IPSAS 11—CONSTRUCTION CONTRACTS

Acknowledgment
This International Public Sector Accounting Standard (IPSAS) is drawn primarily
from International Accounting Standard (IAS) 11 (Revised 1993), Construction
Contracts, published by the International Accounting Standards Board (IASB).
Extracts from IAS 11 are reproduced in this publication of the International Public
Sector Accounting Standards Board (IPSASB) of the International Federation of
Accountants (IFAC) with the permission of the International Financial Reporting
Standards (IFRS) Foundation.
The approved text of the International Financial Reporting Standards (IFRSs) is
that published by the IASB in the English language, and copies may be obtained
directly from IFRS Publications Department, First Floor, 30 Cannon Street,
London EC4M 6XH, United Kingdom.
E-mail: [email protected]
Internet: www.ifrs.org
IFRSs, IASs, Exposure Drafts, and other publications of the IASB are copyright of
the IFRS Foundation.
“IFRS,” “IAS,” “IASB,” “IFRS Foundation,” “International Accounting
Standards,” and “International Financial Reporting Standards” are trademarks of
the IFRS Foundation and should not be used without the approval of the IFRS
Foundation.

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IPSAS 11—CONSTRUCTION CONTRACTS
History of IPSAS
This version includes amendments resulting from IPSASs issued up to January 15,
2012.
IPSAS 11, Construction Contracts was issued in July 2001.

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IPSAS 11—CONSTRUCTION CONTRACTS
CONTENTS
Paragraph
Objective
Scope .............................................................................................................. 1–3
Definitions ..................................................................................................... 4–11
Construction Contracts ........................................................................... 5–10
Contractor ............................................................................................... 11
Combining and Segmenting Construction Contracts ..................................... 12–15
Contract Revenue ........................................................................................... 16–22
Contract Costs ................................................................................................ 23–29
Recognition of Contract Revenue and Expenses ........................................... 30–43
Recognition of Expected Deficits .................................................................. 44–48
Changes in Estimates ..................................................................................... 49
Disclosure ...................................................................................................... 50–56
Effective Date ................................................................................................ 57–58
Implementation Guidance
Comparison with IAS 11

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International Public Sector Accounting Standard 11, Construction Contracts, is set
out in the objective and paragraphs 158. All the paragraphs have equal authority.
IPSAS 11 should be read in the context of its objective and the Preface to
International Public Sector Accounting Standards. IPSAS 3, Accounting Policies,
Changes in Accounting Estimates and Errors, provides a basis for selecting and
applying accounting policies in the absence of explicit guidance.

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Objective
The objective of this Standard is to prescribe the accounting treatment of costs and
revenue associated with construction contracts. The Standard:
 Identifies the arrangements that are to be classified as construction contracts;
 Provides guidance on the types of construction contracts that can arise in the
public sector; and
 Specifies the basis for recognition and disclosure of contract expenses and, if
relevant, contract revenues.
Because of the nature of the activity undertaken in construction contracts, the date at
which the contract activity is entered into and the date when the activity is completed
usually fall into different reporting periods.
In many jurisdictions, construction contracts entered into by public sector entities
will not specify an amount of contract revenue. Rather, funding to support the
construction activity will be provided by an appropriation or similar allocation of
general government revenue, or by aid or grant funds. In these cases, the primary
issue in accounting for construction contracts is the (a) allocation of construction
costs to the reporting period in which the construction work is performed, and (b) the
recognition of related expenses.
In some jurisdictions, construction contracts entered into by public sector entities
may be established on a commercial basis or a noncommercial full or partial cost
recovery basis. In these cases, the primary issue in accounting for construction
contracts is the allocation of both contract revenue and contract costs to the reporting
periods in which construction work is performed.

Scope
1. A contractor that prepares and presents financial statements under the
accrual basis of accounting shall apply this Standard in accounting for
construction contracts.
2. This Standard applies to all public sector entities other than
Government Business Enterprises.
3. The Preface to International Public Sector Accounting Standards issued by
the IPSASB explains that Government Business Enterprises (GBEs) apply
IFRSs issued by the IASB. GBEs are defined in IPSAS 1, Presentation of
Financial Statements.

Definitions
4. The following terms are used in this Standard with the meanings
specified:

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Construction contract is a contract, or a similar binding arrangement,
specifically negotiated for the construction of an asset or a combination
of assets that are closely interrelated or interdependent in terms of
their design, technology, and function or their ultimate purpose or use.
Contractor is an entity that performs construction work pursuant to a
construction contract.
Cost plus or cost-based contract is a construction contract in which the
contractor is reimbursed for allowable or otherwise defined costs and,
in the case of a commercially based contract, an additional percentage
of these costs or a fixed fee, if any.
Fixed price contract is a construction contract in which the contractor
agrees to a fixed contract price, or a fixed rate per unit of output,
which in some cases is subject to cost escalation clauses.
Terms defined in other IPSASs are used in this Standard with the same
meaning as in those Standards, and are reproduced in the Glossary of
Defined Terms published separately.
Construction Contracts
5. A construction contract (the terms construction contract and contract are
used interchangeably in the remainder of this Standard) may be negotiated
for the construction of a single asset such as a bridge, building, dam,
pipeline, road, ship, or tunnel. A construction contract may also deal with
the construction of a number of assets that are closely interrelated or
interdependent in terms of their design, technology, and function or their
ultimate purpose or use – examples of such contracts include those for the
construction of reticulated water supply systems, refineries, and other
complex infrastructure assets.
6. For the purposes of this Standard, construction contracts include:
(a) Contracts for the rendering of services that are directly related to the
construction of the asset, for example, those for the services of
project managers and architects; and
(b) Contracts for the destruction or restoration of assets, and the
restoration of the environment following the demolition of assets.
7. For the purposes of this Standard, construction contracts also include all
arrangements that are binding on the parties to the arrangement, but which
may not take the form of a documented contract. For example, two
government departments may enter into a formal arrangement for the
construction of an asset, but the arrangement may not constitute a legal
contract because, in that jurisdiction, individual departments may not be
separate legal entities with the power to contract. However, provided that

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the arrangement confers similar rights and obligations on the parties to it as

if it were in the form of a contract, it is a construction contract for the
purposes of this Standard. Such binding arrangements could include (but
are not limited to) a ministerial direction, a cabinet decision, a legislative
direction (such as an Act of Parliament), or a memorandum of
understanding.
8. Construction contracts are formulated in a number of ways that, for the
purposes of this Standard, are classified as fixed price contracts and cost
plus or cost-based contracts. Some commercial construction contracts may
contain characteristics of both a fixed price contract and a cost plus or cost-
based contract, for example in the case of a cost plus or cost-based contract
with an agreed maximum price. In such circumstances, a contractor needs
to consider all the conditions in paragraphs 31 and 32 in order to determine
when to recognize contract revenue and expenses.
9. Cost plus and cost-based contracts encompass both commercial and non
commercial contracts. A commercial contract will specify that revenue to
cover the agreed constructor’s construction costs and generate a profit
margin will be provided by the other parties to the contract. However, a
public sector entity may also enter into a noncommercial contract to
construct an asset for another entity in return for full or partial
reimbursement of costs from that entity or other parties. In some cases, the
cost recovery may encompass payments by the recipient entity and specific
purpose construction grants or funding from other parties.
10. In many jurisdictions, where one public sector entity constructs assets for
another public sector entity, the cost of construction activity is not
recovered directly from the recipient. Rather, the construction activity is
funded indirectly (a) by way of a general appropriation or other allocation
of general government funds to the contractor, or (b) from general purpose
grants from third party funding agencies or other governments. These are
classified as fixed price contracts for the purpose of this Standard.

Contractor
11. A contractor is an entity that enters into a contract to build structures,
construct facilities, produce goods, or render services to the specifications
of another entity. The term “contractor” includes a general or prime
contractor, a subcontractor to a general contractor, or a construction
manager.

Combining and Segmenting Construction Contracts

12. The requirements of this Standard are usually applied separately to each
construction contract. However, in certain circumstances, it is necessary to
apply the Standard to the separately identifiable components of a single

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contract, or to a group of contracts together, in order to reflect the substance
of a contract or a group of contracts.
13. When a contract covers a number of assets, the construction of each
asset shall be treated as a separate construction contract when:
(a) Separate proposals have been submitted for each asset;
(b) Each asset has been subject to separate negotiation, and the
contractor and customer have been able to accept or reject that
part of the contract relating to each asset; and
(c) The costs and revenues of each asset can be identified.
14. A group of contracts, whether with a single customer or with several
customers, shall be treated as a single construction contract when:
(a) The group of contracts is negotiated as a single package;
(b) The contracts are so closely interrelated that they are, in effect,
part of a single project with an overall margin, if any; and
(c) The contracts are performed concurrently or in a continuous
sequence.
15. A contract may provide for the construction of an additional asset at
the option of the customer, or may be amended to include the
construction of an additional asset. The construction of the additional
asset shall be treated as a separate construction contract when:
(a) The asset differs significantly in design, technology, or function
from the asset or assets covered by the original contract; or
(b) The price of the asset is negotiated without regard to the original
contract price.

Contract Revenue
16. Contract revenue shall comprise:
(a) The initial amount of revenue agreed in the contract; and
(b) Variations in contract work, claims, and incentive payments to
the extent that:
(i) It is probable that they will result in revenue; and
(ii) They are capable of being reliably measured.
17. Contract revenue is measured at the fair value of the consideration received
or receivable. Both the initial and ongoing measurement of contract revenue
are affected by a variety of uncertainties that depend on the outcome of
future events. The estimates often need to be revised as events occur and

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uncertainties are resolved. Where a contract is a cost plus or cost-based

contract, the initial amount of revenue may not be stated in the contract.
Instead, it may need to be estimated on a basis consistent with the terms and
provisions of the contract, such as by reference to expected costs over the
life of the contract.
18. In addition, the amount of contract revenue may increase or decrease from
one period to the next. For example:
(a) A contractor and a customer may agree to variations or claims that
increase or decrease contract revenue in a period subsequent to that
in which the contract was initially agreed;
(b) The amount of revenue agreed in a fixed price, cost plus, or cost-
based contract may increase as a result of cost escalation or other
clauses;
(c) The amount of contract revenue may decrease as a result of penalties
arising from delays caused by the contractor in the completion of the
contract; or
(d) When a fixed price contract involves a fixed price per unit of output,
contract revenue increases or decreases as the number of units is
increased or decreased.
19. A variation is an instruction by the customer for a change in the scope of
the work to be performed under the contract. A variation may lead to an
increase or a decrease in contract revenue. Examples of variations are
changes in the specifications or design of the asset, and changes in the
duration of the contract. A variation is included in contract revenue when:
(a) It is probable that the customer will approve the variation and the
amount of revenue arising from the variation; and
(b) The amount of revenue can be reliably measured.
20. A claim is an amount that the contractor seeks to collect from the customer
or another party as reimbursement for costs not included in the contract
price. A claim may arise from, for example, customer-caused delays, errors
in specifications or design, and disputed variations in contract work. The
measurement of the amounts of revenue arising from claims is subject to a
high level of uncertainty, and often depends on the outcome of negotiations.
Therefore, claims are only included in contract revenue when:
(a) Negotiations have reached an advanced stage, such that it is
probable that the customer will accept the claim; and
(b) The amount that it is probable will be accepted by the customer can
be measured reliably.

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21. Incentive payments are additional amounts paid to the contractor if
specified performance standards are met or exceeded. For example, a
contract may allow for an incentive payment to the contractor for early
completion of the contract. Incentive payments are included in contract
revenue when:
(a) The contract is sufficiently advanced that it is probable that the
specified performance standards will be met or exceeded; and
(b) The amount of the incentive payment can be measured reliably.
22. Contractors should review all amounts relating to the construction contract
that are paid directly to subcontractors by third party funding agencies, to
determine whether they meet the definition of, and recognition criteria for,
revenue of the contractor under the terms of the contract. Amounts meeting
the definition and recognition criteria for revenue should be accounted for
by the contractor in the same way as other contract revenue. Such amounts
should also be recognized as contract costs (see paragraph 25). Funding
agencies may include national and international aid agencies and
multilateral and bilateral development banks.

Contract Costs
23. Contract costs shall comprise:
(a) Costs that relate directly to the specific contract;
(b) Costs that are attributable to contract activity in general, and
can be allocated to the contract on a systematic and rational
basis; and
(c) Such other costs as are specifically chargeable to the customer
under the terms of the contract.
24. Costs that relate directly to a specific contract include:
(a) Site labor costs, including site supervision;
(b) Costs of materials used in construction;
(c) Depreciation of plant and equipment used on the contract;
(d) Costs of moving plant, equipment, and materials to and from the
contract site;
(e) Costs of hiring plant and equipment;
(f) Costs of design and technical assistance that are directly related to
the contract;
(g) The estimated costs of rectification and guarantee work, including
expected warranty costs; and

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(h) Claims from third parties.

These costs may be reduced by any incidental revenue that is not included
in contract revenue, for example, revenue from the sale of surplus materials
at the end of the contract.
25. Contractors should review all amounts relating to the construction contract
paid directly by subcontractors and which are reimbursed by third party
funding agencies, to determine whether they qualify as contract costs.
Amounts meeting the definition of, and recognition criteria for, contract
expenses should be accounted for by the contractor in the same way as
other contract expenses. Amounts reimbursed by third party funding
agencies that meet the definition of, and recognition criteria for, revenue
should be accounted for by the contractor in the same way as other contract
revenue (see paragraph 22).
26. Costs that may be attributable to contract activity in general and can be
allocated to specific contracts include:
(a) Insurance;
(b) Costs of design that are not directly related to a specific contract;
and
(c) Construction overheads.
Such costs are allocated using methods that (a) are systematic and rational,
and (b) are applied consistently to all costs having similar characteristics.
The allocation is based on the normal level of construction activity.
Construction overheads include costs such as the preparation and processing
of construction personnel payroll. Costs that may be attributable to contract
activity in general and can be allocated to specific contracts also include
borrowing costs when the contractor adopts the allowed alternative
treatment in IPSAS 5, Borrowing Costs.
27. Costs that are specifically chargeable to the customer under the terms of the
contract may include some general administration costs and development
costs for which reimbursement is specified in the terms of the contract.
28. Costs that cannot be attributed to contract activity or cannot be allocated to
a contract are excluded from the costs of a construction contract. Such costs
include:
(a) General administration costs for which reimbursement is not
specified in the contract;
(b) Selling costs;
(c) Research and development costs for which reimbursement is not
specified in the contract; and

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(d) Depreciation of idle plant and equipment that is not used on a
particular contract.
29. Contract costs include the costs attributable to a contract for the period from
the date of securing the contract to the final completion of the contract.
However, costs that relate directly to a contract and that are incurred in
securing the contract are also included as part of the contract costs, if they
can be separately identified and measured reliably and it is probable that the
contract will be obtained. When costs incurred in securing a contract are
recognized as an expense in the period in which they are incurred, they are
not included in contract costs when the contract is obtained in a subsequent
period.

Recognition of Contract Revenue and Expenses

30. When the outcome of a construction contract can be estimated reliably,
contract revenue and contract costs associated with the construction
contract shall be recognized as revenue and expenses respectively by
reference to the stage of completion of the contract activity at the
reporting date. An expected deficit on a construction contract to which
paragraph 44 applies shall be recognized as an expense immediately in
accordance with paragraph 44.
31. In the case of a fixed price contract, the outcome of a construction
contract can be estimated reliably when all the following conditions are
satisfied:
(a) Total contract revenue, if any, can be measured reliably;
(b) It is probable that the economic benefits or service potential
associated with the contract will flow to the entity;
(c) Both the contract costs to complete the contract and the stage of
contract completion at the reporting date can be measured
reliably; and
(d) The contract costs attributable to the contract can be clearly
identified and measured reliably, so that actual contract costs
incurred can be compared with prior estimates.
32. In the case of a cost plus or cost-based contract, the outcome of a
construction contract can be estimated reliably when all the following
conditions are satisfied:
(a) It is probable that the economic benefits or service potential
associated with the contract will flow to the entity; and
(b) The contract costs attributable to the contract, whether or not
specifically reimbursable, can be clearly identified and
measured reliably.

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33. The recognition of revenue and expenses by reference to the stage of

completion of a contract is often referred to as the percentage of completion
method. Under this method, contract revenue is matched with the contract
costs incurred in reaching the stage of completion, resulting in the reporting
of revenue, expenses, and surplus/deficit that can be attributed to the
proportion of work completed. This method provides useful information on
the extent of contract activity and performance during a period.
34. Under the percentage of completion method, contract revenue is recognized
as revenue in the statement of financial performance in the reporting
periods in which the work is performed. Contract costs are usually
recognized as an expense in the statement of financial performance in the
reporting periods in which the work to which they relate is performed.
However, where it is intended at inception of the contract that contract costs
are to be fully recovered from the parties to the construction contract, any
expected excess of total contract costs over total contract revenue for the
contract is recognized as an expense immediately in accordance with
paragraph 44.
35. A contractor may have incurred contract costs that relate to future activity
on the contract. Such contract costs are recognized as an asset, provided it is
probable that they will be recovered. Such costs represent an amount due
from the customer and are often classified as contract work in progress.
36. The outcome of a construction contract can only be estimated reliably when
it is probable that the economic benefits or service potential associated with
the contract will flow to the entity. However, when an uncertainty arises
about the collectability of an amount already included in contract revenue,
and already recognized in the statement of financial performance, the
uncollectable amount or the amount in respect of which recovery has ceased
to be probable is recognized as an expense rather than as an adjustment of
the amount of contract revenue.
37. An entity is generally able to make reliable estimates after it has agreed to a
contract that establishes:
(a) Each party’s enforceable rights regarding the asset to be constructed;
(b) The consideration, if any, to be exchanged; and
(c) The manner and terms of settlement.
It is also usually necessary for the entity to have an effective internal
financial budgeting and reporting system. The entity reviews and, when
necessary, revises the estimates of contract revenue and contract costs as
the contract progresses. The need for such revisions does not necessarily
indicate that the outcome of the contract cannot be estimated reliably.

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38. The stage of completion of a contract may be determined in a variety of
ways. The entity uses the method that measures reliably the work
performed. Depending on the nature of the contract, the methods may
include:
(a) The proportion that contract costs incurred for work performed to
date bear to the estimated total contract costs;
(b) Surveys of work performed; or
(c) Completion of a physical proportion of the contract work.
Progress payments and advances received from customers often do not
reflect the work performed.
39. When the stage of completion is determined by reference to the contract
costs incurred to date, only those contract costs that reflect work performed
are included in costs incurred to date. Examples of contract costs that are
excluded are:
(a) Contract costs that relate to future activity on the contract, such as
costs of materials that have been delivered to a contract site or set
aside for use in a contract, but not yet installed, used, or applied
during contract performance, unless the materials have been made
specially for the contract; and
(b) Payments made to subcontractors in advance of work to be
performed under the subcontract.
40. When the outcome of a construction contract cannot be estimated
reliably:
(a) Revenue shall be recognized only to the extent of contract costs
incurred that it is probable will be recoverable; and
(b) Contract costs shall be recognized as an expense in the period in
which they are incurred.
An expected deficit on a construction contract to which paragraph 44
applies shall be recognized as an expense immediately in accordance
with paragraph 44.
41. During the early stages of a contract, it is often the case that the outcome of
the contract cannot be estimated reliably. Nevertheless, it may be probable
that the entity will recover the contract costs incurred. Therefore, contract
revenue is recognized only to the extent of costs incurred that are expected
to be recoverable. As the outcome of the contract cannot be estimated
reliably, no surplus or deficit is recognized. However, even though the
outcome of the contract cannot be estimated reliably, it may be probable
that total contract costs will exceed total contract revenues. In such cases,
any expected excess of total contract costs over total contract revenues for
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the contract is recognized as an expense immediately in accordance with

paragraph 44.
42. Where contract costs that are to be reimbursed by parties to the contract are
not probable of being recovered, they are recognized as an expense
immediately. Examples of circumstances in which the recoverability of
contract costs incurred may not be probable, and in which contract costs
may need to be recognized as an expense immediately, include contracts:
(a) That are not fully enforceable, that is, their validity is seriously in
question;
(b) The completion of which is subject to the outcome of pending
litigation or legislation;
(c) Relating to properties that are likely to be condemned or
expropriated;
(d) Where the customer is unable to meet its obligations; or
(e) Where the contractor is unable to complete the contract or otherwise
meet its obligations under the contract.
43. When the uncertainties that prevented the outcome of the contract
being estimated reliably no longer exist, revenue and expenses
associated with the construction contract shall be recognized in
accordance with paragraph 30 rather than in accordance with
paragraph 40.

Recognition of Expected Deficits

44. In respect of construction contracts in which it is intended at inception
of the contract that contract costs are to be fully recovered from the
parties to the construction contract, when it is probable that total
contract costs will exceed total contract revenue, the expected deficit
shall be recognized as an expense immediately.
45. Public sector entities may enter into construction contracts that specify that
the revenue intended to cover the construction costs will be provided by the
other parties to the contract. This may occur where, for example:
(a) Government departments and agencies that are largely dependent on
appropriations or similar allocations of government revenue to fund
their operations are also empowered to contract with GBE’s or
private sector entities for the construction of assets on a commercial
or full cost recovery basis; or
(b) Government departments and agencies transact with each other on
an arm’s length or commercial basis as may occur under a
“purchaser-provider” or similar model of government.

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In these cases, an expected deficit on a construction contract is recognized
immediately in accordance with paragraph 44.
46. As noted in paragraph 9, in some cases a public sector entity may enter into
a construction contract for less than full cost recovery from the other parties
to the contract. In these cases, funding in excess of that specified in the
construction contract will be provided from an appropriation or other
allocation of government funds to the contractor, or from general purpose
grants from third party funding agencies or other governments. The
requirements of paragraph 44 do not apply to these construction contracts.
47. In determining the amount of any deficit under paragraph 44, total contract
revenue and total contract costs may include payments made directly to
subcontractors by third party funding agencies in accordance with
paragraphs 22 and 25.
48. The amount of such a deficit is determined irrespective of:
(a) Whether or not work has commenced on the contract;
(b) The stage of completion of contract activity; or
(c) The amount of surpluses expected to arise on other commercial
construction contracts that are not treated as a single construction
contract in accordance with paragraph 14.

Changes in Estimates
49. The percentage of completion method is applied on a cumulative basis in
each reporting period to the current estimates of contract revenue and
contract costs. Therefore, the effect of a change in the estimate of contract
revenue or contract costs, or the effect of a change in the estimate of the
outcome of a contract, is accounted for as a change in accounting estimate
(see IPSAS 3, Accounting Policies, Changes in Accounting Estimates and
Errors.) The changed estimates are used in the determination of the amount
of revenue and expenses recognized in the statement of financial
performance in the period in which the change is made and in subsequent
periods.

Disclosure
50. An entity shall disclose:
(a) The amount of contract revenue recognized as revenue in the
period;
(b) The methods used to determine the contract revenue recognized
in the period; and
(c) The methods used to determine the stage of completion of
contracts in progress.
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51. An entity shall disclose each of the following for contracts in progress
at the reporting date:
(a) The aggregate amount of costs incurred and recognized
surpluses (less recognized deficits) to date;
(b) The amount of advances received; and
(c) The amount of retentions.
52. Retentions are amounts of progress billings that are not paid until the
satisfaction of conditions specified in the contract for the payment of such
amounts, or until defects have been rectified. Progress billings are amounts
of contract revenue billed for work performed on a contract, whether or not
they have been paid by the customer. Advances are amounts of contract
revenue received by the contractor before the related work is performed.
53. An entity shall present:
(a) The gross amount due from customers for contract work as an
asset; and
(b) The gross amount due to customers for contract work as a
liability.
54. The gross amount due from customers for contract work is the net amount
of:
(a) Costs incurred plus recognized surpluses; less
(b) The sum of recognized deficits and progress billings for all contracts
in progress for which costs incurred plus recognized surpluses to be
recovered by way of contract revenue (less recognized deficits)
exceed progress billings.
55. The gross amount due to customers for contract work is the net amount of:
(a) Costs incurred plus recognized surpluses; less
(b) The sum of recognized deficits and progress billings for all contracts
in progress for which progress billings exceed costs incurred plus
recognized surpluses to be recovered by way of contract revenue
(less recognized deficits).
56. Guidance on the disclosure of contingent liabilities and contingent assets
can be found in IPSAS 19, Provisions, Contingent Liabilities and
Contingent Assets. Contingent liabilities and contingent assets may arise
from such items as warranty costs, claims, penalties, or possible losses.

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Effective Date
57. An entity shall apply this Standard for annual financial statements
covering periods beginning on or after July 1, 2002. Earlier application
is encouraged. If an entity applies this Standard for a period beginning
before July 1, 2002, it shall disclose that fact.
58. When an entity adopts the accrual basis of accounting as defined by IPSASs
for financial reporting purposes subsequent to this effective date, this
Standard applies to the entity’s annual financial statements covering periods
beginning on or after the date of adoption.

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Implementation Guidance
This guidance accompanies, but is not part of, IPSAS 11.
Disclosure of Accounting
IG1. The following are examples of accounting policy disclosures for a
department that enters noncommercial construction contracts with other
government agencies for full, partial, or no cost recovery from the other
parties to the contract. The department is also empowered to enter into
commercial construction contracts with private sector entities and GBEs,
and to enter full cost recovery construction contracts with certain state
hospitals and state universities.

Noncommercial Contracts
IG2. Contract costs are recognized as an expense on the percentage of
completion method, measured by reference to the percentage of labor hours
incurred to date to estimated total labor hours for each contract. In some
cases, certain construction activity and technical supervision have been
subcontracted to private sector contractors for a fixed “completion of
contract” fee. Where this has occurred, the subcontracted costs are
recognized as an expense on the percentage of completion method for each
subcontract.
IG3. Contract revenue from full cost recovery contracts and partial cost recovery
contracts entered into by the Department is recognized by reference to the
recoverable costs incurred during the period, measured by the proportion
that recoverable costs incurred to date bear to the estimated total
recoverable costs of the contract.

Commercial Contracts
IG4. Revenue from fixed price construction contracts is recognized on the
percentage of completion method, measured by reference to the percentage
of labor hours incurred to date to estimated total labor hours for each
contract.
IG5. Revenue from cost plus or cost-based contracts is recognized by reference
to the recoverable costs incurred during the period plus the fee earned,
measured by the proportion that costs incurred to date bear to the estimated
total costs of the contract.

The Determination of Contract Revenue and Expenses

IG6. The following examples deal with a noncommercial and a commercial
construction contract. The examples illustrate one method of determining
the stage of completion of a contract and the timing of the recognition of
contract revenue and expenses (see paragraphs 30–43 of this Standard).

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Noncommercial Contracts
IG7. The Department of Works and Services (the construction contractor) has a
contract to build a bridge for the Department of Roads and Highways. The
Department of Works and Services is funded by appropriation. The
construction contract identifies construction requirements, including
anticipated costs, technical specifications, and timing of completion, but
does not provide for any recovery of construction costs directly from the
Department of Roads and Highways. The construction contract is a key
management planning and accountability document attesting to the design
and construction qualities of the bridge. It is used as input in assessing the
performance of the contracting parties in delivering services of agreed
technical specification within projected cost parameters. It is also used as
input to future cost projections.
IG8. The initial estimate of contract costs is 8,000. It will take three years to
build the bridge. An aid agency has agreed to provide funding of 4,000,
being half of the construction costs – this is specified in the construction
contract.
IG9. By the end of Year 1, the estimate of contract costs has increased to 8,050.
The aid agency agrees to fund half of this increase in estimated costs.
IG10. In Year 2, the Government on the advice of the Department of Roads and
Highways approves a variation resulting in estimated additional contract
costs of 150. The aid agency agrees to fund 50% of this variation. At the
end of Year 2, costs incurred include 100 for standard materials stored at
the site to be used in Year 3 to complete the project.
IG11. The Department of Works and Services determines the stage of completion
of the contract by calculating the proportion that contract costs incurred for
work performed to date bear to the latest estimated total contract costs.
IG12. A summary of the financial data during the construction period is as
follows:
Year 1 Year 2 Year 3
Initial amount of revenue agreed in contract 4,000 4,000 4,000
Variation – 100 100
Total Contract Revenue 4,000 4,100 4,100
Contract costs incurred to date 2,093 6,168 8,200
Contract costs to complete 5,957 2,032 –
Total estimated contract costs 8,050 8,200 8,200
Stage of completion 26% 74% 100%

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IG13. The stage of completion for Year 2 (74%) is determined by excluding from
contract costs incurred for work performed to date the 100 for standard
materials stored at the site for use in Year 3.
IG14. The amounts of contract revenue and expenses recognized in the statement
of financial performance in the three years are as follows:
Recognized in Recognized in
To Date prior years current year
Year 1
Revenue (4,000 × .26) 1,040 1,040
Expenses (8,050 × .26) 2,093 2,093
Year 2
Revenue (4,100 × .74) 3,034 1,040 1,994
Expenses (8,200 × .74) 6,068 2,093 3,975
Year 3
Revenue (4,100 × 1.00) 4,100 3,034 1,066
Expenses (8,200 × 1.00) 8,200 6,068 2,132

Commercial Contracts
IG15. The Department of Works and Services (the contractor), while
predominantly funded by appropriation, is empowered to undertake limited
construction work on a commercial basis for private sector entities. With
the authority of the Minister, the Department has entered a fixed price
commercial contract for 9,000 to build a bridge.
IG16. The initial amount of revenue agreed in the contract is 9,000. The
contractor’s initial estimate of contract costs is 8,000. It will take three
years to build the bridge.
IG17. By the end of Year 1, the Department’s estimate of contract costs has
increased to 8,050.
IG18. In Year 2, the customer approves a variation resulting in an increase in
contract revenue of 200 and estimated additional contract costs of 150. At
the end of Year 2, costs incurred include 100 for standard materials stored
at the site to be used in Year 3 to complete the project.
IG19. The Department determines the stage of completion of the contract by
calculating the proportion that contract costs incurred for work performed to
date bear to the latest estimated total contract costs. A summary of the
financial data during the construction period is as follows:

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Year 1 Year 2 Year 3
Initial amount of revenue agreed in contract 9,000 9,000 9,000
Variation – 200 200
Total Contract Revenue 9,000 9,200 9,200
Contract costs incurred to date 2,093 6,168 8,200
Contract costs to complete 5,957 2,032 –
Total estimated contract costs 8,050 8,200 8,200
Estimated surplus 950 1,000 1,000
Stage of completion 26% 74% 100%

IG20. The stage of completion for Year 2 (74%) is determined by excluding from
contract costs incurred for work performed to date the 100 for standard
materials stored at the site for use in Year 3.
IG21. The amounts of revenue, expenses, and surplus recognized in the statement
of financial performance in the three years are as follows:
Recognized in Recognized in
To Date prior years current year
Year 1
Revenue (9,000 × .26) 2,340 2,340
Expenses (8,050 × .26) 2,093 2,093
Surplus 247 247
Year 2
Revenue (9,200 × .74) 6,808 2,340 4,468
Expenses (8,200 × .74) 6,068 2,093 3,975
Surplus 740 247 493
Year 3
Revenue (9,200 × 1.00) 9,200 6,808 2,392
Expenses (8,200 × 1.00) 8,200 6,068 2,132
Surplus 1,000 740 260

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Contract Disclosures
Appropriation/Aid Funded Contracts and Full Cost Recovery Contracts
IG22. The Department of Works and Services was recently created as the entity to
manage the construction of major buildings and roadworks for other
government entities. It is funded predominantly by appropriation, but with
the approval of the Minister is empowered to undertake construction
projects financed by national or international aid agencies. It has its own
construction capabilities and can also subcontract. With the approval of the
Minister, the Department may also undertake construction work on a
commercial basis for private sector entities and GBEs and on a full cost
recovery basis for state hospitals and state run universities.
IG23. The Department of Works and Services has reached the end of its first year
of operations. All its contract costs incurred have been paid for in cash, and
all its progress billings (to aid agencies that have commissioned
construction work) have been received in cash. No advances to the
Department for construction work were made during the period. Contract
costs incurred for contracts B and C include the cost of materials that have
been purchased for the contract but which have not been used in contract
performance to date. No commercial contracts have been undertaken this
year. (See below for examples of commercial contracts.)
 Contract A is funded out of general appropriation revenue. (The
contract includes no “contract revenue” as defined.)
 Contract B is with the Department of Education and the XX Aid
Agency, which is funding 50% of the construction costs. (50% of the
contract cost is to be reimbursed by parties to the contract and therefore
is “contract revenue” as defined.)
 Contract C is totally funded by the National University. (The terms of
the arrangement specify that all of the contract costs are to be
reimbursed by the National University from the University’s major
construction fund. Therefore, “contract revenue” as defined equals
contract costs.)
IG24. The status of the three contracts in progress at the end of Year 1 is as
follows:

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Contract
A B C Total
Contract Revenue recognized in accordance – 225 350 575
with paragraph 30
Contract Expenses recognized in 110 450 350 910
accordance with paragraph 30
Contract Costs funded by Appropriation 110 225 – 335

Contract Costs incurred in the period 110 510 450 1,070

– recognized as expenses (para 30) 110 450 350 910

– recognized as an asset (para 35) – 60 100 160
Contract Revenue (see above) – 225 350 575
Progress Billings (para 52) – 225 330 555
Unbilled Contract Revenue – – 20 20
Advances (para 52) – – – –

The amounts to be disclosed in accordance with the standard are as follows:

Contract revenue recognized as revenue in the period (para 50(a)) 575
Contract costs incurred to date (para 51(a)) (there are no recognized 1,070
surpluses/less recognized deficits)
Gross amount due from contract customers for contract work 150
(determined in accordance with paragraph 54 and presented as an asset in
accordance with paragraph 53(a))
The amounts to be disclosed in accordance with the standard are as follows:
Contract revenue recognized as revenue in the period (para 50(a)) 575
Contract costs incurred to date (para 51(a)) (there are no recognized 1,070
surpluses/less recognized deficits)
Gross amount due from contract customers for contract work 150
(determined in accordance with paragraph 54 and presented as an asset in
accordance with paragraph 53(a))

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Amounts to be disclosed in accordance with paragraphs 51(a) and 53(a) are as

follows (Note: contract revenue for B is 50% of contract costs):
A B C Total

Contract costs incurred 110 510 450 1,070

Progress billings 0 225 330 555

Due from aid agencies and customers – 30 120 150

IG25. The amount disclosed in accordance with paragraph 51(a) is the same as the
amount for the current period because the disclosures relate to the first year
of operation.

Commercial Contracts
IG26. The Division of National Construction Works has been established within
the Department of Works and Services to undertake construction work on a
commercial basis for GBEs and private sector entities at the direction, and
with the approval, of the Minister. The Division has reached the end of its
first year of operations. All its contract costs incurred have been paid for in
cash, and all its progress billings and advances have been received in cash.
Contract costs incurred for contracts B, C, and E include the cost of
materials that have been purchased for the contract, but which have not
been used in contract performance to date. For contracts B, C, and E, the
customers have made advances to the contractor for work not yet
performed.
IG27. The status of its five contracts in progress at the end of Year 1 is as follows:

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Contract
A B C D E Total
Contract revenue recognized in 145 520 380 200 55 1,300)
accordance with paragraph 30
Contract expenses recognized 110 450 350 250 55 1,215)
in accordance with
paragraph 30
Expected deficits recognized in – – – 40 30 70)
accordance with paragraph 44
Recognized surpluses less 35 70 30 (90) (30) 15)
recognized deficits
Contract costs incurred in the 110 510 450 250 100 1,420)
period
Contract costs incurred 110 450 350 250 55 1,215)
recognized as contract expenses
in the period in accordance with
paragraph 30
Contract costs that relate to – 60 100 – 45 205)
future activity recognized as an
asset in accordance with
paragraph 35
Contract revenue (see above) 145 520 380 200 55 1,300)
Progress billings (para 52) 100 520 380 180 55 1,235)
Unbilled contract Revenue 45 – – 20 – 65)
Advances (para 52) – 80 20 – 25 125)

The amounts to be disclosed in accordance with the Standard are as follows:

Contract revenue recognized as revenue in the period (para 50(a)) 1,300)
Contract costs incurred and recognized surpluses (less recognized deficits) to 1,435)
date (para 51(a))
Advances received (para 51(b)) 125)
Gross amount due from customers for contract work – presented as an asset in 220)
accordance with paragraph 53(a)
Gross amount due to customers for contract work – presented as an asset in (20)
accordance with paragraph 53(b)

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The amounts to be disclosed in accordance with paragraphs 51(a), 53(a), and 53(b)
are calculated as follows:
A B C D E Total
Contract costs incurred 110 510 450 250) 100) 1,420

Recognized surpluses less 35 70 30 (90) (30) 15

recognized deficits

145 580 480 160 70 1,435

Progress billings 100 520 380 180) 55) 1,235

Due from customers 45 60 100 –) 15) 220

Due to customers – – – (20) –) (20)

IG28. The amount disclosed in accordance with paragraph 51(a) is the same as the
amount for the current period because the disclosures relate to the first year
of operation.

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Comparison with IAS 11
IPSAS 11, Construction Contracts is drawn primarily from IAS 11, Construction
Contracts. The main differences between IPSAS 11 and IAS 11 are as follows:
 Commentary additional to that in IAS 11 has been included in IPSAS 11 to
clarify the applicability of the standards to accounting by public sector
entities.
 IPSAS 11 uses different terminology, in certain instances, from IAS 11. The
most significant examples are the use of the terms “revenue,” and
“statement of financial performance” in IPSAS 11. The equivalent terms in
IAS 11 are “income,” and “income statement.”
 IPSAS 11 includes binding arrangements that do not take the form of a legal
contract within the scope of the Standard.
 IPSAS 11 includes cost-based and noncommercial contracts within the
scope of the Standard.
 IPSAS 11 makes it clear that the requirement to recognize an expected
deficit on a contract immediately it becomes probable that contract costs
will exceed total contract revenues applies only to contracts in which it is
intended at inception of the contract that contract costs are to be fully
recovered from the parties to that contract.
 IPSAS 11 includes additional examples to illustrate the application of the
Standard to noncommercial construction contracts.

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