Title: AGENDA
1AGENDA
- Cost Sharing Basics
- Ann Holmes, University of Maryland
- Jerry Fife, Vanderbilt University
2AGENDA contd.
- Federal Perspective
- Jean Feldman, National Science Foundation
- One Universitys Perspective
- Michèle Goetz, San Diego State University
Foundation
3WHAT IS COST SHARING?
- A-110
- A.2(i) Cost sharing or matching is the portion of
project or program costs not borne by the Federal
Government.
4DEFINITIONS
- Cash The recipient's cash outlay contributions
under the direct control of the recipient. - In-Kind Value of non-cash contributions provided
by non-Federal third parties.
5THIRD PARTY IN KIND
- Websters Definition with goods or produce
rather than money
6THIRD PARTY IN KIND contd.
- Volunteer Services
- Based on rates paid for similar work
- Associated Benefits
- can not include FA see A-110 c23(e)
7THIRD PARTY IN KIND contd.
- Donated Equipment Supplies
- At current fair market value
8CASH CONTRIBUTIONS
- A-110 Definition the recipients cash outlay,
including money contributed to the recipient by
third parties. - Salaries benefits of University employees
9CASH CONTRIBUTIONS contd.
- University purchased equipment
- Facility Administrative costs on the above
- Waived F A Costs (with permission of the
sponsor)
10SOURCES OF CASH CONTRIBUTIONS
- University unrestricted funds contributed to
project - State funds
- Gift accounts
- Endowment funds
11SOURCES OF CASH CONTRIBUTIONS contd.
- FA recovered and returned to departments
- Program income
12Acceptable Cost Sharing (A-110 C.23)
- Be verifiable from the official University
records - Not be used as cost sharing for any other
sponsored program
13Acceptable Cost Sharing (A-110 C.23) contd.
- Be necessary and reasonable for proper and
efficient accomplishment of the project - Allowable under A-21, the agreement and public
laws
14Acceptable Cost Sharing (A-110 C.23) contd.
- Be incurred during the effective dates of grant
- Not be paid by Feds under another award
15How Is Allowability Determined?
- Allowable Under the agreement, regulations and
public laws - Reasonable A prudent person would have purchased
this item and paid this price
16How Is Allowability Determined? contd.
- Allocable They can be assigned to the activity
on some reasonable basis
17How Is Allowability Determined? contd.
- If a cost cannot meet the above criteria, it is
UNALLOWABLE, no matter what it is for.
18Recent Federal Changes
- Actions to Strengthen the University Federal
Partnership - NSTC PRD-4 Report (April 1999)
19Recent Federal Changes contd.
- Cost Sharing Policies and Practices
- The federal requirement that institutions absorb
the overhead costs associated with voluntary
20Recent Federal Changes contd.
- Cost Sharing Policies and Practices
- cost sharing in the direct costs of a research
project can create a disincentive against
21Recent Federal Changes contd.
- Cost Sharing Policies and Practices
- voluntary contributions of faculty time
22New Definitions
- Voluntary uncommitted cost sharing
- university faculty effort over and above that
which is committed and budgeted for in a
sponsored agreement
23New Definitions contd.
- Committed (Mandatory and Voluntary) Cost Sharing
- cost sharing specifically pledged in the
proposals budget or award
24What Do These Definitions Mean?
- (Voluntary) Uncommitted
- All effort over and above that agreed to as part
of the award is faculty-donated effort (not
university-donated effort)
25What Do These Definitions Mean? contd.
- Since faculty-donated effort is not subject to
the requirements of Circular A-21, there is no
need to document uncommitted cost sharing for
cost accounting purposes
26What Do These Definitions Mean? contd.
- Committed (Voluntary and Mandatory) Cost Sharing
- Committed and budgeted for in a sponsored award
refers to budget or budget justification
27What Do These Definitions Mean? contd.
- Does not include expressions of support included
in proposal narrative or current and pending
support pages
28What Do These Definitions Mean? contd.
- Should not include of effort required in NIH
modular grant applications (since no cost sharing
is required by NIH).
29Accounting Treatment Committed
- Committed Cost Sharing
- Whether mandatory or voluntary, commitments are a
condition of award, must be captured in the
accounting system
30Accounting Treatment Committed contd.
- Must be properly documented for cost accounting
purposes (i.e. FA rate calculation) - Committed faculty effort must be captured in
payroll distribution system
31Accounting Treatment Uncommitted
- (Voluntary) Uncommitted Cost Sharing
- Treated differently from committed cost sharing
32Accounting Treatment Uncommitted contd.
- Not included in organized research base for FA
rate purposes - Not reflected in any allocation of FA
33Other Considerations
- Most Federal projects have some level of
committed effort, paid or unpaid - Effort can be provided at any time of the year
summer months or academic year (or both)
34Other Considerations contd.
- Example If a research proposal includes a
commitment for direct-charged summer salary only,
no academic year organized research effort needs
to be captured
35Three Categories of Research Effort
- Sponsor-paid Salary
- Unaffected by OMB clarification
36Three Categories of Research Effort contd.
- Committed Cost Sharing
- Must be accounted for in the payroll distribution
system and included in the organized research
base - Actual salary budgeted (committed) salary
37Three Categories of Research Effort contd.
- Uncommitted Cost Sharing
- No salary identified in payroll distribution
system or organized research base
38Cautions.....
- Committed faculty effort should not be excluded
from the organized research base by declaring it
to be voluntary uncommitted cost sharing
39Cautions ..... contd.
- If a research sponsored agreement shows no
faculty effort an amount should be included on
the project and included in the OR base
40Cautions ..... contd.
- In the future (2 years), OMB and the research
agencies will evaluate the impactof this
clarification memorandum.
41Cautions ..... contd.
- when an institution reduces a faculty members
level of activities dedicated to other
institutional responsibilities in order to shift
his/her activities to organized research
activities, the institution must reflect
42Cautions ..... contd.
- this reduction in the payroll distribution
system.. and in the FA proposals. - Requires an action by the institution, e.g. a
reduction in teaching load
43Precautions...
- Institutions should continue to review for
expressions of support in proposal narratives,
etc. Auditors will likely review proposals for
commitments that are not reflected in the budget.
44Precautions... contd.
- Increases in FA rates may be scrutinized to
determine the impact of cost sharing - Despite the OMB clarification and
interpretations, audit and negotiation issues are
inevitable
45Common Challenges
- There is a lack of clarity in policies among
funding agencies - Tracking can be difficult for many institutions -
administrative burden
46Common Challenges contd.
- Cost sharing can force a shift of resources from
other institutional priorities - Cost sharing auctions can distort the merit
review process
47Common Challenges contd.
- Whose dollars will be used to make the match (and
who approves of the commitment)?
48Common Challenges contd.
- What happens when our research base grows by the
50 we planned, and our cost sharing commitments
grow the same amount? - Do we really have to track voluntary cost
sharing?
49Common Challenges contd.
- Whose responsibility is it to track cost sharing?
- Departments must be involved
- Central must be involved
50Common Challenges contd.
- How do we track it?
- Separate accounts?
- Separate object codes?
- The infamous shadow systems?
- Must be verifiable
51Where Things Go Wrong
- There is no cost sharing policy
- Cost sharing is not recorded and included in the
base - Both mandatory and committed cost sharing are not
being captured
52Where Things Go Wrong contd.
- Proposal commitments do not match amounts
recorded in financial system or effort system - Effort system does not capture or segregate
different types of cost sharing
53What You Can Do
- Develop a policy
- Mandatory, Voluntary Committed, Voluntary
Uncommitted - What can be cost shared
- Who approves cost sharing
54What You Can Do contd.
- Communicate policy and train
- Research Administration personnel
- P.I.s
- Departmental Administrators
55What You Can Do contd.
- Establish an accounting methodology to capture
cost sharing - Manage cost sharing
- Budget for institutional cost sharing
56What You Can Do contd.
- Monitor cost sharing in relation to the research
enterprise
57Cost Sharing Effort Reporting
- Effort reporting is often used to capture
committed cost sharing - Effort reporting is necessary to capture
voluntary cost sharing - additional effort
provided by faculty
58Cost Sharing Effort Reporting contd.
- Additional time spent on a project leads to a
lower FA rate
59Effort Reporting
- What is effort reporting?
- A means of verifying that appropriate salary and
wage expenses were charged to sponsored programs - A means of verifying that cost sharing was
performed as promised
60Effort Reporting contd.
- A means of verifying that total effort
commitments were met - A means of verifying that labor costs supporting
sponsored activity was appropriately classified
in the facilities and administrative (FA) cost
rate
61Effort Reporting Federal Requirements
- OMB Circular A-21, Section J.8 (Compensation for
Personal Services) - Audience Educational Institutions
62Effort Reporting Requirements contd.
- Effort reporting requirements are in section
J.8.b c - After-the-fact confirmation of personnel costs
charged to sponsored agreements
63Effort Reporting Requirements contd.
- The system must be incorporated into the official
records of the institution
64Effort Reporting Requirements contd.
- Must reasonably reflect the activity for which
the employee was paid - Must include both sponsored projects and other
activities
65Effort Reporting Requirements contd.
- Certification to be performed by an individual
with knowledge of all the employees activities - See OMB A21 J.8.c.2.c
66Cost Sharing at the National Science Foundation
67Coverage
- The development, issuance, and subsequent
revision of the NSF Cost Sharing Policy - NSFs Statutory Cost Sharing Requirement
68Coverage contd.
- NSF Specific Cost Sharing Requirements
- Audit Issues
69Pre-Important Notice 124
- In May, 1998, NSF senior management commissioned
an internal working group to examine NSFs
existing policies, practices, and concerns from
the community about the cost sharing issue.
70Pre-Important Notice 124 contd.
- Charter requested that the working group develop
a strategy to address legitimate concerns.
71NSF Working Groups Recommendations
- NSF adopt a clear statement of policy on cost
sharing - NSF inform the community of its policy on cost
sharing via appropriate mechanisms
72NSF Working Groups Recommendations contd.
- NSF ensure that program officers are aware of the
guidelines on cost sharing and
73NSF Working Groups Recommendations contd.
- NSF ask for vigilance on the part of all staff to
reduce arbitrary and confusing communication of
NSFs cost sharing policies in all dealings with
the community.
74Important Notice 124
- Cost sharing is considered an eligibility
criterion rather than a review criterion. - Cost sharing requirements beyond the statutory
(1) must be clearly stated in the funding
opportunity.
75Important Notice 124contd.
- NSF requires only statutory cost sharing for
unsolicited research projects.
76Important Notice 124contd.
- Any negotiation with proposers as to the level or
amount of NSF required cost sharing will occur
either prior to the review process to establish
the projects eligibility for consideration or
after merit review
77Important Notice 124contd.
- has been completed to adjust cost sharing to
the agreed-upon amount of the award.
78Important Notice 124contd.
- NSF program officers must follow the current
guidance which states that they may discuss with
PIs the bottom line award amount, but may not
renegotiate or impose other institutional
commitments.
79Important Notice 124contd.
- In budget negotiations, any reduction of 10 or
more should be accompanied by a corresponding
reduction in the scope of the project, unless the
PO, PI and institution clearly agree that the
project
80Important Notice 124contd.
- as proposed can be carried out at a lesser
level of support from NSF with no expectation of
any uncompensated institutional contribution
beyond that formally reflected as cost sharing.
81Reassessment of Cost Sharing Policy
- Even with issuance of the cost sharing policy.
- NSF continued to receive negative feedback
related to the cost sharing issue from the
community
82Reassessment of Cost Sharing Policy contd.
- NSF remained an outlier with respect to the cost
sharing issue among research funding agencies
83Reassessment of Cost Sharing Policy contd.
- DOE, NIH, DOD, USDA, and NASA do not regularly
impose non-statutory programmatic cost sharing
requirements
84Reassessment of Cost Sharing Policy contd.
- There continued to be a significant number of
awards made that included cost sharing on Line M - The OIG included cost sharing in its 2002 list of
Management Challenges for the agency
85Community Feedback
- Program staff continued to negotiate cost sharing
- There is too much emphasis on accounting rather
than results and outcomes
86Community Feedback contd.
- The role of cost sharing in the merit review
process remains ambiguous - The role of cost sharing vs. scientific merit in
funding decisions by program staff is unclear
87Community Feedback contd.
- Documenting in-kind contributions remains
problematic - Different NSF requirements are established for
like programs
88Cost Sharing Challenge
- Audits continued to reveal problems with cost
sharing that include - Shortfalls in contributions
- Instances of missing or insufficient documentation
89Cost Sharing Challenge contd.
- Systems that are inadequate to ensure their
proper accounting
90Cost Sharing Challenge contd.
- OIG recommended that NSF re-examine its policies
on the reporting of cost sharing and resolve any
questioned costs to better ensure compliance with
Federal guidelines.
91Options
- Maintain the status quo
- Defer the decision until further analysis can be
completed - Permit imposition of statutory cost sharing
requirements only, thereby eliminating all
program specific cost sharing
92Options contd.
- Require NSB approval prior to imposing program
specific cost sharing requirements - Permit imposition of cost sharing only in
circumstances identified in IN 124, i.e., where
there is a tangible benefit to award recipients
93Options contd.
- Infrastructure awards (instrumentation,
equipment, centers) - Awards where there is clear potential to generate
income.
94Results of Review
- Based on a recommendation by the National Science
Board Audit and Oversight Committee at their
August 2002 meeting, BFA reexamined the Cost
Sharing policy previously issued in June 1999.
95Results of Review contd.
- Results revealed issues that have surfaced are
related to enforcement and implementation. - Basic components of the policy remained valid.
96Proposed Resolution
- Revise the following aspect of the cost sharing
policy - In budget negotiations, any reduction of 10 or
more should be accompanied by a corresponding
reduction in the scope of the project, unless
97Proposed Resolution contd.
- the PO, PI and institution clearly agree that
the project as proposed can be carried out at a
lesser level of support from NSF with no
expectation of any uncompensated
98Proposed Resolution contd.
- institutional contribution beyond that formally
reflected as cost sharing. - Replace with the following language
99Proposed Resolution contd.
- In budget negotiations, any reduction of 10 or
more should be accompanied by a corresponding
reduction in the scope of the project.
100Important Notice 128 January, 2003
- Cost sharing is an eligibility rather than a
review criterion - NSF cost sharing requirements beyond the
statutory (1) will be clearly stated in the
relevant program solicitation
101Important Notice 128 January, 2003 contd.
- NSF can require cost sharing only when there is a
tangible benefit to the awardee - For unsolicited research projects, only statutory
cost sharing will be required
102Important Notice 128 January, 2003 contd.
- NSF Program Officers may not negotiate or impose
additional institutional commitments -- however,
they may discuss the bottom line
103Important Notice 128 January, 2003 contd.
- Any reduction of 10 or more of the proposed
budget should be accompanied by a corresponding
reduction in scope of the research
104Implementation Progress
- Issued Important Notice 128 (01/03), Revision of
the NSF Cost Sharing Policy, to clarify position - Revised Grant Proposal Guide to include cost
sharing instructions for proposers
105Implementation Progress contd.
- Do not include voluntary cost sharing amounts on
Line M of the proposal budget - Do not exceed the cost sharing level or amount
specified in the solicitation
106Implementation Progress contd.
- Do not include voluntary cost sharing amounts on
Line M of the proposal budget - Do not include statutory cost sharing on Line M
107Implementation Progress contd.
- Strengthened review process for solicitations
that require cost sharing - FastLane system has been revised to mask Line M
from reviewers
108Implementation Progress contd.
- Specific focus has been on internal and external
training - Next Use solicitation data to make Line M
unfillable if cost sharing is not required
109And the saga continues.
110NSF Statutory Cost Sharing Req.
- The appropriations providing funds to NSF and
other independent agencies contain the following
language
111NSF Statutory Cost Sharing Req. contd.
- None of the funds provided in this Act may be
used for payment, through grants and contracts,
to recipients that do not share in the cost of
conducting
112NSF Statutory Cost Sharing Req. contd.
- research resulting from proposals for projects
not specifically solicited by the Government
Provided, that the extent of cost sharing by the
recipient reflect the
113NSF Statutory Cost Sharing Req. contd.
- mutuality of interest of the grantee or
contractor and the Government in the research.
114Documents for Statutory Cost Sharing
- Grantees can comply through use of two
alternative methods - Cost share a minimum of one percent on each and
every project
115Documents for Statutory Cost Sharing contd.
- Cost share a minimum of one percent on the
aggregate total costs of all projects requiring
cost sharing - Decisions on the method to use are made by the
grantee
116Cost Sharing 500,000
- When cost sharing reflected on Line M of the
cumulative award budget is 500,000 or more, the
amount of cost sharing must be documented and
certified by the Authorized Organizational
Representative.
117Cost Sharing 500,000 contd.
- Such certifications must be submitted
electronically via FastLane at least - 90 days prior to the end of the current budget
period to meet the annual certification
requirement
118Cost Sharing 500,000 contd.
- 90 days following the expiration of the award to
meet the final certification requirement.
119If obligation cannot be met
- NSF Grant General Conditions (GC-1) Article 22.b.
states
120If obligation cannot be met contd.
- Should the awardee become aware that it may be
unable to provide the cost sharing amount
identified on Line M of the NSF award budget, it
must
121If obligation cannot be met contd.
- (The grantee must)
- Immediately provide written notification to the
Grants Officer of the situation
122If obligation cannot be met contd.
- Indicate steps it plans to take to secure
replacement cost sharing - Indicate the plans it has to either continue or
phase out the project in the absence of cost
sharing.
123If obligation cannot be met contd.
- Should NSF agree to the organizations proposed
plans, the NSF Grants Officer will - Modify the award accordingly, including, if
appropriate, reducing the amount of NSF support.
124If obligation cannot be met contd.
- Should the organizations plans be unacceptable
to NSF, the award may be subject to termination.
125If obligation cannot be met contd.
- NSF modifications to proposed cost sharing
revisions are made on a case-by-case basis.
126If obligation cannot be met contd.
- Failure by the organization to notify NSF, may
result in - The disallowance of some or all of the costs
charged to the award
127If obligation cannot be met contd.
- The subsequent recovery by NSF of some or all of
the NSF funds provided under the award - Possible termination of the award
128If obligation cannot be met contd.
- May constitute a violation of the terms of the
award so serious as to provide grounds for
subsequent suspension or debarment.
129NSF Cost Sharing Audit Issues
- Cost Sharing At Risk if award still active or
Questioned if award expired - Percentage of total project cost and proportion
offset to NSF funded share is amount of
disallowance if inactive
130NSF Cost Sharing Audit Issues contd.
- Types of cost sharing initially promised are not
the types actually delivered - Grantee accounting systems not capturing cost
sharing identified with a particular project
131NSF Cost Sharing Audit Issues contd.
- Failure to keep adequate source documentation for
claimed cost sharing - Unclear valuation of in-kind donated
contributions - Lack of support for cost sharing contributions by
subrecipients
132NSF Cost Sharing Audit Issues contd.
- Failure to complete annual certifications for
awards with cost sharing requirements of 500,000
or more - Failure to apply due credits Educational
Volume discounts
133Where can I get help from NSF?
- A revised set of FAQs are available on the NSF
website at - http//www.nsf.gov/bfa/dga/policy/docs/csfaqs03_1.
pdf
134Where can I get help from NSF? contd.
- Types of questions include
- If, how and when cost sharing factors into the
review process - Scenarios encountered during pre-award budget
negotiations
135Where can I get help from NSF? contd.
- Documentation of cost sharing, including third
parties - Audit and Compliance issues, including voluntary
and involuntary cost sharing situations
136Final pieces of advice
- Bottom line only commit to cost share when it
is required, and then, only at level or amount
required! - Document, document, document.
137Cost Sharing Process _at_ SDSU Foundation
138Who are We?
- California State University System 34,000
students - Instructional arm of state educational system
- Approximately 350 active research faculty
139SDSU Foundation
- Separate 501.c.3 auxiliary to SDSU
- Mission To further the educational, research
and community service mission of the University
140SDSU Foundation contd.
- Primary function development and administration
of grants and contracts - 130 million in research awards last fiscal year
141SDSU Foundation contd.
- 60 federal or federal pass-through
- 1100 active awards
- Approximately 165 with cost sharing valued at 19
million
142Campus Culture Before 2000
- Limited campus awareness or attention to cost
sharing issues - No guidance or restrictions on when cost sharing
will be offered - P.I.s offer cost sharing to make proposal more
competitive
143Campus Culture
- Cost share tracked on Excel spreadsheets on fund
by fund basis by SDSU Foundation staff - P.I.s not responsible for documentation of cost
sharing - Documentation typically done at end of project
144Other Challenges
- Majority of cost share from University or other
third parties - Non-specific commitments for faculty effort in
proposals - University resistant to providing copies of
source documents
145Summer 2000.
- Audited by NSF Inspector General on cost sharing!
146Audit Findings
- Late effort reports
- R D clustering for A-133 audits
- Cost sharing certification signed by P.I. and
Administrator
147Audit Findings contd.
- Unacceptable cost sharing of 1,061 - lost
receipt for 69 - math error in valuation of
effort
148Campus Culture Post Audit
- Clear, articulated Institutional Cost Sharing
Policies and Procedures - Greater awareness and cooperation among
University administration, faculty, and staff
149Campus Culture Post Audit contd.
- Emphasis on training
- Shared responsibility for documentation
150Current Policy
- Avoid offering cost sharing if not a requirement
- All cost share offered, voluntary or mandatory,
must be documented regardless of funding source
151Current Policy contd.
- Document cost share commitments throughout the
life of award - Communicate problems early
152Cost Sharing Tools
- Training courses for central staff, faculty and
project staff - Revised proposal routing form
153Cost Sharing Tools contd.
- Modified accounting software to track cost share
commitments electronically - Monthly reporting to management of documentation
154Training Research Administrators
- Detailed training of all new central staff
administrators - Periodic refresher trainings for pre and
post-award departments - Other professional development conferences and
workshops
155 Training Faculty and Project Staff
- Bi-annual cost sharing training sessions
- One-on-one training with Deans and P.I.s
- Transition meetings
- NCURA Videoconference series
156Proposal Stage
- Check RFA/RFP to determine if cost sharing is
required - All voluntary cost sharing or amounts above
required level must have Chair and/or Deans
approval prior to submission
157Routing Form Revisions
- Revised routing form to require detailed
breakdown and source of cost sharing - Salary commitments must identify individual by
name - P.I. certifies on routing no hidden cost share
in proposal narrative
158Proposal Documentation
- Cost sharing detailed budget signed by all
contributing parties - Actual cash match obligations must be certified
by Department Chair or Dean
159Proposal Documentation contd.
- Letter of commitment of resources from
third-party contributors - P.I. receives copy of cost sharing policies and
procedures
160Proposal Documentation
- Advised of the responsibility to provide
appropriate documentation
161Initial Post Award Review
- Identify commitments made in proposal
- Validate obligation in writing with P.I., Chair
and/or Dean and require certification of
availability of resources - Input budget commitment into accounting system
162The PI _at_ Post Award
- Redistribute policy/procedures to P.I.
- Transition meeting
163Monitoring and Reporting
- Work with P.I. to track and document actual cost
share expenditures throughout life of award - Verify cost is allowable under applicable
policies and valued appropriately
164Monitoring and Reporting
- Monthly reporting of commitment vs. match
documented to date - Management review of progress
- Possible sponsor contact if match not obtainable
165Subrecipient Match
- Assess subrecipient risk
- Cost share and audit clauses in subagreements
- Subrecipient training and sample documentation
166Subrecipient Match contd.
- Require source documentation with invoices
167Closeout Process
- Recheck of all source documents
- Compilation of summary of match obtained vs.
required match - Review by Management
168Closeout Process
- Report to Sponsor Agency if required
- Possible carryover of unmet commitment to
subsequent year of award - Storage and retention of records for three years
169On-going Challenges
- Still primarily a manual system
- Tracking of cost share commitments at Department
and College level to ensure fulfillment - Continuing education of faculty and project staff
170Documentation Challenges
- Documentation of cost share commitments by
subrecipients - Identifying and capturing faculty time on effort
reporting - Gathering of source documents when expense
incurred vs. end of project
171Plans for Enhancement
- Modify accounting system to track total amount
documented to date - Exploring capability of booking third-party
documentation in memo ledger
172Summary
- Cost Sharing Policy Available at
http//www.foundation.sdsu.edu/ - Click on Grant and Project Information
- Click on Project Administration Guide
173Summary continued
- University of Maryland Cost Sharing Policy
- http//www.inform.umd.edu/CampusInfo/Departments/
PRES/policies/iv400a.html
174Special Thanks To
- Patrick Fitzgerald MIT
- Robert Hardy - COGR
- Robert Killoren Pennsylvania State
- Beth Mora Harvard University
- Michelle Vazin Vanderbilt University
- Laura Yaeger Huron Consulting Group