity Risks and Uncertainties As discussed in note 2 (c) to the basic financial statements, the Employees Retirement System of the Government of the Commonwealth of Puerto Rico (ERS), the Commonwealth of Puerto Rico Judiciary Retirement System (JRS), and the Puerto Rico System of Annuities and Pensions for Teachers (TRS) are at risk of becoming insolvent. As of, the fiduciary net position as a percentage of the total pension liability for JRS and TRS were 12.31% and 11.51%, respectively. In the opinion of management, based on information prepared by consulting actuaries, if measures are not taken to significantly increase 5

11 contributions, JRS will become insolvent by fiscal year 2018 while TRS will become insolvent between fiscal years 2018 and 2019 depending on the timing of receipt of contributions and TRS ability to dispose of illiquid assets. In addition, ERS fiduciary net position has been exhausted in the fiscal year. If the increasing and additional contributions stipulated by law are not paid in full on an annual basis, ERS will continue being rapidly defunded and gross assets will be exhausted. Further, annual cash flow estimates for the foreseeable future are presently estimated to be insufficient to cover ERS obligations. Finally, future employers contributions have been pledged to debt service, consequently, further depletion of ERS assets could result in an inability to pay benefits. Our opinions are not modified with respect to these matters. Adoption of New Accounting Pronouncements As discussed in note 1(cc) to the basic financial statements, in fiscal year 2014, the Commonwealth adopted the provisions of Governmental Accounting Standards Board (GASB) Statements No. 65, Items Previously Reported as Assets and Liabilities; No. 67, Financial Reporting for Pension Plans an Amendment of GASB Statement No. 25; and No. 70, Accounting and Financial Reporting for Nonexchange Financial Guarantees. Our opinions are not modified with respect to these matters. Restatement of Fund Balance As discussed in note 3 to the basic financial statements, the fund balance as of July 1, 2013 of the COFINA Debt Service Fund has been restated to correct a misstatement. Our opinions are not modified with respect to this matter. Other Matters Required Supplementary Information U.S. generally accepted accounting principles require that the management s discussion and analysis on pages 8 through 35, the schedules of funding progress on pages 310 and 311, the schedule of employers contributions on page 312, and the schedule of revenue and expenditures budget and actual budgetary basis General Fund on page 313, be presented to supplement the basic financial statements. Such information, although not a part of the basic financial statements, is required by the Governmental Accounting Standards Board who considers it to be an essential part of financial reporting for placing the basic financial statements in an appropriate operational, economic, or historical context. We have applied certain limited procedures to the required supplementary information in accordance with auditing standards generally accepted in the United States of America, which consisted of inquiries of management about the methods of preparing the information and comparing the information for consistency with management s responses to our inquiries, the basic financial statements, and other knowledge we obtained during our audit of the basic financial statements. We do not express an opinion or provide any assurance on the information because the limited procedures do not provide us with sufficient evidence to express an opinion or provide any assurance. Supplementary and Other Information Our audit was conducted for the purpose of forming opinions on the financial statements that collectively comprise the Commonwealth s basic financial statements. The combining and individual fund financial statements and schedules listed in the accompanying table of contents are presented for purposes of additional analysis and are not a required part of the basic financial statements. The combining and individual fund financial statements and schedules are the responsibility of management and were derived from and relate directly to the underlying accounting and other records used to prepare the basic financial statements. Such information has been subjected to the auditing procedures applied in the audit of the basic financial statements and certain additional procedures, including comparing and reconciling such information directly to the underlying accounting and other records used to prepare the basic financial statements or to the basic financial statements themselves, and other additional procedures in accordance with auditing standards generally accepted in the United States of America by us and the other auditors. In our opinion, based on our 6

12 audit, on the procedures described above, and the reports of other auditors, the combining and individual fund financial statements and schedules are fairly stated in all material respects in relation to the basic financial statements as a whole. June 30, 2016 Stamp No. E of the Puerto Rico Society of Certified Public Accountants was affixed to the record copy of this report 7

13 Management s Discussion and Analysis (Unaudited) Management s Discussion and Analysis This management s discussion and analysis section (MD&A) provides a narrative overview and analysis of the financial activities of the Commonwealth of Puerto Rico (the Commonwealth) for the fiscal year ended June 30, The MD&A is intended to serve as an introduction to the Commonwealth basic financial statements, which have the following components: (1) government-wide financial statements, (2) fund financial statements, and (3) notes to the basic financial statements. The MD&A is designed to (a) assist the reader in focusing on significant matters, (b) provide an overview of the Commonwealth s financial activities, (c) present an overview of results for the General Fund on a budgetary basis, and (d) highlight individual fund matters. The following presentation is by necessity highly summarized, and in order to gain a thorough understanding of the Commonwealth s financial condition, the financial statements, notes, and required supplementary information should be reviewed in their entirety. Financial Highlights The Commonwealth s Primary Government, which encompasses the Commonwealth s Governmental and Business-Type Activities, reported, in the government-wide financial statements, a net deficit position of approximately $49.7 billion at, comprising of approximately $15.4 billion in total assets and approximately $538 million in deferred outflows of resources, less approximately $65.5 billion in total liabilities and approximately $103 million in deferred inflows of resources. The net deficit position of the Commonwealth s Primary Government increased by approximately $2.7 billion during fiscal year The net deficit position for Governmental Activities increased by approximately $2.7 billion and the net position for Business-Type Activities decreased by $6.2 million during the fiscal year The Commonwealth s Governmental Activities had total revenue of approximately $17.8 billion for fiscal year 2014, which was lower than total expenses of approximately $20.8 billion, but represented an increase of approximately $1.6 billion in total revenue when compared to fiscal year The Commonwealth s Business-Type Activities had total revenue of approximately $1.5 billion for fiscal year 2014, which represented a decrease of approximately $89 million when compared to fiscal year Total expenses incurred by the Commonwealth s Primary Government in fiscal year 2014, including expenses of approximately $1.2 billion incurred by Business-Type Activities, were approximately $22.0 billion, a decrease of approximately $876 million when compared to total expenses incurred during fiscal year The total deficiency of revenue under expenditures and general obligation debt service payments in the General Fund (budgetary basis) for fiscal year 2014 was approximately $1.2 billion, consisting of the difference between total actual revenue of approximately $8.7 billion (excluding other financing sources), less the sum of total actual expenditures of approximately $9.2 billion and general obligation debt service payments of approximately $738 million (excluding other financing uses). The variance between the U.S. GAAP and budgetary basis deficits results from differences of accounting, entity, and perspective differences between budgetary reporting versus those established by U.S. GAAP and followed in these financial statements. The Commonwealth s Discretely Presented Component Units reported a net position of approximately $6.1 billion at, comprised of approximately $52.3 billion in total assets and approximately $321 8 (Continued)

14 Management s Discussion and Analysis (Unaudited) million in deferred outflows of resources, less approximately $44.8 billion in total liabilities and approximately $1.7 billion in deferred inflows of resources. The net position of the Commonwealth s Discretely Presented Component Units decreased by approximately $3.5 billion during fiscal year 2014, as compared to fiscal year The Commonwealth s Aggregate Discretely Presented Component Units had total revenue of approximately $13.2 billion (which includes $2.4 billion from the Primary Government) and total expenses of $16.7 billion for fiscal year The Commonwealth s management believes that there is substantial doubt as to the ability of the Primary Government (including the Governmental Activities carried out by certain blended component units) and of various discretely presented component units to continue as a going concern in accordance with Governmental Accounting Standards Board (GASB) Statement No. 56, Codification of Accounting and Financial Reporting Guidance Contained in the AICPA Statements on Auditing Standards. In addition, the Commonwealth s management believes that the pension trust funds, included as part of the fiduciary funds, carry a substantial risk of insolvency, if measures are not taken to significantly increase contributions to such funds. Reporting the Commonwealth as a Whole The Commonwealth as a whole consists of all departments, agencies, funds, functions, and public corporations that have been determined to meet the requirements for inclusion in the Commonwealth s financial reporting entity. The Commonwealth has considered all potential component units for which it is financially accountable and other organizations for which the nature and significance of their relationship with the Commonwealth are such that exclusion would cause the Commonwealth s basic financial statements to be misleading or incomplete. The Commonwealth s basic financial statements consist of three components: (ii) government-wide financial statements, (ii) fund financial statements, and (iii) notes to the basic financial statements. The fund financial statements include governmental, proprietary, and fiduciary funds that will be described later in this MD&A. The notes to the basic financial statements provide explanations and/or additional detail for all of the above types of financial statements and are considered an integral part of the financial statements. 9 (Continued)

15 Management s Discussion and Analysis (Unaudited) The following chart illustrates the structure of the Commonwealth for financial reporting purposes: 10 (Continued)

16 Management s Discussion and Analysis (Unaudited) Footnotes: (1) The Government-Wide financial statements report information of all of the non-fiduciary activities of the Commonwealth and its component units. (2) Primary operating fund of the Commonwealth. The financial resources received and used in the General Fund Operating Fund mostly includes: the General Fund budget, as approved by the Commonwealth s Legislature and as adjusted for timing and basis of accounting differences. The results of these operations are included in the General Fund column in the Fund Financial Statements. (3) OASA: Office for Administration, Sales and Acquisition Fund of the Puerto Rico Department of Housing (also known as CRUV, for its Spanish acronym). PRPHA: Puerto Rico Public Housing Administration. PRLDA: Puerto Rico Labor Development Administration. OIPS: Office for Improvement of Public Schools (also known as OMEP, for its Spanish acronym). The results of these operations are included in the General Fund column in the Fund Financial Statements. (4) Special Revenue Funds (including Federal Funds Fund, Pledge Funds Fund and others) are used to account for and report the proceeds of specific revenue sources that are restricted or committed to expenditure for specified purposes other than debt service or capital projects. Internal Revenue Funds includes only the General Services Administration and accounts for transactions within the Commonwealth s agencies. Other general-type funds include expenses or accruals incurred not appropriated in the annual General Fund budget and appropriations made by the Commonwealth s Legislature without a specific revenue source. The results of these operations are included in the General Fund column in the Fund Financial Statements. (5) The debt service fund accounts for and reports financial resources that are restricted, committed or assigned to expenditure for general long-term bonds principal, interest, and related costs other than bonds payable from the operations of proprietary fund types, pension trust funds, and component units, either blended or discretely presented. Long-term debt and interest due on July 1 st of the following fiscal year are accounted for as a fund liability if resources are available as of June 30 th for its payment. (6) The capital projects funds are used to account for and report financial resources that are restricted, committed, or assigned to expenditures for capital outlays, including the acquisition or construction of capital facilities and other capital assets. These capital expenditures may be for the primary government directly or for discretely presented component units and outside organizations and governments such as the municipalities of the Commonwealth and other applicable entities. (7) The Water Pollution Control Revolving Fund, administered by the Puerto Rico Environmental Quality Board, is authorized to enter into operating agreements and capitalization grant agreements with the U.S. Environmental Protection Agency (EPA), mostly for water infrastructure projects, under a joint cooperation agreement between the Environmental Quality Board, the Puerto Rico Infrastructure Financing Authority (PRIFA), the Puerto Rico Aqueduct and Sewer Authority (PRASA) and the Government Development Bank for Puerto Rico (GDB), where each entity has agreed to assume their corresponding responsibilities. (8) The Unemployment Insurance Fund accounts for amounts requisitioned for the Puerto Rico Unemployment Insurance Trust Fund, held by the U.S. Treasury, for payment of unemployment benefits and charges made to individual employers. (9) Also known as ASEM, for its Spanish Acronym. This fund accounts for the operations of the centralized health services, provided in support of hospitals and other functions offered by the member institutions and consumers of the complex known as Puerto Rico Medical Center. (10) Drivers Insurance Fund was created by Act No. 428 on May 15, It is used to account for contributions made by the drivers and their employers to provide a social security plan for the benefit of the drivers in Puerto Rico. The plan also includes payment of benefits for health and life insurance. (11) Disability Insurance Fund was created by Act No. 139 on June 26, It is used to account for disability benefits to remedy temporarily the loss of income as a result of disability caused by sickness or accident unrelated to the employment. 11 (Continued)

17 Management s Discussion and Analysis (Unaudited) (12) Safe Drinking Water Treatment Revolving Fund was created by Act No. 32 on July 7, It is administered, pursuant to Act No. 9 of June 18, 1970, as amended, by the Puerto Rico Department of Health (PRDOH). Pursuant to such act, the PRDOH, on behalf of the Commonwealth, is authorized to enter into operating and capitalization grant agreements with the EPA for lending activities. (13) Refer to Note 1(c) to the Basic Financial Statements. The following table summarizes the major features of the basic financial statements. Government- Fund Financial Statements Wide Financial Governmental Proprietary Fiduciary Statements Funds Funds Funds Scope Governmental The activities of Activities of the Instances in which activities, business the Commonwealth Commonwealth the Commonwealth type activities that are not that operate is the trustee or and discretely proprietary or similar to private agent for someone presented fiduciary, including businesses, else s resources, component education, health, including Lotteries. such as the units. public safety retirement plans services, for public among others. employees. Required financial Statement of net Balance sheet and Statement of net Statement of statements position and statement of position; statement fiduciary net statement of revenue, of revenue, position and activities. expenditures, and expenses and statement changes in fund changes in fund of changes in balances. net position; and fiduciary net statement of cash position. flows. Accounting basis and Accrual basis Modified accrual Accrual basis Accrual basis measurement focus and economic basis and current and economic and economic resources financial resources resources resources measurement focus. measurement focus. measurement focus. measurement focus. Type of asset/liability All assets and Only assets expected All assets and All assets and information liabilities, both to be used up and liabilities, both liabilities, both financial and liabilities that come financial and financial and capital, and both due during the year capital, and both capital, and both short-term and or soon thereafter; short-term and short-term and long-term. no capital assets long-term. long-term. or long-term obligations are included. Type of inflow/outflow All revenue and Revenue for which All revenue and All revenue and information expenses during cash is received expenses during expenses during the year, during the year or the year, regardless the year, regardless regardless of soon after the end of when cash is of when cash is when cash is of the year; received or paid. received or paid. received or paid. expenditures when goods or services have been received and payment is due during the year or soon thereafter. 12 (Continued)

18 Management s Discussion and Analysis (Unaudited) Government-Wide Financial Statements The government-wide financial statements provide readers a broad view of the Commonwealth s operations in a manner similar to a private-sector business. The statements provide both short and long-term information about the Commonwealth s financial position, which assists in assessing the Commonwealth s economic condition at the end of the fiscal year. These are prepared using the economic resources measurement focus and the full accrual basis of accounting. This basically means they follow methods that are similar to those used by most private businesses. They take into account all revenue and expenses connected with the fiscal year even if cash involved has not been received or paid. The government-wide financial statements include two statements: Statement of Net Position This statement presents all of the government s assets, liabilities, and deferred outflows and inflows of resources. Net position is the difference between (a) assets and deferred outflows of resources and (b) liabilities and deferred inflows of resources. Over time, increases or decreases in the Commonwealth s net position may serve as a useful indicator of whether the financial position of the Commonwealth is improving or deteriorating. Statement of Activities This statement presents information showing how the government s net position changed during the most recent fiscal year. All changes in net position are reported as soon as the underlying event giving rise to the change occurs, regardless of the timing of related cash flows. Thus, revenue and expenses are reported in this statement for some items that will not result in cash flows until future fiscal periods (such as uncollected taxes and earned but unused vacation leave). This statement also presents a comparison between direct expenses and program revenue for each function of the Commonwealth. Although one can think of the Commonwealth s net position as one way to measure whether the Commonwealth s financial health is improving or deteriorating, one may also need to consider other nonfinancial factors, such as changes in the Commonwealth tax structure, population, employment, debt levels, fiscal conditions, economic factors, availability to external markets and the condition of the Commonwealth s roads, bridges and buildings, in order to assess the overall health of the Commonwealth. In the statement of net position and the statement of activities, the operations of the Commonwealth are divided into the following activities: Governmental Activities Most of the Commonwealth s basic services are reported here, including education, health, public housing and welfare, public safety, economic development, general government and interest on long-term debt. Federal grants (intergovernmental), personal and corporate income taxes, consumption and use taxes, business and other taxes, transfers from lottery revenues, and bond or loan proceeds finance most of these activities. Also included in Governmental Activities are six blended component units, which are entities that, while legally separate from the Commonwealth, meet the blending criteria under GASB to be reported as part of the Primary Government. Business-Type Activities These activities are normally intended to recover all or a significant portion of their costs through user fees and charges to external users of goods and services. These Business-Type Activities of the Commonwealth include the operations of the following major funds: the Unemployment Insurance Trust Fund, the Lotteries Fund, the Puerto Rico Medical Services Administration (PRMeSA) and the Puerto Rico Water Pollution Control Revolving Fund (PRWPCRF). 13 (Continued)

19 Management s Discussion and Analysis (Unaudited) Discretely Presented Component Units Although legally separate from the Commonwealth, these discretely presented component units are important to the Commonwealth because the Commonwealth is financially accountable for them or the nature and significance of their relationship with the Commonwealth are such that their exclusion would cause the Commonwealth s financial statements to be misleading or incomplete. Discretely presented component units, presented in a separate column in these basic financial statements, are discretely presented principally because of the nature of the services they provide, the Commonwealth s ability to impose its will, principally through the appointment of their governing authorities, and because such component units provide specific financial benefits to, or impose financial burdens on, the Commonwealth. The Commonwealth classifies 48 separate legal entities as discretely presented component units, as disclosed in note 1 to the basic financial statements. The government-wide financial statements can be found immediately following this MD&A. Governmental and Proprietary Fund Financial Statements Financial statements prepared at the fund level provide additional details about the Commonwealth s financial position and activities. A fund is a grouping of related accounts that is used to maintain control over resources that have been segregated for specific activities or objectives. The Commonwealth uses fund accounting to help ensure and demonstrate compliance with finance-related legal requirements. The fund financial statements focus on individual parts of the Commonwealth government, reporting the Commonwealth s operations in more detail than the government-wide financial statements. Information presented in the fund financial statements differs from the information presented in the government-wide financial statements because the perspective and basis of accounting used to prepare the fund financial statements are different from the perspective and basis of accounting used to prepare the government-wide financial statements. The Commonwealth s governmental and proprietary funds types use different perspectives and accounting basis. The funds presented in the fund financial statements are categorized as either major or nonmajor funds as required by U.S. generally accepted accounting principles (U.S. GAAP). All of the funds of the Commonwealth can be divided into the following categories: Governmental Funds Most of the basic services provided by the Commonwealth are financed through governmental funds. Governmental funds are used to account for essentially the same functions reported as Governmental Activities in the government-wide financial statements. However, unlike the government-wide financial statements, the governmental fund financial statements focus on near-term inflows and outflows of expendable resources. They also focus on the balances of expendable resources available at the end of the fiscal year. Such information may be useful in evaluating the government s near-term financing requirements. This approach is known as the current financial resources measurement focus and the modified accrual basis of accounting. These statements provide a detailed short-term view of the Commonwealth s finances that assist in determining whether there will be adequate financial resources available to meet the current needs of the Commonwealth. Because the focus of governmental funds is narrower than that of the government-wide financial statements, it is useful to compare the information presented for governmental funds with similar information presented for the Governmental Activities in the government-wide financial statements. By doing so, readers may better understand the long-term impact of the government s near term financing decisions. Both the governmental fund balance sheet and the governmental fund statement of revenue, expenditures, and changes in fund balances provide a reconciliation to facilitate this comparison between governmental funds and the Governmental Activities. These reconciliations are presented on the page immediately following each governmental fund financial statement. 14 (Continued)

20 Management s Discussion and Analysis (Unaudited) The Commonwealth has four major governmental funds. That is, each major fund is presented in a separate column in the governmental funds balance sheet and in the governmental funds statement of revenue, expenditures, and changes in fund balances. The Commonwealth s four major governmental funds are: General Fund 1 Debt Service Fund COFINA Special Revenue Fund COFINA Debt Service Fund The remaining nonmajor governmental funds, which consist of funds from the blending of the Public Buildings Authority (PBA), the Children s Trust, PRIFA, the Special Communities Perpetual Trust (SCPT), the Puerto Rico Maritime Shipping Authority, and the Commonwealth s capital project funds, are grouped and presented in a single column in the governmental funds financial statements. The basic governmental funds financial statements can be found immediately following the government-wide financial statements. Proprietary Funds These funds are used to show activities that operate more like those of commercial enterprises. Because these funds charge fees for services provided to outside customers, including local governments, they are also known as enterprise funds. Proprietary funds provide the same type of information as the business-type activities in the government-wide financial statements, but in more detail. Like the government-wide financial statements, proprietary funds financial statements use the full accrual basis of accounting. There is no reconciliation needed between the government-wide financial statements for business-type activities and the proprietary funds financial statements. The Commonwealth has four major proprietary funds: (i) the Unemployment Insurance Fund; (ii) the Lotteries Fund, which includes the Lottery of Puerto Rico and the Additional Lottery System; (iii) PRMeSA; and (iv) and PRWPCRF. Other nonmajor proprietary funds are grouped and presented in a separate column in the proprietary funds financial statements. The basic proprietary funds financial statements can be found immediately following the governmental funds financial statements. Fiduciary Funds The Commonwealth is a trustee, or fiduciary, for its employees pension plans. It is also responsible for other assets that, because of a trust arrangement, can be used only for the trust beneficiaries. All the Commonwealth fiduciary activities are reported in a separate statement of fiduciary net position and of changes in fiduciary net position. The Commonwealth excluded these activities from the Commonwealth government-wide financial statements because the Commonwealth cannot use these assets to finance its operations. The Commonwealth is responsible for ensuring that the assets reported in these funds are used for their intended purposes. 1 The General Fund is the primary operating fund of the Commonwealth. The financial resources received and used in the General Fund mostly includes: the General Fund budgeted resources, as approved by the Commonwealth Legislature and as adjusted for timing and basis of accounting differences, and other financial resources outside the General Fund budget such as: federal funds, pledged funds, resources that otherwise would be accounted for in special revenue funds, and agencies with independent treasuries. 15 (Continued)

21 Management s Discussion and Analysis (Unaudited) The notes provide additional information that is essential to a full understanding of the data provided in the government-wide and the fund financial statements. The notes to the basic financial statements can be found immediately following the major component units combining financial statements. Required Supplementary Information/Supplementary and Other Information (Unaudited) The basic financial statements include a section of required supplementary information and other information immediately following its notes. This section includes information of funding progress and employer contributions for the Commonwealth s three separate retirement systems, including postemployment healthcare benefits, schedule of revenue and expenditures budget and actual budgetary basis General Fund, supplemental schedule of expenditures by agency budget and actual budgetary basis General Fund, and combining schedules for nonmajor governmental funds, nonmajor proprietary funds, fiduciary funds, and nonmajor discretely presented component units. Overall Financial Position and Results of Operations (Government-Wide) The following is an analysis of the financial position and changes in the financial position of the Commonwealth s Governmental Activities and Business-Type activities for fiscal year Net Position Condensed financial information from the statement of net position as of and 2013 is as follows (expressed in thousands): Governmental Activities Business-Type Activities Primary Government (As restated) (As restated) (As restated) Assets: Non-capital assets: Cash and investments $ 3,097,994 3,634, , ,319 3,912,157 4,407,282 Receivables, net 2,424,337 2,022, , ,035 3,024,073 2,588,944 Other 205, ,048 26,784 72, , ,142 Total non-capital assets 5,728,213 5,877,920 1,440,683 1,410,448 7,168,896 7,288,368 Capital Assets 8,139,962 8,281,703 65,430 59,205 8,205,392 8,340,908 Total assets 13,868,175 14,159,623 1,506,113 1,469,653 15,374,288 15,629,276 Deferred outflows of resources 537, , , ,304 Liabilities: Long-term liabilities 60,286,545 57,302, , ,380 60,873,614 57,868,773 Other liabilities 4,454,723 4,696, , ,233 4,587,918 4,808,172 Total liabilities 64,741,268 61,999, , ,613 65,461,532 62,676,945 Deferred inflows of resources 103, ,446 Net Position: Net investment in capital assets 3,587,555 3,749,901 65,229 58,763 3,652,784 3,808,664 Restricted 506, ,509 1,090,021 1,011,466 1,596,860 1,957,975 Unrestricted (deficit) (54,533,397) (52,431,815) (369,401) (278,189) (54,902,798) (52,710,004) Total net position (deficit) $ (50,439,003) (47,735,405) 785, ,040 (49,653,154) (46,943,365) 16 (Continued)

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