Investment Policy Compliance
The Audit Committee recommends that:
(1)monthly reporting procedures be put in place by the Chief Financial Officer and
Treasurer, or her designate, relating to the investing of City Funds. Such reporting
procedures to include details of all investments held and maturity dates of such
investments. The review of monthly reports be conducted by the Chief Financial Officer
and Treasurer, or her designate, independent of the investment function and include an
analysis as to whether or not the City's investment policies and procedures are complied
with. Evidence of the review be documented in writing. Immediate and appropriate
action be taken for all instances of non compliance;
(2)the Chief Financial Officer and Treasurer, or her designate, seek legal advice and
clarification relating to the scope of the Council approved policy entitled "Investment
Policy and Procedures" and determine whether or not such policy applies to Agencies,
Boards and Commissions. If it is determined that the policy does apply to these entities,
the Chief Financial Officer and Treasurer, or her designate, forward the policy to staff
of all Agencies, Boards and Commissions for which the policy is deemed to be
applicable. All applicable Agencies, Boards and Commissions be advised that they are
required to comply with such policy;
(3)where practical, consideration be given to the consolidation of Agencies, Boards and
Commissions investing activities by the Chief Financial Officer and Treasurer, or her
designate. In addition, the decision on whether to consolidate should consider whether
or not the services of outside professional investment managers are utilized, the
practicality based on dollar amounts and the average length of terms investments are
held, the types of investments allowed under legislation and the degree of control
exercised by the City over the Agencies, Boards and Commissions;
(4)a reporting procedure be put in place by the Chief Financial Officer and Treasurer,
or her designate, relating to the investing activities of those Agencies, Boards and
Commissions for which the policy is deemed applicable. The reporting procedure be
consistent with those recommendations as outlined under Recommendation 1;
(5)consolidated financial reporting of all City investments be reported to Council on a
quarterly basis;
(6)the Chief Financial Officer and Treasurer, or her designate, take immediate action
to ensure compliance with policy limits on maximum amounts and durations of specific
investments;
(7)the document approved by Council entitled "Investment Policy and Procedures" be
finalized, particularly in terms of addressing key management administrative
procedures;
(8)performance benchmarks for investment returns be set for those funds
administered by the City without an established performance benchmark;
(9)the investment policy and procedures manual be amended and updated to include
the York Employees' Pension and Benefit Fund. Clarification be sought in regards to the
responsibility for the investment of the assets of this fund; and
(10)the Chief Financial Officer and Treasurer, or her designate, be requested to
provide a complete and updated reconciliation of all investment balances at the City.
This information be submitted to senior staff for their review and approval. Evidence of
approval be documented in writing. Specific deadlines be set for the preparation of such
reconciliations. Reconciliation of the investment portfolio to the general ledger be
performed on a monthly basis for all investment funds.
The Audit Committee reports, for the information of Council having:
(1)requested the City Auditor to report to the Audit Committee on any comments he may
have with respect to the performance benchmarks, as set out in Recommendation No. (8)
above;
(2)requested that the report from the City Solicitor requested in Recommendation No. (2) be
submitted to the Audit Committee and the A.B.C. Reduction Task Force as soon as possible;
(3)subject to the opinion of the City Solicitor, requested the City Auditor to report to the
Audit Committee on the status of the Agencies, Boards and Commissions with respect to
Investment Policy Compliance; and
(4)forwarded the reports (February 1, 1999) from the City Auditor and (March 31, 1999)
from the Chief Financial Officer and Treasurer to the A.B.C. Reduction Task Force for
information.
The Audit Committee submits the following report (February 1, 1999) from the City
Auditor:
Recommendations:
It is recommended that:
(1)monthly reporting procedures be put in place by City Finance staff relating to the
investing of City Funds. Such reporting procedures to include details of all investments held
and maturity dates of such investments. The review of monthly reports be conducted by staff
independent of the investment function and include an analysis as to whether or not the City's
investment policies and procedures are complied with. Evidence of the review be documented
in writing. Immediate and appropriate action be taken for all instances of non compliance;
(2)City Finance staff seek legal advice and clarification relating to the scope of the Council
approved policy entitled "Investment Policy and Procedures" and determine whether or not
such policy applies to Agencies, Boards and Commissions. If it is determined that the policy
does apply to these entities, management of the City Finance Department forward the policy to
staff of all Agencies, Boards and Commissions for which the policy is deemed to be
applicable. All applicable Agencies, Boards and Commissions be advised that they are
required to comply with such policy;
(3)where practical, consideration be given to the consolidation of Agencies, Boards and
Commissions investing activities by the City Finance staff. In addition, the decision on
whether to consolidate should consider whether or not the services of outside professional
investment managers are utilized, the practicality based on dollar amounts and the average
length of terms investments are held, the types of investments allowed under legislation and
the degree of control exercised by the City over the Agencies, Boards and Commissions;
(4)a reporting procedure be put in place by City Finance staff relating to the investing
activities of those Agencies, Boards and Commissions for which the policy is deemed
applicable. The reporting procedure be consistent with those recommendations as outlined
under Recommendation 1;
(5)consolidated financial reporting of all City investments be reported to Council on a more
regular basis than once a year;
(6)Management take immediate action to ensure compliance with policy limits on maximum
amounts and durations of specific investments;
(7)the document approved by Council entitled "Investment Policy and Procedures" be
finalized, particularly in terms of addressing key management administrative procedures;
(8)performance benchmarks for investment returns be set for those funds administered by
the City without an established performance benchmark;
(9)the investment policy and procedures manual be amended and updated to include the
York Employees' Pension and Benefit Fund. Clarification be sought in regards to the
responsibility for the investment of the assets of this fund, and
(10)appropriate staff be requested to provide a complete and updated reconciliation of all
investment balances at the City. This information be submitted to senior staff for their review
and approval. Evidence of approval be documented in writing. Specific deadlines be set for
the preparation of such reconciliations. Reconciliation of the investment portfolio to the
general ledger be performed on a monthly basis for all investment funds.
Background:
The Investment Policy and Procedures manual approved by Council in January 1998 requires
that the "Treasurer of the City shall establish an annual process of independent review by the
City's Auditor. This review will provide assurance of compliance with governing legislation,
this investment policy and procedures established by the Treasurer of the City."
This report complies with the direction of Council and includes other observations noted
during the course of the review.
Comments:
This review has been conducted as of December 31, 1998 in order to coincide with the final
year end of the City.
As at December 31, 1998 the City's investment portfolio being managed by the City's Finance
Department, consisted of approximately $2,498,000,000. The composition of the portfolio is
included as Appendix I, attached to this report.
Investments managed externally by Agencies, Boards and Commissions amounting to a
further $365,000,000 are included on the attached Appendix 2.
In addition to those issues relating to compliance, our review also noted certain accounting
deficiencies. We have included our observations and recommendations relating to these
deficiencies in our report.
1.A monthly summary of the investment portfolios is not produced on a regular basis. Such
a report be prepared and forwarded to the Treasurer or her designate for review and approval.
As part of the review process, procedures be initiated to determine compliance with the
investment policy approved by Council. Explanations be obtained for any investments which
are not in accordance with the policy and appropriate action taken to ensure compliance.
2.The investment policy approved by Council outlines the specific scope of the policy. The
policy indicates that it "applies to all investments made on behalf of the City and its Boards,
Agencies and Commissions including but not limited to operating funds, reserves, reserve
funds, trust funds, sinking funds and any new fund created by the City unless specifically
exempted."
The policy, as stated, does not specifically include the investing activities of the Agencies,
Boards and Commissions. The policy in fact applies only to investments which the City is
handling for these entities and does not include investments being made independently by
local Boards. This particular issue requires clarification and should be addressed immediately.
3.Many of the City's Agencies, Boards and Commissions invest their own surplus funds.
Certain of these Agencies, Boards and Commissions engage the services of outside
professional investment management and have formalized investment policies or guidelines
defined under specific legislation. In order to maximize interest earnings, management
consider the consolidation of the investing activity for Agencies, Boards and Commissions.
The decision to consolidate should consider whether or not the services of outside
professional investment managers are utilized, the practicality based on dollar amounts and
the average length of terms investments are held, the types of investments allowed under
legislation and the degree of control exercised by the City over the Agencies, Boards and
Commissions
4.There is no reporting process in place relating to the review of the investment portfolios of
Agencies, Boards and Commissions. If it is determined that the Treasurer of the City is
responsible for investment portfolios of Agencies, Boards and Commissions, City Finance
Department is not in a position to determine whether these investment portfolios are in
accordance with the Council approved policy. A mandatory regular reporting process be
initiated and controlled by the City Finance Department. Where applicable all reports be
reviewed and approved by City Finance staff in order to ensure that Agencies, Boards and
Commissions are in compliance with the Council approved policy. Immediate and appropriate
action be taken for all instances of non-compliance.
5.The latest internal report on the market evaluation and performance of the investment
portfolio was performed as of June 1998. A regulation under the Municipal Act requires that
the Treasurer of the municipality is to prepare and provide to Council each year or more
frequently if specified by Council, an investment report. The regulation outlines the minimum
requirements of the content of the report. It is our understanding that the Treasury and
Financial Services Division plan to provide such a report to Council in March 1999.
The Government Finance Officers Association sample investment policy outlines a number of
recommended best practices related to reporting and in particular, recommends that an
investment report be prepared quarterly. We suggest that at least in the short term,
management consider the preparation of such a report on a more regular basis than just once a
year.
In accordance with the Municipal Act the investment report to Council "shall contain:
-a statement about the performance of the portfolio of investments of the municipality
during the period covered by the report;
-a description of the estimated proportion of the total investments that are invested in its
own long-term and short-term securities to the total investments of the municipality and a
description of the change, if any, in that estimated proportion since the previous year's report;
-a statement by the Treasurer as to whether or not, in her opinion, all investments were made
in accordance with the investment policies and goals adopted by the municipality;
-a record of the date of each transaction in or disposal of its own securities, including a
statement of the purchase and sale price of each security; and
-such other information that the Council may require or that, in the opinion of the Treasurer,
should be included."
6.The investment policy and procedures document specifically itemizes approved
investments for both internally and externally managed funds. The policy lists both the
maximum amount that can be invested in a specific investment as well as specific limits on
the duration of the investment. Our review of documentation indicated non compliance with
these policies. For example:
-Metro Pension, Homes for the Aged
Federal Guarantees:Policy maximum = 10%Actual = 25%
-Metro Pension
Schedule 1 Banks:Policy maximum = 15%Actual = 25%
-Toronto Group
Ontario Hydro:Policy term limit 10 yearsActual 20 years
Canadian Municipalities
rated A:Policy maximum = 1%Actual = 5%
Management should take immediate action in regards to the above to ensure compliance with
the policy.
7.The Investment Policy document is incomplete. Section 5 of the Policy entitled
"Investment Procedures" includes a narrative that such procedures are "to be formulated." This
particular section should address key aspects of the investment management process including
such areas as:
-quarterly and year end reporting procedures;
-review and approval procedures;
-interest allocation procedures;
-procedures on the control and management of computerized systems, and
-procedures governing the use of on-line market databases.
It is important that these policies be completed as soon as possible.
8.The investment policy and procedures document makes reference to performance
measurement criteria for each of its individual investment funds. However, no performance
benchmark has been determined for the City of Toronto Atmospheric Funds, the Keele Valley
Post Site Closure Trust Fund and the balance of other trust funds administered by the City of
Toronto. This matter should be addressed as soon as possible.
9.The investment policy includes a listing of all investment funds under the jurisdiction of
the City. Absent from the listing is the York Employees' Pension and Benefit Fund. As of
December 31, 1997 this Fund had in excess of $70,000,000 in investments and over
$12,000,000 in investment income. There is uncertainty regarding responsibility for the
investment of these funds.
10.A regular and complete monthly reconciliation of investments held by the City to the
City's accounting records is not being conducted. For certain reconciliations we have
identified a number of unreconciled differences, one of which is in excess of $5 million. The
resolution of this item has been an issue since early 1998. Management should set as a priority
the reconciliation of all investment funds. We have discussed this matter with staff throughout
the year and we have been informed that staff have recently reconciled the difference. As of
the date of this report, we have not been provided with this reconciliation.
Conclusion:
Our review indicated a number of concerns that require immediate action. In particular, there
is uncertainty by staff at both the City and the Agencies, Boards and Commissions as to
whether or not the Council approved policy applies to the Agencies, Boards and
Commissions. This issue requires clarification, although in our view, we see no reason why
the policy should not apply to most, if not all, City owned and controlled entities.
Regular reconciliation processes are also not being conducted for all investment accounts. In
order to ensure the accuracy of the accounting records, as well as the accuracy of third party
information, this matter requires urgent attention.
Contact Name and Telephone Number:
Steve Harris, Senior Audit Manager, 392-8460
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Appendix 1
City of Toronto
Investment Portfolio
Investments Managed by City Finance Staff
December 31, 1998
City's Own Funds$1,625,065,000
Toronto Transit Commission2,821,000
Metro Pension Funds20,704,000
Police Benefit Fund6,345,000
Sinking Funds808,611,000
City of Toronto Atmospheric Funds16,530,000
Toronto Trust Funds9,011,000
Homes for the Aged6,600,000
Scarborough Trust Funds1,800,000
Public Utilities Commission250,000
______________
$2,497,737,000
______________
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Appendix 2
City of Toronto
Investment Portfolio
Investments Managed Externally
December 31, 1998
City of Toronto Parking Authority$39,354,000
Toronto Economic Development Corporation21,870,000
Cityhome / Metro Housing77,100,000
Hummingbird Centre2,500,000
St. Lawrence Centre for the Arts1,467,000
City of Toronto Library Board2,370,000
City of Toronto Historical Board546,000
Toronto Hydro Electrical Commission218,000,000
Community Centres and Arenas1,275,000
BIA's and Other ABC's (estimated)1,000,000
______________
$365,482,000
______________
The Toronto Community Council also submits the following report (March 31, 1999)
from the Chief Financial Officer and Treasurer:
Purpose:
To respond to the issues and the recommendations contained in the report "Investment Policy
Compliance", from the City Auditor, dated February 1, 1999.
Funding Sources, Financial Implications and Impact Statement:
N/A
Recommendations:
It is recommended that this report be considered with the City Auditor's report and received as
information.
Council Reference/Background/History:
N/A
Comments and/or Discussion and/or Justification:
Staff from the Finance and Audit Departments met on February 9, 1999 to receive and discuss
a draft of the "Investment Policy Report". The Finance Department's response to the
recommendations contained in the report is being presented to the Audit Committee so that
they can be considered with the City Auditor's "Investment Policy Report".
The City's cash management and investment program was one of the first functions to be
amalgamated on January 1, 1998 and has been successful in achieving its performance
objectives by combining seven investment portfolios to manage the City's capital market
operations and funding obligations. The Finance Department continues to manage a combined
investment portfolio in excess of $2.5 billion and generating combined investment income of
$150 million, including the City's sinking funds. Various improvements and efficiencies has
resulted in estimated annual savings of $2 million by eliminating the requirement of some of
the former municipalities to issue promissory notes to fund temporary cash shortfalls.
Presented below are the Finance Department's comments that correspond to the
recommendations contained in the City Auditor's report:
1.Monthly reporting procedures be put in place by City Finance staff relating to the
investing of City Funds. Such reporting procedures to include details of all investments held
and maturity dates of such investments. The review of monthly reports be conducted by staff
independent of the investment function and include an analysis as to whether or not the City's
investment policies and procedures are complied with. Evidence of the review be documented
in writing. Immediate and appropriate action be taken for all instances of non compliance;
Monthly reporting procedures have been implemented as of February 1999. Treasury Section
staff prepare these reports on a daily basis in order to ensure compliance with the investment
polices and to provide guidance when transactions are executed. The Treasury Manager and
Senior Investment Analyst review these reports on a daily basis.
2.City Finance staff seek legal advice and clarification relating to the scope of the Council
approved policy entitled "Investment Policy and Procedures" and determine whether or not
such policy applies to Agencies, Boards and Commissions. If it is determined that the policy
does apply to these entitles, management of the City Finance Department forward the policy to
staff of all Agencies, Boards and Commissions for which the policy is deemed to be
applicable. All applicable Agencies, Boards and Commissions be advised that they are
required to comply with such policy;
A legal opinion from the City Solicitor has recently been requested to interpret the relevant
legislation as it relates to the application of the City's investment policy to the ABC's. The
Council adopted investment policy states that it should apply to the ABC's but it should be
understood that the City's investment of their excess funds is being performed on a voluntary
basis when an ABC has requested this service. It has not been imposed on any ABC who may
have established alternative arrangements and it was not assumed that the City's investment
policy would apply to independent investment managers.
3.Where practical, consideration be given to the consolidation of Agencies, Boards and
Commissions investing activities by the City Finance staff. In addition, the decision on
whether to consolidate should consider whether or not the services of outside professional
investment managers are utilized, the practicality based on dollar amounts and the average
length of terms investments are held, the types of investments allowed under legislation and
the degree of control exercised by the City over the Agencies, Boards and Commissions;
Based upon the outcome of the legal opinion, consideration will be given to the consolidation
of the investments of those ABC's not currently covered. However, it should be recognized
that the ABC's can generally operate under the Trustees' Act which is more permissive than
the Municipal Act. Therefore, they can choose to be more aggressive in their investment
activities as they may also have different objectives, time horizons and risk tolerance than the
City is allowed under the Municipal Act.
4.A reporting procedure be put in place by City Finance staff relating to the investing
activities of those Agencies, Boards and Commissions for which the policy is deemed
applicable. The reporting procedure be consistent with those recommendations as outlined
under Recommendation 1;
Reports are prepared daily to monitor the investment portfolios of the ABC's who have placed
their funds with the City. Otherwise, it is not considered appropriate for the ABC's who have
external managers to report their activities to the City unless it is demonstrated that the City
Treasurer has the legal authority to request these reports.
5.Consolidated financial reporting of all City investments be reported to Council on a more
regular basis than once a year;
Ontario Regulation 438-97 under the Municipal Act requires an annual report unless Council
requests a more frequent report. A shorter time horizon for a report on performance
measurement would, in our opinion, not be meaningful to Council. Therefore, we would not
recommend more frequent reporting to Council.
6.Management take immediate action to ensure compliance with policy limits on maximum
amounts and durations of specific investments;
While the approved investment policy sets limits and parameters, it should be understood that
the Investment Manager must have the ability to manage the funds by being able to exercise
some judgement and discretion when it is deemed to be warranted. It states in the Investment
Policies and Procedures report that the Treasurer may deviate from the requirement to match
maturities to forecasted liabilities if there is a reasonable basis for this action.
It also states that the maximum amounts and maximum percentages of the portfolio for each
issuer and sector may be established from time to time by the Treasurer. For example, if we
identify an opportunity to invest with one of the five major banks for a short period and
receive an additional return but the transaction places us over the limit for a few days, it is
expected that the Investment Manager would exercise his or her judgement and assess the
relative risk of this decision. Otherwise, the investment process could become so mechanical
and unresponsive to financial market conditions that opportunities to enhance investment
returns with minimal risk would be foregone.
7.The document approved by Council entitled "Investment Policy and Procedures" be
finalized, particularly in terms of addressing key management administrative procedures;
This item is in progress and will be completed by the end of April 1999.
8.Performance benchmarks for investment returns be set for those funds administered by the
City without an established performance benchmark;
Since these funds are being invested on behalf the various groups, the performance objectives
should be established in conjunction with these groups who would have their own investment
objectives and targets.
9.The investment policy and procedures manual be amended and updated to include the
York Employees' Pension and Benefit Fund. Clarification be sought in regards to the
responsibility for the investment of the assets of this fund, and;
The York Employees' Pension and Benefit Fund retains an external investment manager and
the City does not invest funds on their behalf. We will be entering into discussions with the
Trustees of the Fund to assess the benefits of having the City assist them in their investment
program. Although the other City Pension Funds (Toronto Civic Employees, Firefighters,
Metro Civic Employees and Police) employ external investment managers, the City invests
their short-term cash positions according to the approved investment policy and their
instructions pertaining to term-to-maturity.
10.Appropriate staff be requested to provide a complete and updated reconciliation of all
investment balances at the City. This information be submitted to senior staff for their review
and approval. Evidence of approval be documented in writing. Specific deadlines be set for
the preparation of such reconciliations. Reconciliation of the investment portfolio to the
general ledger be performed on a monthly basis for all investment funds.
The reconciliation process is being performed on a monthly basis since the issue has been
resolved between the Accounting and Treasury and Financial Services Divisions. Although
there was a difference in the balances during 1998 due to the amalgamation of 7 investment
portfolios, this has been eliminated in January 1999.
Contact Names:
Len Brittain, Director, Treasury and Financial Services Division, 392-5380
E-mail: lbrittai@toronto.ca
Martin Willschick, Manager, Treasury, 392-8072