FCMAT
Tehama County Office of Education – Reeds Creek Elementary School District Report
Tehama County Office of Education
Extraordinary Audit of the
Reeds Creek Elementary School District
August 8, 2012
Joel D. Montero
Chief Executive Officer
Fiscal crisis & ManageMent assistance teaM
August 8, 2012
Larry Champion, Superintendent
Tehama County Office of Education
1135 Lincoln Street
PO Box 689
Red Bluff, CA 96080
Dear Superintendent Champion:
In February 2012, the Tehama County Office of Education and the Fiscal Crisis and Management
Assistance Team (FCMAT) entered into an agreement to provide an Assembly Bill 139 extraordinary
audit of the Reeds Creek Elementary School District. Specifically, the agreement states that FCMAT
will perform the following:
1. The Tehama County Office of Education has requested the FCMAT Team to
provide for the assignment of professionals to conduct an AB 139 Extraordinary
Audit. Pursuant to Education Code section 1241.5 (b), the Superintendent of
Tehama County has reason to believe that fraud, misappropriation of funds or
other illegal practices may have occurred and shall conduct a review of the Reeds
Creek Elementary School District.
The primary focus of this review is to provide the Tehama County Office of
Education and the district with reasonable assurances based on the testing
performed that adequate management controls are in place regarding the district’s
reporting and monitoring of financial transactions and that fraud, misappropria-
tion of funds or other illegal activities have not occurred. Management controls
include the processes for planning, organizing, directing and controlling program
operations, including systems for measuring, reporting, and monitoring perfor-
mance. The area of travel and conference and the expenditure of ASB Funds is
generally a high risk audit area in which potential fraud issues such as fictitious
employees or unauthorized misappropriation of assets may be detected. Specific
audit objectives will include evaluating the policies, procedures, and internal
controls and transactions performed by the district related to the following:
• The FCMAT Team will review all the revenues and expenditures related to the
transfer and\or disbursement of funds made by the district’s general fund to the
Associated Student Body account for the current and two prior fiscal years and
FCMAT
Joel D. Montero, Chief Executive Officer
. .
1300 17th Street - CITY CENTRE, Bakersfield, CA 93
.
301-4533 Telephone 661-6
.
36-4611 Fax 661-63
.
6-4647
422 Petaluma Blvd North, Suite. C, Petaluma, CA 94952 Telephone: 707-775-2850 Fax: 707-775-2854 www.fcmat.org
Administrative Agent: Christine L. Frazier - Office of Kern County Superintendent of Schools
determine if fraud, misappropriation of funds or other illegal activities have
occurred.
• The FCMAT Team will also sample test data from the current and two prior
fiscal years and include a review of the general fund expenditures in the areas
of sports, student incentives, employee reimbursements and staff appreciation
to determine if fraud, misappropriation of funds or other illegal activities
have occurred. Testing associated with this review will be based upon sample
selection and will not include the testing of the complete list of all transactions
and records for this period. Sample testing and review results are intended to
provide reasonable, but not absolute assurance as to the accuracy of the district’s
transactions and financial activity.
This final report contains the study team’s findings and recommendations. We appreciate the
opportunity to serve you and we extend our thanks to all the staff of the Tehama County Office
of Education and the Reeds Creek Elementary School District for their cooperation and assistance
during fieldwork.
Sincerely,
Joel D. Montero
Chief Executive Officer
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TABLE OF CONTENTS
Table of Contents
About FCMAT .........................................................................................iii
Introduction ............................................................................................1
Background ......................................................................................................1
Study Guidelines ............................................................................................2
Fieldwork .....................................................................................................................3
Scope and Procedures .............................................................................................3
Study Team.......................................................................................................5
Findings and Recommendations .....................................................7
Fraud Definition and Internal Controls ..................................................7
Occupational Fraud .................................................................................................7
Internal Controls ........................................................................................................7
Review of Transactions ...............................................................................11
General Fund and Revolving Account .............................................................11
Purchasing .................................................................................................................11
Vendor Payments and Employee Reimbursements ....................................12
Bank Reconciliations ..............................................................................................16
Billing and Reimbursement Weaknesses ........................................................17
Student Incentives and Staff Appreciation .....................................................18
Associated Student Body (ASB) ...............................................................21
The ASB Structure ...................................................................................................21
Financial Management .........................................................................................22
Board Policies, Records Retention, Donations, and Booster Club
Activities ..........................................................................................................29
Board Policies and Administrative Regulations ............................................29
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TABLE OF CONTENTS
Records Retention ...................................................................................................29
Donations ..................................................................................................................29
Booster Club Activities .........................................................................................30
Potential Fraud ..............................................................................................33
Appendices ......................................................................................35
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ABOUT FCMAT
About FCMAT
FCMAT’s primary mission is to assist California’s local K-14 educational agencies to identify,
prevent, and resolve financial and data management challenges. FCMAT provides fiscal and
data management assistance, professional development training, product development and other
related school business and data services. FCMAT’s fiscal and management assistance services
are used not just to help avert fiscal crisis, but to promote sound financial practices and efficient
operations. FCMAT’s data management services are used to help local educational agencies
(LEAs) meet state reporting responsibilities, improve data quality, and share information.
FCMAT may be requested to provide fiscal crisis or management assistance by a school district,
charter school, community college, county office of education, the state Superintendent of Public
Instruction, or the Legislature.
When a request or assignment is received, FCMAT assembles a study team that works closely
with the local education agency to define the scope of work, conduct on-site fieldwork and
provide a written report with findings and recommendations to help resolve issues, overcome
challenges and plan for the future.
Studies by Fiscal Year
90
80
70
60
50
40
30
20
10
0
92/93 93/94 94/95 95/96 96/97 97/98 98/99 99/00 00/01 01/02 02/03 03/04 04/05 05/06 06/07 07/08 08/09 09/10 10/11* 10/11**
*Projected
**Actual
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fo
rebmuN
FCMAT also develops and provides numerous publications, software tools, workshops and
professional development opportunities to help local educational agencies operate more effec-
tively and fulfill their fiscal oversight and data management responsibilities. The California
School Information Services (CSIS) arm of FCMAT assists the California Department of
Education with the implementation of the California Longitudinal Pupil Achievement Data
System (CALPADS) and also maintains DataGate, the FCMAT/CSIS software LEAs use for
CSIS services. FCMAT was created by Assembly Bill 1200 in 1992 to assist LEAs to meet and
sustain their financial obligations. Assembly Bill 107 in 1997 charged FCMAT with responsi-
bility for CSIS and its statewide data management work. Assembly Bill 1115 in 1999 codified
CSIS’ mission.
AB 1200 is also a statewide plan for county office of education and school districts to work
together locally to improve fiscal procedures and accountability standards. Assembly Bill 2756
(2004) provides specific responsibilities to FCMAT with regard to districts that have received
emergency state loans.
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ABOUT FCMAT
In January 2006, SB 430 (charter schools) and AB 1366 (community colleges) became law and
expanded FCMAT’s services to those types of LEAs.
Since 1992, FCMAT has been engaged to perform nearly 850 reviews for LEAs, including school
districts, county offices of education, charter schools and community colleges. The Kern County
Superintendent of Schools is the administrative agent for FCMAT. The team is led by Joel D.
Montero, Chief Executive Officer, with funding derived through appropriations in the state
budget and a modest fee schedule for charges to requesting agencies.
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INTRODUCTION
Introduction
Background
In February 2012 the Fiscal Crisis and Management Assistance Team (FCMAT) received a
request from the Tehama County Office of Education for an Assembly Bill (AB) 139 extraordi-
nary audit of the Reeds Creek Elementary School District. The county office identified potential
issues of occupational fraud and abuse by district employees, including the transfer of resources
from the district’s general fund to its Associated Student Body (ASB) account to pay for excess
costs related to an out-of-state field trip attended by staff, students and parent chaperones.
The district has experienced a turnover of key administrative positions over the last several
years, with a new superintendent/principal beginning in August 2008 and a new Chief Business
Official (CBO) in October 2010. The CBO candidate selected by the governing board had
no background in public education or school finance, giving the Tehama County Office of
Education cause for concern.
The county office developed an increasing level of concern over the district’s financial position,
questionable expenditures of the district’s general fund resources, and fundraising and expen-
ditures associated with Associated Student Body (ASB) activities, including transfers of general
fund resources to the ASB to cover excess costs of students’ out-of-state travel.
The county office requested that FCMAT conduct an extraordinary audit under the authority
of Assembly Bill 139 after this most recent series of events. FCMAT’s review of general fund
and ASB financial activities identified serious deficiencies in internal controls, governing board
policy, administrative regulations and operational procedures. These deficiencies, combined with
a lack of financial oversight from the district’s board, created an environment conducive to fraud,
misappropriation and/or mismanagement of district assets. FCMAT found numerous question-
able transactions, contributing to an increased possibility that fraud and/or abuse may have
occurred.
California Education Code section 1241.5(b) states the following:
. . . the county superintendent may review or audit the expenditures and internal
controls of any school district in his or her county if he or she has reason to believe
that fraud, misappropriation of funds, or other illegal fiscal practices have occurred
that merit examination. The review or audit conducted by the county superintendent
shall be focused on the alleged fraud, misappropriation of funds, or other illegal fiscal
practices and shall be conducted in a timely and efficient manner.
California Education Code Section 42638 (b) states the following:
If the county superintendent determines that there is evidence that fraud or misap-
propriation of funds has occurred, the county superintendent shall notify the governing
board of the school district, the State Controller, the Superintendent of Public
Instruction, and the local district attorney.
FCMAT’s review was requested and conducted to determine if sufficient evidence exists to
further investigate the findings, or if there is evidence of criminal activity that should be reported
to the local district attorney’s office for further investigation.
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INTRODUCTION
Study Guidelines
The study agreement between the county office and FCMAT specifies that FCMAT will perform
the following:
1. The Tehama County Office of Education has requested the FCMAT
Team to provide for the assignment of professionals to conduct an AB 139
Extraordinary Audit. Pursuant to Education Code section 1241.5 (b), the
Superintendent of Tehama County has reason to believe that fraud, misap-
propriation of funds or other illegal practices may have occurred and shall
conduct a review of the Reeds Creek Elementary School District.
The primary focus of this review is to provide the Tehama County Office of
Education and the district with reasonable assurances based on the testing
performed that adequate management controls are in place regarding the
district’s reporting and monitoring of financial transactions and that fraud,
misappropriation of funds or other illegal activities have not occurred.
Management controls include the processes for planning, organizing,
directing and controlling program operations, including systems for
measuring, reporting, and monitoring performance. The area of travel and
conference and the expenditure of ASB Funds is generally a high risk audit
area in which potential fraud issues such as fictitious employees or unauthor-
ized misappropriation of assets may be detected. Specific audit objectives will
include evaluating the policies, procedures, and internal controls and transac-
tions performed by the district related to the following:
• The FCMAT Team will review all the revenues and expenditures related to the
transfer and\or disbursement of funds made by the district’s General Fund to
the Associated Student Body account for the current and two prior fiscal years
and determine if fraud, misappropriation of funds or other illegal activities
have occurred.
• The FCMAT Team will also sample test data from the current and two prior
fiscal years and include a review of the general fund expenditures in the areas
of sports, student incentives, employee reimbursements and staff appreciation
to determine if fraud, misappropriation of funds or other illegal activities
have occurred. Testing associated with this review will be based upon sample
selection and will not include the testing of the complete list of all transactions
and records for this period. Sample testing and review results are intended
to provide reasonable, but not absolute assurance as to the accuracy of the
district’s transactions and financial activity.
FCMAT team members visited the district on April 10-12, 2012 to conduct interviews, obtain
and review documents, and collect data. This report is the result of those activities and is divided
into the following sections:
I. Introduction
II. Executive Summary
III. Fraud Definition and Internal Controls
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INTRODUCTION
IV. Review of Transactions
V. Associated Student Body (ASB)
VI. Board Policies, Records Retention, Donations, and Booster Club Activities
VII. Potential Fraud
VIII. Appendices
Fieldwork
Investigating allegations of fraud requires a number of steps, including interviews with potential
witnesses and gathering evidence from internal and external sources. FCMAT reviewed, analyzed
and tested business records including cash receipts, cash disbursements, bank reconciliations,
general ledger activity, vendor master files, financial reports, board policy and administrative
regulations, board meeting minutes, and internal documents secured from various departments
and from independent sources.
FCMAT also conducted interviews with district board members, former management personnel,
business office and other district staff, and parents, to obtain information related to general
business practices and events that transpired during the current and two preceding fiscal years,
including any alleged mismanagement, fraud or abuse.
Although there are many different types of fraud, embezzlement is common when employees
are in positions of trust and have access to assets. Embezzlement occurs when someone who is
lawfully entrusted with property takes it for his or her personal use. Common elements in all
fraud include the following:
• Intent, or knowingly committing a wrongful act
• Misrepresentation to accomplish the act
• Reliance on weaknesses in the internal control structure
• Concealment to hide the act
Scope and Procedures
The primary focus of this review is to determine and report to the Tehama County Office
of Education and the district whether there are reasonable assurances, based on testing, that
adequate management controls are in place for the district’s reporting and monitoring of financial
transactions, and whether fraud, misappropriation of funds or other illegal activities may have
occurred.
Specific audit objectives include evaluation of policies, procedures and internal controls and
transactions related to the following two areas:
• Transfers or disbursements of funds from the district’s general fund to the Associated
Student Body (ASB) account, and
• General fund expenditures for sports, student incentives, employee reimbursements and
staff appreciation
Fraud investigations consist of gathering adequate information about specific allegations and
performing audit test procedures to determine whether fraud has occurred; evaluating the loss
associated with the fraud; and determining who was involved and how it occurred.
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INTRODUCTION
During interviews, FCMAT team members asked questions pertaining to policies and procedures;
job responsibilities; fundraising activities and cash handling; purchasing and expenditure practices;
expenditure authorization; student activities including associated student body and athletics;
the receipt of cash, equipment and other assets from outside parties; and open-ended questions
designed to elicit information about other possible irregularities related to the scope of work.
FCMAT performed the following audit procedures to test cash disbursements:
• Reviewed the detailed general ledger activity for fiscal years 2009-10 and 2010-11, and
general fund activity through February 2012.
• Selected as a representative sample 242 expenditure transactions from the district’s
general fund and 238 expenditure transactions from the district’s revolving fund
recorded during fiscal years 2009-10 and 2010-11, and activity through February 2012.
Transactions selected focused on sports, student incentives, employee reimbursements
and staff appreciation. FCMAT requested and reviewed supporting documentation for
each transaction selected to verify whether appropriate supporting documentation and
authorization were present.
• Reviewed all revolving fund bank statements and reconciliations for the time period
stated above.
• Reviewed all expenditure transactions recorded in the district’s warrant register during
the time period stated above and a reconciliation of transactions selected for testing from
the general ledger.
FCMAT performed the following audit procedures to test transactions of the ASB account:
• Reviewed all transactions and available supporting documentation recorded in the ASB
checking account Excel workbook from July 2009 through February 2012. Transaction
review focused on verifying whether appropriate supporting documentation and
authorization were present. Special attention was focused on transactions that occurred
when general fund resources were transferred or deposited into the ASB account.
• Reviewed and assessed the tools used to record ASB financial activity.
• Reviewed all bank statements and reconciliations for the period indicated above.
• Searched for unrecorded transactions documented in ASB bank statements.
• Reconciled all activity recorded in the ASB account from July 2009 through April 2012
with bank records.
• Inquired of staff for information about transactions for which the district could not
locate documentation.
FCMAT’s findings and recommendations are the result of the above audit procedures.
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INTRODUCTION
Study Team
The study team was composed of the following members:
Marisa A. Ploog, CPA Julie Auvil, CPA, CGMA
FCMAT Fiscal Intervention Specialist FCMAT Fiscal Intervention Specialist
Merced, California Bakersfield, California
John Lotze
FCMAT Technical Writer
Bakersfield, CA
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FRAUD DEFINITIONS AND INTERNAL CONTROLS
Findings and Recommendations
Fraud Definition and Internal Controls
Fraud can include an array of irregularities and illegal acts characterized by intentional deception
and misrepresentations of material facts. The principal mechanism to deter fraud or illegal prac-
tices is strong internal controls. Internal controls include processes designed to provide reasonable
assurance that the district’s operations are effective and efficient, that its financial information is
reliable, and that its operations are in compliance with all applicable laws and regulations. The
internal control structure includes policies and procedures used by district staff, accounting and
information systems, the work environment and the professionalism of employees.
A material weakness is a deficiency in the internal control process whereby errors or fraud may
occur. Because of the weakness, employees in the normal course of business may not detect errors
in time to correct them. A material weakness also can be a violation of law or regulations.
Although all employees have some degree of responsibility for internal controls, the governing
board, superintendent and senior management are ultimately responsible.
Occupational Fraud
Occupational fraud occurs when an organization’s owners, executives, managers or employees use
their occupation to deliberately misuse or misapply the employer’s resources or assets for personal
benefit. The three main types of occupational fraud are asset misappropriation schemes, corrup-
tion schemes, and fraudulent financial statement schemes.
Asset misappropriation schemes include cash skimming, falsifying expense reports and/or forging
company checks. Corruption schemes involve an employee(s) using his or her influence in busi-
ness transactions to obtain a personal benefit that violates that employee’s duty to the employer
or the organization. Financial statement fraud includes the intentional misstatement or omission
of material information in financial reports.
Occupational fraud is one of the most difficult types of fraud and abuse to detect; however,
the most common method of detection comes from tips, which help prevent occupational
fraud three times as often as any other detection method. According to the 2012 Report to the
Nations conducted and published by the Association of Certified Fraud Examiners, corruption
schemes accounted for 33.4% of the 1,388 cases reported, with a median loss of $250,000.
There is a direct correlation between the perpetrator’s position and authority in an organization
and the losses incurred. Losses from fraud by owners and executives are three times higher than
those from fraud by managers and nine times higher than losses incurred as a result of fraud by
employees.
Internal Controls
Internal controls are the principal mechanism for preventing and/or deterring fraud or illegal
acts. Illegal acts, misappropriation of assets or other fraudulent activities can include an assort-
ment of irregularities characterized by intentional deception and misrepresentation of material
facts. Effective internal control processes provide reasonable assurance that a district’s operations
are effective and efficient, that the financial information produced is reliable, and that the organi-
zation operates in compliance with all applicable laws and regulations.
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FRAUD DEFINITIONS AND INTERNAL CONTROLS
Internal control elements provide the framework for an effective fraud prevention program.
An effective internal control structure includes the policies and procedures used by staff,
adequate accounting and information systems, the work environment, and the professionalism
of employees. The five interrelated elements of an effective internal control structure and their
definitions are included in the table below.
Internal Control Element Definition
Commonly referred to as the moral tone of the organization, the control environment
includes a code of ethical conduct; policies for ethics; hiring and promotion guidelines;
Control Environment proper assignment of authority and responsibility; oversight by management, the board
or an audit committee; investigation of reported concerns; and effective disciplinary
action for violations.
Identification and assessment of the organization’s objectives in order to develop a
Fraud Risk Assessment
strategy to react in a timely manner.
The development of policies and procedures to enforce the governing board’s direc-
Control Activities tives. These include actions by management to prevent and identify misuse of the dis-
trict’s assets, including preventing employees from overriding controls in the system.
Establish effective fraud communication. Ensure that employees receive information
Information and Communication regarding policies and opportunities to discuss ethical dilemmas. Establishing clear
means of communication within an organization to report suspected violations.
Conduct ongoing monitoring that includes periodic performance assessments to help
Monitoring
deter fraud by managers and employees.
The following is a partial list of deficiencies and omissions that can cause internal control failures:
• Failure to adequately segregate duties and responsibilities related to authorization.
• Failure to limit access to assets or sensitive data (e.g. cash, fixed assets, personnel records).
• Failure to record transactions, resulting in lack of accountability and the possibility of
theft.
• Failure to reconcile assets with the correct records.
• Unauthorized transactions, resulting in skimming, embezzlement or larceny.
• Lack of monitoring or implementation of internal controls by the governing board and
management, or because personnel are not qualified.
• Collusion among employees where little or no supervision exists.
A system of internal controls consists of policies and procedures designed to provide the
governing board and management with reasonable assurance that the organization is achieving its
objectives and goals. Traditionally referred to as hard controls, these include segregation of duties;
limiting access to cash; management review and approval; and reconciliations. Other types of
internal controls, typically referred to as soft controls, include management tone, performance
evaluations, training programs, and maintaining established policies, procedures and standards of
conduct.
A strong system of internal controls that includes all five of the above elements can provide
reasonable but not absolute assurance that the organization will achieve its goals and objectives.
Control Environment
The internal control environment is critical because it establishes the moral tone of the organiza-
tion. Though intangible, it begins with the leadership and consists of employees’ perception of
the ethical conduct displayed by the governing board and executive management.
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FRAUD DEFINITIONS AND INTERNAL CONTROLS
The control environment is a prerequisite that enables other components of internal control to
be effective in achieving the goals and objectives to prevent and/or deter fraud or illegal acts. It
sets the tone for the organization, provides discipline and control, and includes factors such as
integrity, ethical values and competence of employees.
The control environment can be weakened significantly by a lack of experience in financial
management and internal controls.
The leaders of the Reeds Creek Elementary School District, including the chief business official
(CBO), former superintendent/principal and board members, lack school finance experience.
Turnover in the CBO position two years ago left the district business office with management
that lacks the necessary experience in school business management, accounting and budgeting.
This lack of experience contributes to a weakened internal control environment because many
essential internal control elements, including proper assignment of authority and responsibility
and oversight by management, are overlooked, circumvented or improperly addressed.
It is not unusual to encounter school district board members and superintendents who lack
an in-depth understanding of school district finance and essential systems and controls, as is
the case in the district. In such cases it is normally the CBO who possesses this knowledge
and experience, and who then seeks to teach and advise the board and superintendent in these
areas. However, it is unusual and risky when all employees and managers who oversee a district’s
finances lack this knowledge and experience.
Although efforts are under way to train the current CBO, a lack of comprehensive understanding
of the unique characteristics of public education and school finance and considerable lack of
experience in the area of accounting and financial management have resulted in deficiencies in
many routine practices. These weaknesses severely hinder the district from ensuring that its assets
are properly managed and safeguarded.
Control Activities
Control activities are a fundamental element of internal control, and are a direct result of poli-
cies and procedures designed to prevent and identify misuse of the district’s assets, including
preventing any employee from overriding controls in the system. Control activities include the
following:
1. Performance reviews, which compare actual data with expectations. In
accounting and business offices, this most often occurs when budgeted
amounts are compared with actual expenditures to identify variances, and
followed up with budget transfers to prevent overspending.
2. Information processing, which includes the approvals, authorizations, veri-
fications and reconciliations necessary to ensure that transactions are valid,
complete and accurate.
3. Physical controls, which are the processes and procedures designed to safe-
guard and secure assets and records.
Segregation of duties includes zprocesses and procedures that ensure that no employee or group
is placed in a position to be able to commit and conceal errors or fraud in the normal course of
duties. In general, segregation of duties includes separating the custody of assets, the authoriza-
tion or approval of transactions affecting those assets, the recording or reporting of related
transactions, and the execution of the transactions. Adequate segregation of duties reduces the
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FRAUD DEFINITIONS AND INTERNAL CONTROLS
likelihood that errors will remain undetected by providing for separate processing by different
individuals at various stages of a transaction, and for independent review of the work.
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REVIEW OF TRANSACTIONS
Review of Transactions
General Fund and Revolving Account
To process payments to vendors, the district uses the accounts payable system, which is part of
the Escape financial system in which transactions are recorded. This system draws checks, also
referred to as warrants, from the county treasury where district cash balances are maintained.
The district also uses a revolving fund account at a financial institution rather than the county
treasury, as authorized by Education Code section 42800. Transactions processed through the
revolving fund account are not immediately recorded in the district’s financial system; rather,
they are recorded when the revolving fund account is replenished.
The district’s general ledger included a high volume of revolving fund transactions. Revolving
fund accounts are established for immediate needs, such as when the purchase must be made in
less time than it takes to use the purchase order/accounts payable system. Revolving funds should
have an established limit on individual expenditures and should not be used to circumvent the
normal purchase approval process. FCMAT took this into consideration when selecting transac-
tions for testing.
FCMAT tested a total of 480 transactions during fiscal years 2009-10, 2010-11 and 2011-12,
including 242 from the general fund and 238 from the revolving fund account, FCMAT’s review
of these transactions and related supporting documentation identified a significant lack of control
activities, which has contributed to numerous exceptions in the areas discussed below.
Purchasing
When properly implemented, purchase orders provide internal controls for managing expendi-
tures and budgets. Effective budget management and purchasing controls require the preparation
and approval of a purchase order, or similar expenditure request, in advance of all purchases.
FCMAT tested 242 expenditure transactions from the district’s general fund. Of these, 118
(48.8%) did not have a purchase order, indicating that the district’s use of a purchase order
system is inconsistent and inadequate.
Education Code section 41010 states the following:
[t]he accounting system used to record the financial affairs of any school district shall
be in accordance with the definitions, instructions, and procedures published in the
California School Accounting Manual . . .
Procedure 210-11 of the California School Accounting Manual (CSAM) provides the steps for
encumbering funds for purchases that require a purchase order. The district’s audited financial
statements for the fiscal year ending June 30, 2011 contained similar information in finding
2011-8.
The use of revolving fund accounts is not exempt from the purchase approval process; it is best
practice for all purchases a district makes using its revolving fund to follow strict criteria estab-
lished through policy, and be approved in advance using the district’s request for payment (RFP)
form to document approval.
FCMAT tested 238 of the district’s revolving fund account transactions and found that 165,
or 69.3%, did not have an RFP form as an authorizing document, and 176, or 74%, did not
include approval in any form in advance of the purchase. Of the 73 transactions that had an RFP
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REVIEW OF TRANSACTIONS
attached as supporting documentation, 60 forms, or 82%, did not have an authorizing signature,
and 10 forms did not include an amount to be paid. This inconsistent use of the request for
payment makes the system intended to control the authorization of purchases and expenditures
ineffective.
Recommendations
The district should:
1. Implement policies and procedures to require that a purchase order be used
for all purchasing transactions.
2. Require that a RFP form be used and completed properly for every revolving
fund account transaction.
3. Require that a management employee not associated with the purchase
provide prior approval for all expenditures.
4. Require that every completed RFP form include a payee, the amount to be
paid, and an authorizing signature before it is processed for payment.
5. Require that every purchase be initiated using a purchase order or request for
purchase form, followed by proper approval in advance of the purchase.
Vendor Payments and Employee Reimbursements
There are numerous inconsistencies in the district’s processes and criteria for vendor payments,
and many industry-standard criteria were absent from the transactions FCMAT reviewed.
Detailed supporting documentation (e.g. itemized receipts, invoices or time cards) indicating that
goods or services had been received by the district in exchange for payment was absent from 196
(41%) of the 480 transactions examined.
An absence of supporting documentation was especially prevalent among payments for referee
fees from the revolving fund account. The district’s standard practice for these payments was that
a notification would be submitted (usually by the superintendent/principal) in some form (oral,
e-mail or RFP) to the CBO, who would then generate a check from the revolving fund account.
Checks would be signed by the superintendent/principal and a second party, and then be given
to the person performing the referee duties. The district did not obtain supporting documenta-
tion in any form (e.g., invoice, time sheet, game schedule, sign-in sheet) substantiating that the
service was actually provided by the person collecting the fee.
Among the recipients of payments for referee fees were two district employees: a teacher and the
former superintendent/principal. The CBO reported that the amounts paid to these employees
through the revolving fund account were not included in their 2011 W-2s. This is not an
accepted practice; accepted practice is to make payments to employees, other than expense reim-
bursements, through a district’s payroll system to ensure that the correct payroll taxes are with-
held and paid by the district and that the amounts are included in the employees’ taxable income
reported on form W-2 at the end of each calendar year. Failure to process payments correctly
results in underpayment of employer and employee payroll taxes as well as underreporting of the
employee’s gross wages.
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The district was unable to provide FCMAT with documentation for 90 of the 94 transactions
from fiscal year 2009-10 selected for accounts payable testing. The selected transactions included
the following three payments to Sacramento Kings Account Executive, Season Ticket Sales:
• 8/27/09, $300.00 – annotated “basketball”
• 11/19/09, $3,000.00 – annotated “sports fundraiser down payment”
• 5/26/10, $200.00 – annotated “sports fundraiser”
The nature of these expenditures is questionable, but because of the absence of supporting
documentation FCMAT was unable to determine what the expenses were for. Multiple inquiries
regarding these transactions went unanswered by district staff. A complete list of transactions
selected for testing is provided in Appendix B.
The district made payments to vendors based on vendor statements, which contributed to a
duplication of payment to a vendor. Statements do not contain sufficient detail upon which
to base a payment; invoices are the industry standard supporting documentation required to
substantiate vendor payments because they provide the detail needed to validate the vendor’s
billing (e.g., date of purchase, quantities, detailed descriptions of items purchased). FCMAT also
noted a duplication of an employee reimbursement payment. Payments supported by an expense
claim were often followed by a second payment supported by a photocopy of the documentation
submitted.
During fiscal year 2010-11, documents indicate that the former superintendent/principal
approved his own reimbursement requests for 13 of 14, or 93%, of the reimbursement payments
made to him using the general fund accounts payable process.
FCMAT did not observe any evidence that these reimbursements had been reviewed by a third
party (e.g. the president of the governing board) with the authority to deny them if they were
inappropriate. The district was unable to provide any documentation regarding the reimburse-
ments to the superintendent/principal for fiscal year 2009-10 because they were unable to locate
source documents. Expenditure reimbursement claims paid during fiscal year 2011-12 year were
reviewed by the board pursuant to the superintendent/principal’s employment contract, and
included appropriate approval documentation. The district frequently uses its revolving fund
account and often ran separate individual accounts payable batches to rapidly process reimburse-
ments to the former superintendent/principal. This activity should have generated increased
scrutiny by the district’s CBO and board but did not. The perceived presence of an immediate
need for cash is a warning sign that greater control measures are needed and an indicator of
possible personal financial pressures that can lead to fraud. The former superintendent/principal
confirmed the precarious status of his personal finances during his interview with FCMAT.
The district used incorrect mileage reimbursement rates for all reimbursement requests submitted
after December 31, 2010. Each January 1, the Internal Revenue Service sets the mileage reim-
bursement rate for that calendar year. The mileage rate for calendar year 2010 was $0.50 per
mile. The rate increased to $0.51 per mile effective January 1, 2011 through June 30, 2011, and
to $0.555 per mile from July 1, 2011 to present. The district’s board policy (BP) 3350 adheres to
the IRS standard mileage reimbursement rate; however, the CBO has not changed the reimburse-
ment rate from $.50 per mile.
FCMAT’s review of the district’s general ledger revealed that some expenditures were charged
to incorrect object codes. For example, a conference registration fee was charged to object 1100
(certificated teachers’ salaries) and object 4300 (materials and supplies) instead of object 5200
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(travel and conferences). Inquiry as to the rationale behind the account coding revealed that
instead of coding expenditures to the correct object code and then preparing budget transfers if
funds were insufficient in the proper budget line, the CBO charged expenditures to any line in
which budget amounts were sufficient. The CBO has since changed this practice.
Cancelling vendor invoices by using a “Paid” stamp or other identifiable means is essential to
ensure that invoices are not paid a second time if they become separated from their payment
package. Of the 480 transactions reviewed by FCMAT, 372, or 78%, lacked a “Paid” stamp or
any other identifiable cancellation mark.
FCMAT’s review of selected revolving fund transactions and related supporting documentation
revealed that fewer than two signatures were obtained for several checks drawn on the account.
Although most checks had two signatures, indicating that it is the district’s practice to require
this, the district’s board policy does not specify the number of signatures required. Industry-
standard and best practices require two signatures on a check drawn from a district’s revolving
fund account to ensure that no single party has the ability to both write and sign a check. The
supporting documentation for 18 checks processed through the revolving fund account had a
single signature, and eight of these 18 transactions were negotiated by the bank with only one
signature. The remaining 10 transactions did not clear the bank and were subsequently cancelled
using a stop payment or because of nonsufficient funds (NSF), and re-drawn, or the subsequent
action could not be determined because no copy of the cancelled check was included in the bank
statement provided to FCMAT.
On seven occasions the CBO or the superintendent/principal signed checks made payable to
themselves. In addition, the district’s administrative assistant and CBO prepare checks drawn
on the revolving fund account and are also signatories on the account. The district’s controls
regarding signatures required for checks drawn from the revolving fund account do not follow
industry standards, which dictate that all checks should have two signatures. Industry-standard
segregation of duties prevents one individual from both writing and signing the same check,
prevents the person who generates or writes the check from being a signatory on the account,
and prevents the payee from also having authority to sign the check.
FCMAT’s testing revealed that the district has a standard practice of issuing a blank revolving
fund account check for local purchases. Revolving fund account documentation indicates that
checks are drawn and the date, payee and signature are completed; however, the amount of the
check is left blank. The district then gives the check to the requesting party and retains a copy.
The documentation pertaining to one transaction indicated that the check was presented to
the merchant at checkout where it was processed as an electronic payment and returned to the
employee with the amount printed directly on the check by the cash register. The purchaser
returned the fully completed check and the receipt to the district for their records. This process
was most commonly used for purchases made at Wal-Mart or Raley’s and was last used on March
10, 2011. In interviews, district staff reported that the practice was discontinued not because
the district realized it was inappropriate but because of a change in Wal-Mart’s and Raley’s store
policies.
Industry-standard practice is to always ensure that checks drawn from the revolving fund account
are complete, including amounts, before they are given to vendors for payment. Best practice is
to use a purchase order for all purchases of goods and services. In cases where local purchases are
necessary, a district issues a purchase order to the store or vendor, purchases are charged against
that purchase order, and the vendor then sends an invoice to the district for payment.
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If a store or vendor does not accept purchase orders, authorization for reimbursement can be
given to an employee, who then makes the purchase using their own funds and submits appro-
priate supporting documentation with a request for reimbursement. Another alternative is to
allow the use of a district credit card. However, because the use of credit cards requires strong
internal controls, FCMAT urges extreme caution in this area.
Two debit purchases were made from the revolving fund account without evidence of prior
authorization. The first was with Amazon Marketplace Internet for an audio cable and the other
to Harland Clarke for blank check stock. The Amazon order used the CBO’s personal e-mail
as a point of contact, and the district was unable to provide documentation of the transac-
tion with Harland Clarke. Because of the lack of documentation and the district’s inability to
provide verbal information regarding these transactions, FCMAT was not able to determine if
the revolving account was accessed via the account and bank routing numbers or whether debit
cards exist for the revolving account. Because debit cards provide immediate direct access to
funds, they present considerable opportunity for individuals to circumvent internal controls for
purchasing.
Many individuals interviewed stated that the booster club uses district vendor accounts to charge
their purchases. This may obligate the district to pay the vendor and seek subsequent reimburse-
ment from the booster club. Because booster clubs and parent-teacher organizations and associa-
tions are separate and distinct legal entities from a school district, it is standard and best industry
practice never to commingle the financial activities of these entities with those of the district, but
instead for them to maintain their own accounts with vendors.
Recommendations
The district should:
1. Initiate payments only after the submittal of an original vendor invoice.
Ensure that all detailed supporting documents, including a properly prepared
purchase order or RFP, detailed vendor invoices, properly executed employee
reimbursement claim form accompanied by supporting itemized receipts, and
receiving documents, are present before processing payment.
2. With the exception of reimbursements, process all payments to employees
through the payroll system.
3. Process payments for referee service through the general fund accounts
payable system unless advance notice is not possible. Ensure that payments
are supported by documentation such as a time card or game schedule
that includes dates and times of the referee service, and obtain a signature
acknowledging receipt of the check at the time of delivery.
4. Discontinue generating vendor payments based on statements.
5. Require that all purchases and reimbursements be approved by a party not
associated with the transaction.
6. Eliminate individual accounts payable batches to process reimbursements for
any one employee.
7. Use the correct IRS standard mileage rate for reimbursement purposes.
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8. Charge expenditures to the correct object code, and prepare budget transfers
to cover the expenditures when necessary.
9. Avoid duplicate payments by requiring that all invoices, receipts or other
relevant documents be stamped with the word “Paid” when payments are
processed.
10. Ensure that two signatures are obtained on all revolving fund account checks,
and that neither approval signatory is the payee.
11. Require that signatories to the revolving account be separate from and not
involved in generating the check.
12. Discontinue issuing revolving checks without dollar amounts for local
purchases.
13. Discontinue the use of debit cards for point of sale and online purchases.
14. Remove other entities from the district’s vendor accounts.
Bank Reconciliations
The district does not prepare bank reconciliations accurately or in a timely manner. Although the
district provided documents purported to be bank reconciliations, closer examination showed
that reconciliations had not been performed. FCMAT reviewed 33 monthly bank statements
for the revolving fund account for July 1, 2009 through March 31, 2012 and found that 11 of
the statements did not have any documentation representing a reconciliation attached. Of the
22 bank statements that indicated that the statement had been reconciled, 12 did not contain
any documentation indicating that an attempt was made to tie the bank balance to the book
balance. The remaining 10 bank statements had documentation indicating an attempt to tie the
bank balance to the district’s book balance; however, differences between the bank balance and
the book balance varied from $24.25 to $1,938.70, and the differences were not resolved. In
addition, from July 1, 2009 through May 31, 2010, 11 reconciliations contained a reconciling
item from May 13, 2008. It is industry-standard practice for items older than six months to be
declared stale dated, voided and the funds returned to the account.
These reconciliation issues resulted in six checks being drawn against the revolving fund account
when sufficient funds were not available, causing the district to incur nonsufficient funds (NSF)
fees totaling $177, $59 of which were subsequently reversed by the bank. Check number 309
for $94.89 was written on June 29, 2009 to the Reeds Creek School. The copy of this check
contained the notation, “pay out to balance account to $2000 – due to refunds from [illegible]
Bank and prior-year corrections.” No supporting documentation was included that provided
either a calculation of the amount or proof that the money belonged to the ASB account.
Without substantiation that this payment was rightfully due to the ASB fund, it could be
construed as a gift of public funds. Properly prepared bank reconciliations would have identified
any variance in the account balance resulting from fees, credits or other items, which normally
would be accounted for as they were incurred.
Preparing bank reconciliations is a routine business office process. The purpose of a bank recon-
ciliation is to balance what the bank shows for the account with what appears in the district’s
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books, including the general ledger or check register. When preparation, review and approval
duties are properly implemented, the reconciliation process serves as a strong internal control
system for cash management. Although there are a number of different commonly used formats
for preparing bank reconciliations, the methods and results are the same: the differences between
the bank balance and the book balance are identified, and any adjustments resulting from unre-
corded transactions or errors are resolved. A bank reconciliation template can be accessed at the
SpreadsheetShoppe.com website, and a step-by-step instruction guide to preparation is provided
in Appendix A.
Recommendations
The district should:
1. Ensure that district staff are trained in how to correctly prepare a bank recon-
ciliation.
2. Perform bank reconciliations that tie the bank’s reported balance to the
district’s books monthly.
Billing and Reimbursement Weaknesses
Inadequate internal controls leave a district vulnerable to fraud, theft or the purchase of inap-
propriate items. Fraud or theft schemes can take many forms. The most common frauds are the
following:
1. Check tampering
This is defined as “any scheme in which a person steals his or her employer’s
funds by forging or altering a check on one of the organization’s bank
accounts, or steals a check the organization has legitimately issued to another
payee.”*
2. Billing schemes
These are described as “any scheme in which a person causes his or her
employer to issue a payment by submitting invoices for fictitious goods or
services, inflated invoices, or invoices for personal purchases.”*
3. Expense reimbursement schemes
These are defined as “any scheme in which an employee makes a claim for
reimbursement of fictitious or inflated business expenses.”*
*Source: Fraud in Accounts Payable – How to Prevent It, by Mary S. Schaeffer, (John Wiley & Sons, Inc., 2008)
Although FCMAT found no evidence of check tampering, there were activities that meet the
identifiable criteria for both billing and expense reimbursement schemes. These types of activities
provided an employee with the ability to manipulate the district’s accounts payable processes for
the purpose of misappropriating cash. Specifically, FCMAT found the following:
• The former superintendent/principal submitted reimbursement claims and was paid for
travel expenses without providing detailed receipts. This allowed reimbursement of lunch
at $27 and dinners at $40 and $80 during a trip on which the former superintendent/
principal also brought his family. The absence of detailed receipts, values on receipts and
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stated purpose of these expenditures leaves questions regarding whether the cost of the
meals claimed were solely for the employee or if they also included the cost of meals for
family members or other individuals. It is not possible to determine the nature of the
expenditures without detailed receipts.
• On December 21, 2011, the former superintendent/principal was paid for a
reimbursement claim in the amount of $236 for mileage incurred on November 5,
2011 to pick up hockey equipment donated to the district. The former superintendent/
principal acknowledged that he did not deliver this equipment to the district. The former
superintendent/principal successfully pursued donations of hockey equipment from the
Sharks and Parks program on behalf of the district on two other occasions since October
2008. The district reimbursed the former superintendent/principal on May 14, 2009
and on November 15, 2010 for mileage associated with travel to pick up equipment
donations on October 18, 2008 and November 13, 2010, respectively. Acceptance of
the November 2010 donation was acknowledged and documented in board minutes on
December 16, 2010. FCMAT was unable to verify board action for the October 2008
donation because the district was unable to provide board minutes from October 2008
through March 2009.
• On two occasions the former superintendent/principal was paid $100 per day through
the district’s payroll system as an overnight stipend for chaperoning students during
the district’s 8th grade Washington D.C. trips. Reimbursements of $400 and $600
were paid on 5/28/2010 and 6/10/2011, respectively. Although Article 12.8 of the
district’s agreement with the certificated bargaining unit contains language pertaining to
compensation for accompanying students on overnight travel, the district’s employment
contract with the former superintendent/principal does not provide for the payment of a
stipend of this nature. The former superintendent/principal maintained that he followed
the certificated employees’ contract and requested payment of the stipend even though
his contract with the district did not indicate that he was subject to the certificated
bargaining unit’s terms regarding stipends. Further, although the district’s CBO sought
and obtained the approval of the governing board president for the payment made on
6/10/2011, the approval of the entire governing board should have been obtained for
the authorization of the payment because it was not a term provided in the employee’s
contract. For the 5/28/2010 payment, no supporting documentation indicating third-
party approval was provided and no board approval was obtained.
Student Incentives and Staff Appreciation
Numerous interviewees indicated that staff members and students were frequently beneficiaries
of items that could be construed as gifts. Article 16, Section 6 of the California Constitution
provides that the state Legislature cannot authorize any county, city, or other political subdivision
to make any gift of public funds to an individual or corporation. Gifts and awards to staff and/
or students may be considered a gift of public funds unless the board has an established policy
defining the parameters of allowable gifts and awards to staff in advance of any awards being
made. The district was unable to provide FCMAT with any such board policy, further indicating
that items given may constitute a gift of public funds.
In general, the constitutional prohibition against the gift of public funds is not an issue when a
direct and primary public purpose is being accomplished so that the public is receiving a benefit
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REVIEW OF TRANSACTIONS
as a result of the expenditure. However, if the gift is to an employee or other individual and there
is no benefit to the public as a result, it can be considered a gift of public funds.
The character of the expenditure is a significant factor when assessing whether something is a
gift. An item that has only an intrinsic value as a recognition of service, such as a plaque, would
not be considered a gift because the recognition benefits the public by encouraging meritorious
work. On the other hand, a gift such as a set of golf clubs upon retirement has an extrinsic value
and would violate the constitutional prohibition.
During a review of transactions, FCMAT identified purchases that confirmed that the types of
items reported as being provided to staff and students had been purchased during the time period
under review. The review of transactions also identified several other areas in which questionable
expenditures were made. Specifically, the district made the following questionable purchases:
• Jackets and/or sports uniforms embroidered with the individual’s first name, shirts
provided to staff to wear on specific days during the school year, and visors or hats for
both staff and students. Individual items, including sales tax, cost $4.60 to $76.26
depending on the item. 620 articles of clothing were purchased between 12/14/2010 and
5/2/2011 ($7,243.22).
• Parties for staff, including retirement parties, barbecues, Thanksgiving feast, picnics, and
a farewell party for a substitute ($1,415).
• Staff appreciation lunches ($726).
• Food and beverages for staff meetings and events before the start of the 2011-12 school
year ($101).
• Flowers delivered to the district CBO’s mentor ($52).
• Food, beverages and lunch provided to an interview team ($221.87).
• Ice cream, doughnuts and beverages for student assemblies ($45).
Even though the district did not sell these items, they can be considered competitive
food sales as defined by the California Department of Education, and could jeopardize
funding for the district’s food service program. These types of food items may also violate
the district’s wellness policy.
• The Farm Bureau awards banquet honoring Tehama County people of the year.
The district paid for eight tickets for attendees, including the teacher of the year, her
companion, and the former superintendent/principal and his wife ($200). FCMAT was
not able to determine who used the remaining four tickets.
• Student of the month lunches at the Elks Club, Kiwanis Club and Association of
California School Administrators, sometimes including students’ family members
($795).
• Parties, celebrations, assemblies and awards that featured ice cream, candy bars, candy
canes and donuts, which, depending on when they are served, may also be considered
competitive food sales, and may violate the district’s wellness policy and jeopardize its
food service program ($234).
• Gift cards for Baskin-Robbins ice cream store, used by a classroom teacher as a reward for
positive behavior ($22).
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• Sports awards party, which included the costs of bowling, shoe rental, miniature golf,
food and beverage for each student ($336).
• Reimbursements were made to the former superintendent/principal for meal tips that
ranged from 20% to 26%. Many school districts reimburse tips when reimbursing actual
meal costs, as is the case with Reeds Creek. However, it is best practice for a district
that does this to have a board policy that defines whether tips are allowed and what is
considered reasonable. Most districts consider it reasonable to have a policy allowing
reimbursement for tips of 15% to 18% on meals or food delivery. No such board policy
was provided to FCMAT.
• The following warrants were drawn from the district’s general fund and deposited into
the district ASB account:
• $7,500 on May 24, 2011, with a notation that it was to cover potential travel
emergency costs during an eighth grade trip to Washington, D.C.
• $1,145.01 on June 14, 2010, following an ASB account deficit after the May 2010
eighth grade trip to Washington, D.C.
• The following checks were drawn from the district’s revolving fund account and written
to the Reeds Creek School ASB:
• $562.50 on May 20, 2011, with a notation stating “skate party.”
• $464.92 on June 9, 2010, following an ASB account deficit after the May 2010
eighth grade trip to Washington, D.C.
Recommendations
The district should:
1. Implement a travel expenditure reimbursement policy that specifies
maximum amounts for meals, including tips.
2. Strictly adhere to the terms of individual employment contracts.
3. Increase scrutiny of expenditures to ensure that they are appropriate and do
not constitute a gift of public funds.
4. Obtain repayment from the ASB of any amounts paid to it from the general
fund and the revolving fund account that were not appropriate reimburse-
ments for expenditures on behalf of the district.
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Associated Student Body (ASB)
The ASB Structure
The district conducts extracurricular student activities using an associated student body (ASB)
structure that includes a student council and individual school-sponsored clubs. As a K-8 school,
the district has the option of operating either an organized or unorganized ASB.
An unorganized ASB is typically found in elementary schools because, as a rule, the students do
not govern the ASB organization. Usually it consists of the primary student body organization
and no additional clubs. Although students in unorganized ASBs raise funds, they usually have
more limited involvement in decisions about fundraising events and how the funds are to be
spent. The governing board delegates the authority to oversee the raising and spending of funds
to the principal, site administrator or another school employee, who is able to make all decisions
related to ASB operations and funds.
In an organized ASB, students play a much more active role. The students identify the purpose
for their fundraising activities and have primary authority over how ASB funds are spent, within
district-established guidelines. Under this structure, the students must vote on and approve all
expenditures of ASB funds. The role of the principal and advisor or advisors is to advise the
students and co-approve the students’ decisions. In addition, board policy must be followed, and
ASB expenditures and activities must directly benefit students. As with all other district expendi-
tures, approval must be obtained in advance of any ASB expenditure; this prior approval should
be evidenced through a proper purchase order process that includes the signature of a student in
the club, the club advisor and the principal.
An unorganized ASB is allowed to operate as if it is an organized ASB. A hybrid of both the
organized and unorganized ASB is also acceptable in K-8 school districts. Incorporating some of
the characteristics of an organized ASB structure for students in grades 6-8 better meets the needs
of students at that grade level, and the increased level of student participation in an organized
structure is valuable to student enrichment; however, it is not required. Because a similar level of
participation in decisions is not practical for students in grades K-5, it is permissible to carry out
activities for these students under an unorganized ASB structure.
If a district chooses to use a hybrid of organized and unorganized ASB, it must determine which
rules pertaining to organized ASBs will apply. For example, the principal or site administrator
could still make all decisions without students voting, but there could be a student council that
takes minutes of all its meetings. An ASB constitution and bylaws are important because they
provide a framework within which the organization will operate and state all of the policies and
rules for governance. Bylaws would only be required if the unorganized ASB determined that a
student council would be actively involved in the financial aspects of the ASB. Regardless of the
operational structure, the school site principal or administrator is directly responsible for student
body organization financial activities and must make sure that they conform to established poli-
cies and procedures.
The Reeds Creek Elementary School District’s ASB incorporates elements of both organized and
unorganized ASB structures. Like an organized ASB structure, the district has a student council
with five officers including a president, vice-president, secretary/treasurer, commissioner of build-
ings and grounds, and commissioner of sports and spirit. Each year students campaign for officer
positions on the student council, which serve as part of the school leadership team. The council
also includes class representatives from grades four through eight, the principal, and a certificated
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club advisor. The council officers have voting and decision-making rights at council meetings.
However, FCMAT’s review of the minutes from 2008-09 through February 2012 indicates that
students’ decision-making authority is focused on student spirit activities; only a small number
of notations indicated that students voted on and approved financial activities, and the dollar
amounts in these few instances were small. Class representatives do not have voting rights; their
role is to report information back to their classmates.
Financial Management
The district’s CBO manages the ASB accounting records. Financial activity is recorded in an
Excel workbook, separated into eight individual categories. Over the last three years, fundraising
has been done mostly for visual and performing arts activities, a gardening club, seventh grade
and eighth grade classes, and, to a far lesser degree, athletics, yearbook, student council and
book fair. Although these funds are separated, the fundraising revenue and expenditures for each
activity are not effectively isolated or documented. The workbook is not well structured as an
accounting tool; however, ASB software products are available that would make reconciliations
clean and simple.
Many individuals indicated that there was a lack of organization and structure for ASB fund-
raising activities. Until recently, fundraising activities were brought to the governing board as
informational items only but not formally approved by the board. California Education Code
section 48932 allows the governing board to authorize student body organizations to conduct
fundraising activities and makes it clear that the governing board is responsible for approving
fundraising events. The distribution of fundraising proceeds among various student activities
has been primarily at the discretion of the superintendent/principal. Staff reported that the use
of ASB funds did not appear to be equitable for all students, and that the gardening club, which
originated as part of the Gifted and Talented Education (GATE) program, is mostly parent-
driven and that its only activity currently is a small class garden.
Numerous individuals interviewed reported that the former superintendent/principal frequently
initiated fundraising activities by ordering or purchasing items to be sold by staff and/or students,
including cookie dough, candy bars and T-shirts, but delegated management of the sales to indi-
viduals who lacked the training or knowledge to manage these types of activities. Considerable
confusion existed about whether the fundraising efforts pertained to the district, the ASB, or the
PTA/booster club. Systems had not been established to inventory items purchased for student
sales, track distributions to students, or account for cash collections. Staff members reported
that managing these fundraisers became overwhelming and they simply did the best they could,
but felt very conflicted about handling the high volume of materials, cash and student activity.
Several individuals interviewed noted that there was little control over the handling of cash, and
often it would be collected from students and provided to the superintendent/principal to put in
the safe.
FCMAT reviewed supporting documentation for all financial transactions, all financial activity
reported in the ASB accounting records, and all bank statements of the ASB from July 1, 2009
through April 2012. This included a review of 96 deposits and 147 expenditures, and verification
of these against bank statements. FCMAT reconciled all ASB activity from July 2009 through
April 2012. As of April 2012, there was a balance of $8,245.11 in the ASB bank account.
FCMAT also reviewed all ASB meeting minutes for October 2008 through February 2012.
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The district maintained minimal supporting documents (e.g., expenditure receipts, invoices,
cash count sheets and other support related to cash receipts and cash disbursements) with each
month’s bank statement. Accounting records, supporting documentation and interviews with
district staff revealed a significant lack of structure and control over ASB activities. The ASB
conducted high-volume fundraising efforts with little to no control over fundraising or the
expenditure of funds. Staff who were assigned responsibility for overseeing student fundraising
activities were overwhelmed by this task and lacked a clear understanding of the essential controls
for cash handling. The district does not have systems to isolate, document and validate cash
receipts related to fundraising activities. Although a cash count sheet was noted as supporting
documentation for many deposits, the district does not use receipts to document actual cash
collections for individual transactions. In many cases little or no detail was provided to support
the fundraising activity or expenditure.
Cash Receipts
Fundraising proceeds deposited into the ASB bank account and recorded in the ASB workbook
totaled $75,218.81 during the 34 months reviewed. FCMAT reviewed these transactions and
supporting documentation and noted the following deficiencies:
• No revenue potential forms or budgets were prepared for fundraising efforts.
• No detailed accounting of revenue was generated for fundraising events.
• No pre-numbered, pre-printed standard receipts were used to document cash collections.
• Infrequent dual cash count procedures were documented on cash count sheets
supporting deposits.
• A lack of segregation of duties and chain of custody existed related to cash handling.
• Expenditures were deducted from cash proceeds prior to deposit.
• District funds were deposited into the ASB account.
Cash Disbursements
FCMAT reviewed recorded expenditures of $68,805.16 and supporting documentation for the
period indicated above and noted the following deficiencies:
• Inadequate segregation of duties.
• No use of a purchase order system for expenditures.
• Lack of board and/or student approval.
• Lack of supporting documentation for payment.
• Use of a debit card for point-of-sale purchases.
• Gifts, including gifts of cash, to staff and students.
• Expenditures that exceeded revenue generated.
• Amounts paid for salaries supported by an employee contract.
• Checks written to “cash.”
• A lack of dual signatures on checks.
• Use of an inadequately structured system for recording ASB transactions and reconciling
them with bank records.
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ASSOCIATED STUDENT BODY
The district does not record financial activity in the ASB accounting workbook in a timely
manner. Many transactions were entered based on the information provided in the bank state-
ments, and many lacked supporting documentation. Although there was indication on bank
statements that each had been reconciled, proper reconciliations of book balance to bank balance
were not present and balances did not reconcile. Frequently, reconciling items such as bank fees
or voids were recorded incorrectly or not at all. Multiple entries in the workbook were made
simply to achieve agreement with the balance reported by the bank.
A lack of controls over fundraising and expenditure activities, most significantly cash controls
and segregation of duties, presents the potential for unrecorded income or receipts. The district’s
lack of detailed accounting and adequate supporting documentation for cash collected from
fundraising activities made it impossible to ensure that all collections were ultimately depos-
ited into the ASB account. In several instances, amounts were deducted from collections for
reimbursement of costs associated with fundraising activities. The practice of advancing cash
to individuals and the absence of supporting documentation are also of great concern and raise
questions regarding its use.
Improper internal controls such as these leave the district vulnerable to misappropriation of
assets, illegal activities and fraud. In particular, deficiencies in cash controls create an environ-
ment that is conducive to skimming, which is the removal of cash before it is recorded, leaving
no direct audit trail to the theft. Two of the district’s last three independent audit reports, June
30, 2010 and June 30, 2011, have also identified weaknesses in the area of cash controls.
Contributions from the General Fund
FCMAT found four deposits from district general fund resources into the ASB account,
including a deposit of $464.92 on June 9, 2010, supported by a check drawn from the district’s
revolving fund account, and a deposit of $1,145.01 on June 15, 2010 via a check drawn from the
district’s general fund on the same date.
These two deposits were made after the eighth graders’ May 2010 trip to Washington DC. As of
May 31, 2010, the account balance shown in the ASB accounting workbook for the eighth grade
class was $(3,232.93) and the balance for the entire ASB account was $(1,410.32). No other
club balance was negative when the above deposits were made, and no club account other than
the eighth grade account had expenditures after April 15, 2010. Thus it is reasonable to associate
these deposits with the need to offset expenses in excess of the amount secured from fundraising
for this trip.
A third check was written to the Reeds Creek Student Body on May 20, 2011 in the amount of
$562.50 from the district’s revolving fund account. This check contained the notation, “Reimb
for skate party.” Although this check could not be traced directly to a correlating deposit in
the ASB account because of the lack of supporting documentation, a deposit of $1,707.50 was
made on the same date and was recorded in the ASB accounting records as $1,145.00 into the
yearbook account and $562.50 into the eighth grade account. The ASB accounting records also
indicated a correlating check for $562.50 made out to Funland on May 12, 2011.
A fourth deposit, of $7,500.00, was drawn from the general fund on May 24, 2011 and depos-
ited into the ASB account on the same date. This deposit coincided with the eighth graders’
May 23-27, 2011 trip to Washington DC. This warrant was drawn at the urgent direction of
the former superintendent/principal to the CBO via e-mail on May 24, 2011, citing expected
severe weather and likely airline delays. The e-mail elaborated on the potential unexpected costs
of delays and a budget shortfall of $2,500 for the trip. As of May 27, 2011, the ASB account’s
Fiscal crisis & ManageMent assistance teaM
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ASSOCIATED STUDENT BODY
available balances were $1,196.37 for the eighth grade class and $6,592.74 for the entire ASB
account. Without the $7,500 deposit from district resources on May 24, 2011, the balances
would have been $(6,303.63) for the eighth grade account and $(907.26) for the entire ASB.
There was no record of repayment to the district of these amounts and no substantiation for
their receipt. Education Code section 35330 states that district funds may not be used to pay the
expenses of pupils participating in field trips or excursions to out-of-state destinations; however,
expenses for instructors, chaperones, and other personnel participating in an authorized out-of-
state field trip may be paid with district funds. Further, the contribution to the ASB may be a gift
of public funds and a potential misappropriation of district assets.
FCMAT’s review of transactions related to this trip indicated poor financial planning. The nature
of several transactions indicates that, at a minimum, there is sufficient evidence to indicate a
perception of fraud, mismanagement and/or misappropriation of funds. Of greatest significance
are the following:
• Fifty-three ASB account debit card transactions, most of which had no receipt or
supporting documentation. An additional 43 debit card transactions were noted
associated with the Washington DC trip in May 2010. FCMAT also noted eight other
debit card purchases during the period of review that were not related to the trips to
Washington DC.
• Check number 1742 for $2,000.00 from the ASB account and made payable to the
former superintendent/principal, with no supporting documentation. Cash in the
amount of $961.00 was removed from the safe on May 12, 2011 for use during the
May 2011 Washington DC trip. At the time this cash was removed, the superintendent/
principal acknowledged the removal in writing and the CBO confirmed it. Staff reported
that each student was given $75.00 in cash at the beginning of the trip for lunches,
snacks and souvenirs. No formal accounting supported the distribution or expenditure
of this cash. This cash was also not accounted for in the ASB accounting workbook,
resulting in an understating of fundraising revenue and understating of expenditures for
the Washington DC trip.
• The purchase of two one-way plane tickets for the former superintendent/principal’s
spouse and infant to participate in the trip, at a total cost of $987.30. The district had
no documentation indicating that the amount was repaid or that the required $1,300
chaperone payment was deposited into the district’s ASB account.
• The distribution of cash to staff, students and chaperones.
• The use of general fund resources to pay for ASB expenditures that exceeded the amount
the ASB fundraised.
The district’s internal control deficiencies have led to an environment in which there is a poten-
tial for fraud, misappropriation and misuse of district assets. Specifically, the district has the
following deficiencies in four of the five previously discussed internal control elements:
• Control Environment
The district’s management has not established oversight procedures for ASB activities
to ensure that internal controls are in place and that departments follow board policies
and administrative regulations. Several activities should have alerted the district to these
deficiencies during the period reviewed but appear to have been largely ignored by the
district and school board.
Tehama CounTy offiCe of eduCaTion
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ASSOCIATED STUDENT BODY
• Control Activities
The board and management did not take actions to identify and prevent misuse of
the district’s assets. This allowed the former superintendent/principal to circumvent
appropriate cash handling and expenditure approval procedures, providing the
opportunity for fraud and misuse of district assets.
• Information and Communications
The district does not have fraud policies or methods for discussing ethical dilemmas with
senior managers or the board that assure employees that there will not be retaliation for
reporting suspected fraud.
• Monitoring
The district does not have a monitoring system that includes periodic performance
assessments to deter fraud.
The district has significant material weaknesses in its internal controls and operational policies
and procedures related to the management and oversight of ASB activities. The deficiencies
and exceptions noted during FCMAT’s review of the ASB financial records clearly demonstrate
inadequate financial management and provide sufficient evidence of the potential for fraud,
mismanagement and misappropriation of district funds.
Recommendations
The district should:
1. Temporarily discontinue all fundraising activities until standard policies,
administrative regulations and operating procedures are developed, docu-
mented and implemented.
2. Standardize ASB processes, procedures and forms to ensure that activities
are operated efficiently and in a manner that provides for accountability.
Procedures should include a system of checks and balances to ensure that
student funds are used appropriately.
3. Ensure that all financial activity accounted for in the ASB account is for
student activities of the ASB.
4. Ensure that all who participate in ASB finances are adequately trained and
understand what is expected of them.
5. Ensure that all fundraising events are brought before the board for review and
approval in advance each year. Include the purpose for each fundraising event
and a budget to ensure that activities are self-sustaining.
6. Use a standard ASB accounting system to manage ASB financial activity.
7. Implement a process for using and keeping receipts that includes the use of
pre-numbered, pre-printed receipt books. Each receipt should clearly identify
the origin of the payment, including the fundraising activity with which it is
associated, and have sufficient information to match it with a corresponding
deposit.
8. Require that all cash be counted and verified by two parties.
Fiscal crisis & ManageMent assistance teaM
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ASSOCIATED STUDENT BODY
9. Ensure that all expenditures are approved in advance and documented using a
purchase order system.
10. Prepare accurate bank reconciliations monthly.
11. Return all amounts paid from its general fund that are not substantiated as
appropriate district expenditures.
Tehama CounTy offiCe of eduCaTion
28
Fiscal crisis & ManageMent assistance teaM
29
BOARD POLICIES, RECORDS RETENTION, DONATIONS, AND BOOSTER CLUB ACTIVITIES
Board Policies, Records Retention,
Donations, and Booster Club Activities
During interviews and review of documents, FCMAT noted some items that are outside of the
original scope of work for this study but that may leave the district susceptible to misappropria-
tion of assets and fraud, and that thus warrant further investigation and corrective action by the
district.
Board Policies and Administrative Regulations
Board policies and administrative regulations are based on laws and regulations contained
in numerous documents, such as the California Education Code, Government Code, Public
Contract Code, federal regulations, case law and district practice. Board policies and regulations
provide guidelines and directives by which a district and its personnel operate, and they are a key
component of internal controls. Because they are based on laws and regulations that are revised
frequently, it is important to update board policies to reflect changes in legislation.
Most of the district’s board policies and administrative regulations had no date of adoption or
revision, making it impossible to determine if the policy has already been adopted, is in the
process of being revised, or is in draft and in the process of being adopted. As a result, many of
the district’s board policies and administrative regulations may not comply with current law and
district practice.
Records Retention
District personnel routinely struggled to locate supporting documents requested by FCMAT
and needed to substantiate the validity and appropriateness of district and ASB expenditures.
Although ultimately much of the documentation was provided as documents were brought from
several locations, the district was unable to provide 90 of the 94 fiscal year 2009-10 transactions
requested for accounts payable testing because these documents had been misplaced during the
CBO’s office move.
The district provided FCMAT with its Administrative Regulation (AR) 3580(a) regarding district
records, which complies with California Education Code, California Administrative Code Title
5, Commercial Code and Government Code and shows that the district is aware of its record-
keeping responsibilities. However, like many others, this AR was undated, making it impossible
to determine its status or authority.
Donations
Because donations of money and property are commonly offered to school districts, it is impor-
tant that districts have appropriate board policies regarding such donations.
The district provided FCMAT with Board Policy (BP) 3290(a) regarding gifts, grants and
bequests. This policy is also undated, which calls into question whether it has been adopted
by the governing board. However, district administrators believe this is the district’s policy
for accepting donations. The policy requires that donated items become district property and
requires the board to consider whether the item or items being offered provide suitable educa-
tional opportunities to its students, whether there are underlying costs that would be prohibitive,
and whether the donor is imposing conditions or restrictions upon the district.
Tehama CounTy offiCe of eduCaTion
30
BOARD POLICIES, RECORDS RETENTION, DONATIONS, AND BOOSTER CLUB ACTIVITIES
Since fiscal year 2008-09, the district has received an annual donation of hockey equipment from
Sharks and Parks, an organization affiliated with the San Jose Sharks professional hockey team.
The practice began when the former superintendent/principal traveled to San Jose to pick up
equipment on October 18, 2008. The mileage for that trip was reimbursed on May 14, 2009;
however, the district was unable to provide documentation showing that the board accepted
the donation. The next donation of equipment was picked up by the former superintendent/
principal on November 18, 2009, the mileage reimbursement paid on December 14, 2010, and
the donation accepted by the board at its December 16, 2010 board meeting. On November 5,
2011, the former superintendent/principal picked up another donation of hockey equipment,
with an estimated value of $4,000, from Sharks and Parks. The board approved the donation at
its December 15, 2011 meeting, and the mileage reimbursement for the former superintendent/
principal’s trip was paid on December 21, 2011. However, this equipment was never delivered to
the district; the former superintendent/principal reported that it was given to the Police Activities
League.
The actions of the former superintendent/principal and the governing board related to these
equipment donations, including the reimbursements of the superintendent/principal’s travel
costs, lend credence to the conclusion that the equipment obtained in 2011 should have been
delivered to the district.
Booster Club Activities
The booster club affiliated with the district conducts a large amount of fundraising. District
staff and booster club members reported a significant amount of confusion regarding the assign-
ment of fundraising activities. Individuals from both groups indicated that they were frequently
unaware of who was responsible for collecting fundraising proceeds or managing expenditures
associated with fundraising activities.
Many individuals interviewed stated that the booster club usually operates all concessions;
however, a review of transactions showed that at times the ASB has conducted these activities.
The former superintendent/principal played a significant role in booster club activities, including
cash collections, purchases, and planning and organization of events. The former superintendent/
principal was also on the booster club bank account and used a debit card for booster club
transactions. Until recently, all of the booster club bank statements were sent to the school
district. Also, as noted earlier, the booster club has been permitted to use district vendor accounts
to make purchases for booster club activities. This has contributed to delinquency in payments
to vendors because district staff and booster club members failed to manage the payment of the
charges. The booster club’s use of district vendor accounts and the lack of controls and strong
financial management in the district’s business office increase the likelihood that the district has
paid for booster club expenditures.
Booster clubs are separate legal entities from the district and are neither under the control of
nor the responsibility of the site administrator, superintendent, governing board, or students.
Conversely, booster clubs should not be involved in administering or supervising the activities of
student organizations. Booster club funds and district funds, including ASB funds, should never
be commingled. A booster club is to be distinct and separate from the district, with a separate
name and address and its own tax identification number. Booster clubs are responsible for their
own financial management and tax reporting. A district should in no way imply that it has any
responsibility for a booster club.
Fiscal crisis & ManageMent assistance teaM
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BOARD POLICIES, RECORDS RETENTION, DONATIONS, AND BOOSTER CLUB ACTIVITIES
Although booster clubs are separate entities, the district’s governing board can approve guidelines
for these groups to follow, and it is best practice for the governing board to exercise authority to
approve these groups’ fundraising activities. FCMAT found no board policy regarding auxiliary
organizations, and district staff were unable to provide any such policy or administrative regula-
tion. FCMAT’s Associated Student Body Accounting Manual and Desk Reference 2009 contains
more guidance pertaining to booster clubs and can be downloaded for free from www.fcmat.org.
Recommendations
The district should:
1. Immediately begin determining when each board policy or administrative
regulation was adopted and/or revised. Ensure that the documents are dated,
and keep policies and administrative regulations updated as they are adopted
and revised in the future.
2. Determine the date BP and AR 3580(a) were adopted or revised, and begin
gathering and properly organizing its records.
3. Revise board policy, administrative regulations and donation procedures to
ensure that the district takes possession of donated items within a reasonable
time after the board approves the donation.
4. Endeavor to collect the hockey equipment that Sharks and Parks donated to
the district on November 5, 2011.
6. Discontinue allowing the booster club to use district vendor accounts for
purchases.
7. Develop board policy that provides guidelines for auxiliary organizations.
8. Refer to FCMAT’s Associated Student Body Accounting Manual and Desk
Reference for guidance about the district’s and PTA/booster clubs’ respective
roles.
Tehama CounTy offiCe of eduCaTion
32
Fiscal crisis & ManageMent assistance teaM
33
POTENTIAL FRAUD
Potential Fraud
Based on the findings in this report, there is sufficient evidence to demonstrate that fraud,
mismanagement and misappropriation of the district’s general fund and ASB resources and assets
may have occurred. Significant material weaknesses in the district’s internal control environment
increase the probability of fraud and/or abuse. These findings should be of great concern to the
district’s governing board and the Tehama County Office of Education and require immediate
intervention to limit the risk of fraud and/or misappropriation of assets in the future.
In accordance with Education Code section 42638(b), action by the county superintendent shall
include the following:
If the county superintendent determines that there is evidence that fraud or misap-
propriation of funds has occurred, the county superintendent shall notify the governing
board of the school district, the state controller, the superintendent of public instruc-
tion and the local district attorney.
In accordance with Education Code Section 1241.5(b), the county superintendent shall report
the findings and recommendations to the governing board of the district at a regularly scheduled
board meeting within 45 days of completing the audit. The governing board of the school district
shall notify the county superintendent within 15 days after receipt of the report of its proposed
actions regarding the county superintendent’s recommendations.
Recommendation
The county superintendent should:
1. Notify the governing board of the Reeds Creek Elementary School District,
the state controller, the superintendent of public instruction, and the local
district attorney that fraud or misappropriation of district funds and/or assets
may have occurred.
Tehama CounTy offiCe of eduCaTion
34
Fiscal crisis & ManageMent assistance teaM
3355
APPENDDRICAEFST
Appendices
Appendix A
Sample Bank Reconciliation Steps
Appendix B
General Fund and Revolving Fund Transaction
Selections
Appendix C
Study Agreement
Tehama CounTy offiCe of eduCaTion
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DARPPAEFNTDICES
Fiscal crisis & ManageMent assistance teaM
3377
APPENDDRICAEFST
Appendix A
Sample Bank Reconciliation Steps
Following are the steps required to prepare an accurate and complete bank reconciliation:
• Enter the bank reconciliation period end date, the account description, bank
account number, preparer’s name and the date the reconciliation is being
performed.
• On the bank statement side:
The bank statement balance is transferred to the reconciliation.
Trace deposits listed on the bank statement to the books. Any deposits
recorded in the books but not yet shown on the bank statement are
deposits in transit. These can be shown individually on the bank
statement or as a list attached to the bank reconciliation with the total
transferred to the reconciliation, and are added to the bank balance.
Trace to the books each of the checks that the bank statement shows
as having cleared. Any checks recorded on the books but not yet listed
on the bank statement are outstanding checks. These can be shown
individually on the bank statement or as a list attached to the bank
reconciliation with the total transferred to the bank reconciliation, and
are subtracted from the bank balance.
Calculate the adjusted bank balance.
• On the general ledger or book side:
Transfer the balance per the revolving fund check register to the
reconciliation.
Review the bank statement to determine if other additions or deposits
are included on the bank statement but not in the check register. These
items would be additions to the book/general ledger/check register
balance. Such items could include interest paid on the account,
amounts the bank has collected on behalf of the district, or fees waived
by the bank.
Review the bank statement to determine if there are items that have
been subtracted in the bank statement but that are not included in the
check register. These items would be deductions to the book/general
ledger/check register balance. Such items could include bank fees,
ACH/debit transactions or NSF checks.
Identify any errors made by the bank or district in recording various
cash transactions in the “other” category on the statement.
Calculate the adjusted book balance.
Tehama CounTy offiCe of eduCaTion
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DARPPAEFNTDICES
• After completing these steps, the bank and the book balances should be the
same. If there are differences, they should be investigated until the difference
has been resolved.
• All items that were recorded/recognized by the bank but not included in the
check register should now be recorded in the check register.
• Copies of any supporting documentation should be kept with the bank
reconciliation.
• The preparer should then provide the completed reconciliation and any
supporting documents to his or her supervisor for review and approval.
Fiscal crisis & ManageMent assistance teaM
3399
APPENDDRICAEFST
Appendix B
General Fund and Revolving Fund Transaction
Selections
Tehama CounTy offiCe of eduCaTion
4400
DARPPAEFNTDICES
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16
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71.64
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86
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7755
APPENDDRICAEFST
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72
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03
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7777
APPENDDRICAEFST
Tehama CounTy offiCe of eduCaTion
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gnitseT
tnarraW
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23
00.852
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26.43
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000-000-043-4095-0072-0000-0-0000-10
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7788
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kcehC
84.41
tnuomA
eciovnI
latoT
7799
APPENDDRICAEFST
Appendix C
Study Agreement
Tehama CounTy offiCe of eduCaTion
8800
DARPPAEFNTDICES
Fiscal crisis & ManageMent assistance teaM
8811
APPENDDRICAEFST
Tehama CounTy offiCe of eduCaTion
8822
DARPPAEFNTDICES
Fiscal crisis & ManageMent assistance teaM
8833
APPENDDRICAEFST
Tehama CounTy offiCe of eduCaTion
8844
DARPPAEFNTDICES
Fiscal crisis & ManageMent assistance teaM