Best Practices in Debt Management: An Overview

1. Best Practices in Debt Management: An Overview FGFOA School of Governmental Finance Sarasota County, Florida November 14, 2012

2. What is the Role of the Finance Officer in Debt Issuance? Four Primary Rating Criteria Financial Condition Debt Structure Economics/Demographics Management Management = Creditworthiness Finance Officers responsible for variety of duties How each is managed impacts the cost of funds when it comes time to issue enter capital markets

3. Best Practices Five-year capital improvement plan integrating operating costs of new facilities Debt policies and debt affordability reviews Pay-as-you-go capital funding policies Fund balance reserve policy/working capital reserves Contingency planning policies Policies regarding nonrecurring revenue

4. More Best Practices … Multi-year financial forecasting Monthly or quarterly financial reporting and monitoring Superior debt disclosure practices Financial reporting and budgeting awards Compliance with Governmental Accounting Standards Board standards

5. The Debt Component of Your Capital Improvement Plan

6. Debt Issuance Integration with Capital Improvement Plan GFOA recommends that governments adopt comprehensive multi-year capital improvement plans (CIP) to ensure effective management of capital assets CIP should cover at least 3 year period, preferably 5 years or more

7. Debt Issuance Integration with Capital Improvement Plan Prudent capital plans do the following: Identify needs Long-term horizon Determine project costs Prioritize capital projects New outlays, maintenance, replacement, renewal Develop financing strategies

8. Debt Issuance Integration with Capital Improvement Plan Financing strategies Cash Flow projections Consider all funding alternatives Reliability and stability of funding sources Affordability of strategies, including impact on debt ratios, taxpayers, ratepayers, etc. Have to consider debt management policy

9. Debt Issuance Integration with Capital Improvement Plan Debt management policy and CIP Use policy to establish parameters for issuing debt relative to capital projects Particularly with respect to objectives to be achieved before and after issuance Also use for guidance with respect to debt affordability – use debt policy as control points relative to managing CIP

10. Debt Capacity Considerations Legal Limits Internal Policy Limits Financial Limits

11. Debt Capacity – Precious Commodity Determining “capacity” is an art not a science Debt capacity is limited; make it count Funds borrowed for project today can’t be used for other projects tomorrow Funds committed for debt repayment today can’t be used to fund services tomorrow Long-term capital planning key to managing debt capacity

12. Developing a Debt Policy

13. Importance of Developing a Debt Management Policy A debt management policy improves the quality of decisions, provides justification for the structure of debt issuance, identifies policy goals, and demonstrates a commitment to long-term financial planning, including a multi-year capital plan.

14. Importance of Developing a Debt Management Policy Adherence to a debt management policy signals to rating agencies and the capital markets that a government is well managed and should meet its obligations in a timely manner. An effective debt management policy provides guidelines for a government to manage its debt program in line with available resources.

15. GFOA Best Practice – Debt Policies Purposes for which debt may be issued Legal debt limitations Types of debt permitted Structural features preferred Credit objectives Methods of sale Methods for selecting outside professionals

16. Developing Debt Policies Identify Comparable Governments Collect Example Policies and Borrow Ideas Construct Indicators For Peer Group For Self / Compare

17. GFOA Tools Available to Issuers – Publications GFOA Publications Guide to Preparing a Debt Policy Benchmarking and Measuring Debt Capacity Elected Official’s Guide to Debt Issuance Elected Official’s Guide to Tax Increment Financing Budget Practices: A Framework For Improved State and Local Government Budgeting Capital Project Planning and Evaluation: Expanding the Role of the Finance Officer

18. Method of Sale: Competitive vs. Negotiated

19. Competitive vs. Negotiated Sales: The Decision The finance officer’s decision or recommendation regarding the method in which bonds will be sold will be a leading factor in determining the financing cost of the bonds. Method of Sale decision should be addressed in the issuer’s debt or financial policies.

20. Competitive vs. Negotiated Sales: Definitions Competitive Sale: Bond issue is prepared by the issuer and financial advisor and then offered for sale to underwriters at specified date and time. Bonds are awarded to the firm that offers the lowest True Interest Cost (TIC). Bids usually submitted electronically. Negotiated Sale: The underwriter of the bonds is selected in advance of the sale and the pricing of the bonds (coupons, yields, spread) is negotiated by the underwriter and the issuer (with their financial advisor).

21. GFOA Best Practice on Selecting the Method of Sale “Method of Sale” Best Practices provides guidance to issuers regarding choosing between a competitive and negotiated sale. Method of Sale Best Practices were the result of sometimes contentious discussions among GFOA Debt Committee members over two years.

22. Key Components of Method of Sale BP Issuers should select the method of sale most likely to achieve the lowest cost of borrowing. Decision should be based on analysis of the relevant rating, security, structuring and other features of the bond issue. If an issuer does not have dedicated, experienced debt management staff, it should hire a financial advisor to assist in making the method of sale decision.

23. Key Components of Method of Sale BP Due to the inherent conflict of interest, issuers should not use a potential underwriter to assist in the method of sale decision unless that firm has agreed not to underwrite the bonds. Due to inherent conflicts of interest, a firm acting as an issuer’s financial advisor should not be allowed to resign in order to serve as underwriter for the proposed bonds. MSRB Rule G-23 now prohibits.

24. Key Components of Method of Sale BP Favors which favor a competitive sale include: Bond rating of “A” or higher. Bonds are general obligations of the issuer, or are secured by a strong, known and long-standing revenues stream (e.g. water, sewer, or electric revenues). The structure of the bonds does not include unusual or new financing features that require extensive explanation to the bond market.

25. Key Components of Method of Sale BP Favors which favor a negotiated sale include: Bond rating less than “A”. Bond insurance or other credit enhancement not available or not cost-effective. Bond structure has unique features such as pooled bonds, variable rate debt or deferred interest bonds. The issuer desires to target underwriting participation. Other factors that the issuer, in consultation with its financial advisor, believes favor the use of negotiation.

26. Key Components of Method of Sale BP If a negotiated sale is deemed appropriate: Engage the services of a financial advisor, unless the issuer has extensive in-house bond pricing experience and access to current bond market data. Select underwriters through a Request for Proposals (RFP). Remain actively involved in each step of the negotiation and sale process. (BP on “Pricing Bonds in a Negotiated Sale”) Be aware that the relationship between the issuer and the underwriter is one of common purpose, but also competingobjectives, especially at time of bond pricing. YOUR UNDERWRITER IS NOT YOUR FINANCIAL ADVISOR.

27. Refunding Analysis

28. Optional Redemption Most tax-exempt municipal bonds have an optional call feature which allows issuers to repurchase bonds at a specified price on certain dates in the future Call date usually 8-10 years Par call is most common (as opposed to premium call – 101% of par) Notification: typically 30 to 60 days prior to call

29. Types of Refundings • Current: Refunding bonds sold within 90 days of Call Date of refunded bonds • Escrow Yield unrestricted • No limit to number of current refundings Refunding Bonds Bond proceeds used to fund Defeasance Escrow Defeasance Escrow Call Outstanding Bonds Refunding Bonds June 1, 2012 Less than 90 days Call 2002A Bonds September 1, 2012

30. Types of Refundings • Advance: Refunding bonds sold more than 90 days to the 1st Optional Call Date of refunded bonds • Escrow yield restricted to arbitrage yield of refunding bonds • 1 Advance Refunding allowed per IRS Regulations. Refunding Bonds Bond proceeds used to fund Defeasance Escrow Call Outstanding Bonds Defeasance Escrow More than 90 days Pay Principal & Interest due on Refunded Bonds until the Call Date Refunding Bonds June 1, 2012 Call 2004A Bonds August 1, 2014

31. Economics of Refunding Bonds Absolute difference in interest rates on old “refunded” bonds vs. new “refunding” bonds Remaining term and amount of refunded bonds Length of the escrow period Efficiency of the escrow Ability to earn the escrow yield limit Investment dates vs. refunded bond payment dates Cautions: Negative arbitrage (earnings) in escrow Extension of call date

32. Issuer Objectives Meet Savings Threshold GFOA recommends 3-5% NPV as starting point Debt Policy should discuss Threshold Savings Cash Flow Structuring Consolidation of Debt Remove Restrictive Covenants Or Combination of Above Objectives

33. Savings Targets Establish guidelines in debt policy Opportunity cost analysis Different perspective for current and advance refunding Net present value as % of par value (refunding or refunded par) Absolute savings Savings in excess of COI

34. How to Evaluate a Refunding Current vs. Historical Interest Rate Levels Shape of yield curve Term to maturity (years remaining) Absolute level of savings: minimum $ threshold (e.g. $1 million) NPV Savings as % of par Consider future “opportunities lost”

35. Historical & Current Interest Rates are Useful for Understanding Market Trends Historical interest rates provide context to current rates and insight into how rates change Compare current rates to historical ranges Identify current trends Establish how rapidly rates have moved up or down

36. Continuing Disclosure

37. SEC Rule 15c2-12 Effective January 1, 1996 Designed to prevent fraudulent, deceptive, or manipulative acts or practices Requires municipal debt issuers to file updated financial information and operating data annually with EMMA (Electronic Municipal Market Access System) by a specified date and file material event notices. Requires underwriters to reasonably determine that the issuer has complied with the rule prior to offering for sale the related securities

38. The issuer must enter into a written agreement for the benefit of the bond holders to do the following: Provide through a filing to the Electronic Municipal Market Access (EMMA) and to the appropriate State Information Depository (SID), if any, annual financial information or operating data presented in the Official Statement Submit audited financial statements to the EMMA system and respective SID when available, if not provided as part of the annual financial information listed above Submit a notification to the EMMA system and respective SID of any material event occurrence in a timely manner Submit a notification to the EMMA system and respective SID of failure to comply in a timely manner Requirements

39. Material events related to bonds issued after 12/1/10, but submit the material event to the EMMA system within 10 business days of the event occurring. Some events need to be disclosed regardless if they are ‘material’ or not: Principal and interest payment delinquencies Unscheduled draws on debt service reserves reflecting financial difficulties Unscheduled draws on credit enhancement reflecting financial difficulties Substitution of credit or liquidity providers, or their failure to perform Adverse tax opinions Defeasances Rating Changes Material Events

40. New Material Events Updated in May, 2010: New Material Events IRS proposed or final determinations of taxability Tender officers Bankruptcy, insolvency, receivership, or similar event of the obligated person Consummation of a merger, consideration, or acquisition, or certain asset ales, involving the obligated person, or entry into or termination of a definitive agreement to the foregoing (if material) Appointment of a successor or additional trustee or the change of name of a trustee (if material)

41. If the issuer fails to meet its annual filing requirements, the issuer must: Submit a notice of failure to comply with EMMA and the appropriate SID Complete and submit all past due filings prior to issuing debt Create procedures to ensure the failure to file will not reoccur Disclose its failure to comply in every Official Statement for 5 years Notice of Failure to Comply

42. If the issuer fails to meet its annual filing requirements, the ease of selling its securities diminishes The underwriter is prohibited from bidding on or offering for sale the primary offering Rating agencies could assign a lower rating if the failed filings were deemed to be caused by poor management The investors may not show interest in securities where the required disclosure filings are not available In the event of a default, the investor could argue the required disclosure filings were not available for due diligence review Higher borrowing costs Risks of Non-Compliance

43. Exemptions from annual filings and material event notices Debt issues with a total par amount of $1,000,000 or less Debt issues authorized in denominations of $100,000 if, Sold to no more than 35 persons who are believed to capable of evaluating risk and who are purchasing the securities for one account Have a maturity of 9 months or less, or May be tendered to the issuer at par value or above every 9 months until maturity Exemptions from annual filings but not material event notices Debt issues with a maturity 18 months or less Debt Issue Exemptions

44. Prior to bidding on or offering for sale municipal securities the underwriter must review the preliminary official statement (“POS”) and reasonably determine that issuer has complied with the rule The underwriter must send a POS no later than 1 business day after the request of a potential customer, if available The underwriter must receive the final official statement 7 business days after the purchase agreement and in sufficient time and quantity to accompany any confirmation that requests payment from any customer Issuers may now submit POS documents to EMMA. Requirements on Underwriters

45. Continuing Responsibilities of the Finance Officer – Post Issuance Compliance

46. Post Issuance Compliance Post-issuance tax compliance begins with the debt issuance process itself and provides for a continuing focus on investments of bond proceeds and use of bond-financed property. It will require identifying existing policies, the responsible people, the applicable procedures, and the affected population. The National Association of Bond Lawyers and the Government Finance Officers Association have jointly developed a checklist to assist with issuers post issuance compliance matters (found at below website). http://www.gfoa.org/downloads/PostIssuanceCompliance.pdf

47. Investment of Bond Proceeds Principals of good investment management and understanding of inherent risks in investing bond proceeds critical Establish good guidelines for permitted investments to reduce credit risk –SAFETY Good cash flow estimates mitigate market risk –LIQUIDITY Integration of knowledge of expected and future market conditions with other cash flows to reduce opportunity risk –YIELD

48. Investment of Bond Proceeds Obtain projected cash flow schedules from project managers Inform internal investment officer of incoming funds Bid Investment Agreements as needed Develop process for monitoring balances in trustee held accounts Actively monitor construction activities Develop procedures for reinvestment of bond proceeds (see handout)

49. Investment of Bond Proceeds Initial investment – generally the “easier part” Project cash flows Capitalized Interest Debt Service Reserve Fund Cost of Issuance Reinvestment – generally the “really hard part” Develop process to monitor and make reinvestment decisions Use of cash flow expectations v. reality

50. Record Retention Establish Record Retention Requirements and Procedures IRS record retention requirements Term of bonds + 6 years Types of records IRS Website www.irs.gov/taxexemptbond/index.html FAQ’s -- Record Retention Requirements (handout) www.irs.gov/taxexemptbond/article/0,,id=134435,00.html