[Federal Register Volume 61, Number 205 (Tuesday, October 22, 1996)]
[Notices]
[Pages 54816-54823]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 96-27059]


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LEGAL SERVICES CORPORATION


Audit Guide for LSC Recipients and Auditors

AGENCY: Legal Services Corporation.

ACTION: Proposed Revisions to the LSC Audit Guide for Recipients and 
Auditors.

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SUMMARY: The Legal Services Corporation (LSC) hereby publishes as final 
the revisions to the November 1995 LSC Audit Guide for Recipients and 
Auditors. The revisions incorporate the audit requirements and 
additional provisions imposed by Congress through 110 Stat. 1321 
(1996). There are seven appendices to the revised Audit Guide, which in 
themselves establish no new rules, regulations or guidelines for 
recipients and auditors, and therefore are not published herein.

EFFECTIVE DATE: The requirements of this Audit Guide are effective for 
audits

[[Page 54817]]

of fiscal years ending on or after December 31, 1996 except as 
otherwise directed by the Corporation.

ADDRESSES: Comments should be submitted to the Office of Inspector 
General, Legal Services Corporation, 750 First St., N.E., 10th Floor, 
Washington, DC 20002-4250.

FOR FURTHER INFORMATION CONTACT: Karen M. Voellm, Chief of Audits (202) 
336-8812.

SUPPLEMENTARY INFORMATION: Section 1009(c)(1) of the Legal Services 
Corporation Act, 42 USC Sec. 2996h(c)(1), requires that the Corporation 
either directly ``conduct, or require each grantee, contractor, or 
person or entity receiving financial assistance'' from the Corporation 
to provide for an annual financial audit. LSC's FY 1996 appropriation 
act, 110 Stat. 1321 (1996), declared that audits conducted pursuant to 
the provisions of Section 509 of that Act shall be in lieu of the 
financial audits otherwise required by Section 1009(c) of the LSC Act. 
In Section 509, Congress: (1) mandated that routine on-site monitoring 
of grantee compliance be accomplished through annual audits conducted 
by independent public accountants (IPAs or auditors), 110 Stat. 1321, 
Sec. 509(a) and (c); (2) provided that such audits be conducted in 
accordance with Government Auditing Standards, issued by the 
Comptroller General of the United States, under the guidance 
established by the OIG, 110 Stat. 1321, Sec. 509(a); (3) established 
special requirements for interim reporting by recipients on 
noncompliance with laws and regulations identified by their IPAs during 
the course of the audit, thereby placing special emphasis on 
recipients' compliance with laws and regulations, 110 Stat. 
1321,Sec. 509(b); and (4) made sanctions available to the Corporation 
and the OIG for audits that were not conducted in accordance with the 
guidance established by the OIG, 110 Stat.1321, Sec. 509(c). Congress 
also increased the restrictions and prohibitions on the types of 
activities in which recipients may engage, 110 Stat. 1321, Sec. 504-
508. The revisions to the Guide incorporate these requirements and 
include, but are not limited to: (1) interim reporting requirements by 
the recipient on instances of noncompliance found by the auditor during 
the course of the audit; (2) changes to the submission date for audit 
reports; and (3) additional reports/notifications from the auditor.
    On August 13, 1996 the OIG published in the Federal Register for 
public notice and comment the revisions to the November 1995 Audit 
Guide for LSC Recipients and Auditors. (61 FR 42064-42070). The notice 
provided for a thirty-day comment period. Comments were received from 
eight respondents: the American Institute of Certified Public 
Accountants (AICPA), Center for Law and Social Policy (CLASP), a 
certified public accounting firm, and five recipients. The comments 
were analyzed and addressed as follows. Some respondents opposed the 
proposed 90-day due date for the audit reports, one requested a 
clarification as to the reason for the change in the due date of audit 
reports from 150 days to 90 days. The LSC Board and senior management 
also expressed concerns about the revision to the 90-day time period 
for audit report submission. The 90-day time period had been in effect 
prior to promulgation of the November 1995 Audit Guide which changed 
the time period to 150 days.
    The OIG believes its operational responsibilities for reviewing 
audit reports and ensuring compliance with reporting standards, as well 
as the timely resolution of audit findings support a shorter turn-
around. However, upon careful consideration, the OIG has determined 
that a 120-day reporting requirement reasonably accommodates the 
concerns of the OIG and recipients.
    One respondent stated that the Guide should clarify the 
relationship between the LSC Audit Guide and Office of Management (OMB) 
Circular A-133 requirements as some of the requirements of the Audit 
Guide are not requirements of OMB Circular A-133, e.g special reporting 
on noncompliance. In addition, the respondent noted that the Audit 
Guide should address situations where the LSC program may be determined 
to be ``low risk'' under the criteria of OMB Circular A-133, and not be 
audited as a ``major program''.
    In order to clarify the relationship between A-133 and the Audit 
Guide, the language in the Audit Guide under the Section labeled 
``PURPOSE'' has been revised to clarify that Section 509(a) of 110 
Stat. 1321 (1996) mandates the objectives of the audit of each 
recipient of LSC funds. Those provisions and, hence, the Audit Guide, 
take precedence over the requirements of OMB Circular A-133. Stated 
another way, regardless of the particular criteria in A-133, the LSC 
program should always be considered a ``major program.''
    A new Section II-1.D, Auditor Access to Records, has been added to 
make clear that, in performing the audit, the IPA will have access to 
all records of the recipient that the IPA believes are reasonably 
necessary to the performance of the audit. This was implicit in the 
proposed revisions but, because the OIG received some comments 
indicating that there may have been some confusion on this point, an 
explicit statement of access has been included.
    It is axiomatic that IPAs cannot conduct an adequate audit if 
unable to obtain sufficient documentation regarding compliance with the 
requirements to be audited. Access to such documentation should not be 
impeded as it is well established that recipient IPAs in conducting 
audits are within the attorney-client privilege. See ABA Informal 
Opinion No. 1443 (December 10, 1979); c.f., ABA Model Rules of 
Profession Conduct, Rule 5.3. Section 509 of the appropriations act was 
intended to reduce barriers to government auditors and monitors. It 
does not apply to the IPAs hired by the recipient. IPAs, of course, 
must abide by professional standards of conduct and, except if 
permitted to disclose such information, must keep confidential the 
information obtained in the course of the audit. AICPA Code of 
Professional Conduct, Sec. 301.01.
    One respondent viewed references to the laws and regulations 
subject to interim reporting as confusing. The criteria for reporting 
apply to any instances of noncompliance found by the auditor with 
respect to the practice restrictions identified in the Compliance 
Supplement. The language was revised to clarify the requirement.
    The proposed revisions quoted under Section I-4, Authority, are 
those statutory provisions relied upon as authority to promulgate the 
Guide. The OIG deleted the quotations and simply cited the relevant 
statutory provisions. Full quotations are not only unnecessary, their 
inclusion in the Guide caused some confusion among respondents.
    Respondents recommended that notification to the OIG be required 
only when there is disagreement between the recipient and the auditor 
resulting in the auditor's resignation or a termination of services 
during the course of the audit. The OIG views all notifications on 
change of auditors as important to its management information systems 
and its communication with recipients and auditors. No exceptions were 
made to the reporting requirement.
    Some of the respondents suggested that the Audit Guide address the 
allocation of audit costs among funding sources, in light of the 
provision of Section 509(c) of 110 Stat. 1321 (1996), and current 
limitations imposed by some funding sources on the allocation of audit 
costs to the respective grants, e.g. Administration on Aging grants. 
The OIG and Corporation management

[[Page 54818]]

view the issue of audit cost allocation as an accounting rather than an 
auditing issue. Allocation of audit cost is a subject of the LSC 
Accounting Guide for Recipients and Auditors and 45 C.F.R Part 1630 
(Cost Standards and Procedures) and is therefore not addressed in this 
Audit Guide. Management will provide guidance to recipients in the near 
future.
    One respondent commenting on the statutory language that requires 
the auditor to select a representative number of transactions for 
testing compliance suggested that the Audit Guide provide information 
on minimum number of transactions to be tested for compliance. Auditors 
are required to refer to the AICPA's Statements on Auditing Standards, 
Government Auditing Standards, and OMB Circular A-133, and to use their 
own judgement in determining sample sizes for testing. No changes were 
made to the Audit Guide to address this comment.
    One respondent commented that the auditor's reporting 
responsibility to the OIG under Section II-1.G, Disclosure of 
Irregularities, Illegal Acts, and Other Noncompliance, was unclear and 
not adequately distinguished from the recipient's reporting 
responsibility. The language was revised to clarify the recipient's 
responsibility for reporting to the OIG under the LSC grant assurance, 
and to recognize the auditor's responsibility to report to specified 
external parties (including the OIG) under Government Auditing 
Standards, Chapter 5.
    There are seven appendices to the Audit Guide. One of the 
appendices to the Audit Guide is a revised Compliance Supplement which 
identifies regulations that the auditor should examine in the course of 
the recipient's annual audit, compliance requirements prepared by 
management, and audit procedures developed by the OIG for the auditor's 
use in assessing compliance with applicable laws and regulations. The 
other appendices include a sample audit agreement, a Guide for 
Procurement of Audit Services, a summary findings form, the recipient's 
and the auditor's 5-day notification to the OIG of the auditor's 
special report on noncompliance with laws and regulations, and the 
auditor's notification on cessation of services. Recipients and 
interested parties have been provided an opportunity to comment on the 
Compliance Supplement before final adoption. Because the appendices 
themselves establish no new rules, regulations, or guidelines for 
recipients, they are not published for comment.
    For the reasons set forth above, the Audit Guide is revised to read 
as follows:
Legal Services Corporation
Audit Guide for Recipients and Auditors
Foreword
    Under the Legal Services Corporation (LSC) Act, LSC provides 
financial support to organizations that furnish legal assistance to 
eligible clients. Section 1009(c) of the LSC Act requires that LSC 
either conduct or require each recipient of LSC funds to provide for an 
annual financial statement audit. In 1995, LSC promulgated an Audit 
Guide to replace the audit portions of both the 1981 and the 1986 LSC 
Audit and Accounting Guide for Recipients and Auditors. The 1995 Guide 
required that recipient audits be conducted in accordance with Office 
of Management and Budget (OMB) Circular A-133, Audits of Institutions 
of Higher Education and Other Nonprofit Institutions.
    In 1996, pursuant to 110 Stat. 1321 (1996) (Public Law 104-134), 
Congress:
    1. Mandated that routine on-site monitoring of grantee compliance 
be accomplished through annual audits conducted by independent public 
accountants (IPAs or auditors);
    2. Provided that such audits be conducted in accordance with 
Government Auditing Standards issued by the Comptroller General of the 
United States under the guidance established by the OIG;
    3. Declared that audits conducted pursuant to the provisions of 
Section 509 shall be in lieu of the financial audits otherwise required 
by Section 1009'' of the LSC Act;
    4. Increased the restrictions and prohibitions on the types of 
activities in which recipients may engage; and
    5. Established special requirements for interim reporting by 
recipients on noncompliance with laws and regulations identified by 
their IPAs during the course of the audit, thereby placing special 
emphasis on recipients' compliance with laws and regulations.
    This legislation contains substantial and fundamental changes in 
the law governing grants to LSC recipients. It incorporates 
restrictions in the legal work in which LSC recipients may participate, 
and changes the way compliance with these restrictions will be 
monitored. The IPA's special attention is directed to Appendix A, the 
Compliance Supplement, in planning the audit. The Compliance Supplement 
identifies by asterisk (*) practice restrictions that are considered 
material to the LSC program. Because of the increased reliance on IPAs 
for assessing recipients' compliance with these restrictions, the OIG 
is planning a heightened quality assurance review program. The overall 
objective of the quality assurance review program is to ensure the 
quality of the auditor's work, and it will focus on, among other 
things, the auditor's testing of compliance with laws and regulations 
and related internal controls.
    Pursuant to the audit requirements of 110 Stat. 1321 (1996), LSC is 
promulgating this revised Audit Guide. Seven appendices have been 
attached to this Audit Guide for use by recipients and auditors, as 
follows:
    Appendix A--The Compliance Supplement provides notice to both 
recipients and their auditors of the specific LSC regulations which are 
to be tested for compliance. The Compliance Supplement will change as 
LSC rules, regulations and guidelines are adopted, amended or revoked, 
but it establishes no new rules, regulations or guidelines itself.
    Appendix B--A Sample Audit Agreement contains mandatory and 
suggested provisions which recipients should consider incorporating 
into their audit agreements.
    Appendix C--A Guide for Procurement of Audit Services prepared by 
the LSC Office of Inspector General (OIG) in the spring of 1994 and 
revised in 1995 and 1996. This Guide is intended to assist recipients 
in planning and procuring audit services.
    Appendix D--A Summary Findings Form on Noncompliance with Laws and 
Regulations, Questioned Costs and Reportable Conditions, along with 
instructions. This form provides a summary of the audit findings 
contained in the audit reports and financial data concerning the LSC 
support, fund balance and expenditures on Private Attorney Involvement 
(PAI).
    Appendix E--The Recipient 5-day Letter to the OIG of the IPA's 
``Special Report on Noncompliance with Laws and Regulations'' 
(``Recipient 5-day Letter''). This is the recipient's transmittal 
letter to the OIG accompanying the auditor's report.
    Appendix F--The Auditor 5-Day Letter to the OIG of the IPA's 
``Special Report on Noncompliance with Laws and Regulations'' not 
Reported by Recipient (``Auditor 5-Day Letter''). This is the auditor's 
transmittal letter to the OIG accompanying the auditor's report.
    Appendix G--The Auditor Notification on Cessation of Services. This 
a form letter notifying the OIG that there has been a change in audit 
firms.

[[Page 54819]]

Table of Contents

I. Introduction
    I-1 Purpose
    I-2 Required Standards and Guidance
    I-3 Applicability
    I-4 Authority
    I-5 Effective Date
    I-6 Communicating with the OIG Regarding Audit Matters
    I-7 Revisions to the Guide
    I-8 Cumulative Status of Revisions
    I-9 Responsibilities of Recipients
II. Audit Performance Requirements
    II-1 Audit Requirements
    II-2 Review of Internal Controls
    II-3 Assessing Compliance with Laws and Regulations
    II-4 Audit Follow-up
III. Audit Reporting Requirements
    III-1 Audit Reports and Distribution
    III-2 Extension Requests for Audit Submissions
    III-3 Views of Responsible Officials
IV. Reference Materials
Appendix A--Compliance Supplement
Appendix B--Sample Audit Agreement
Appendix C--Guide for Procurement of Audit Services by Legal 
Services Corporation Recipients
Appendix D--Summary Findings Form on Noncompliance with Laws and 
Regulations, Questioned Costs and Reportable Conditions
Appendix E--The Recipient 5-day Letter to the OIG of the IPA's 
``Special Report on Noncompliance with Laws and Regulations'' 
(``Recipient 5-day Letter'')
Appendix F--The Auditor 5-Day Letter to the OIG of the IPA's 
``Special Report on Noncompliance with Laws and Regulations'' not 
Reported by Recipient (``Auditor 5-Day Letter'')
Appendix G--Auditor Notification on Cessation of Services

    Note: Appendixes A-G do not appear in the Federal Register. See 
SUPPLEMENTARY INFORMATION.

    Authorities: The Legal Services Corporation Act of 1974, as 
amended, Sec. 1008 (a) and (b), (42 USC 2996g (a) and (b)); 
Sec. 1009(c)(1), (42 USC 2996h(c)(1)); and Sec. 1010(c), (42 USC 
2996i(c)); The Inspector General Act of 1978, as amended, 5 USC App. 
3, Sec. 4(a)(1); and Sec. 4(b)(1); 110 Stat. 1321 Secs. 501-509 
(1996).

LSC Audit Guide for Recipients and Auditors

I. Introduction

    The Office of Inspector General (OIG) of the Legal Services 
Corporation (LSC) is responsible for establishing and interpreting LSC 
audit policy pursuant to the Inspector General Act of 1978, as amended, 
and the LSC Board of Directors' resolution of May 13, 1995. In 1996, 
pursuant to the requirements of Section 509 of 110 Stat. 1321 (1996), 
Congress: (1) mandated that routine on-site monitoring of grantee 
compliance be accomplished through annual audits conducted by IPAs; (2) 
increased the restrictions and prohibitions on the types of activities 
in which recipients may engage; (3) increased the OIG responsibility 
for oversight; and (4) declared that the audits conducted pursuant to 
Section 509 of 110 Stat. 1321 (1996) were in lieu of the financial 
audits otherwise required by the LSC Act Sec. 1009(c). This Guide 
incorporates those requirements. The OIG will examine the audits to 
identify reported instances of noncompliance with laws and regulations, 
questioned costs and control deficiencies, and will refer the findings 
and recommendations to management for action.
I-1. Purpose
    The Audit Guide provides a uniform approach for audits of LSC 
recipients and describes recipients' responsibilities with respect to 
the audit. The Audit Guide is to be used in conjunction with the 
Compliance Supplement (Appendix A). The Audit Guide and the Compliance 
Supplement provide the auditor flexibility in planning and performing 
the audit, encourage professional judgment in determining the audit 
steps necessary to accomplish audit objectives, and do not supplant the 
auditor's judgment. Auditors should be aware that all practice 
restrictions identified in the Compliance Supplement by asterisk (*) 
are considered material to the program, and the failure of a recipient 
to comply with the requirements may affect the recipient's eligibility 
for funding.
I-2. Required Standards and Guidance
    Audits of recipients, contractors, persons or entities receiving 
financial assistance from LSC (all hereinafter referred to as 
``recipients'') are to be performed in accordance with Government 
Auditing Standards (GAS or GAGAS) issued by the Comptroller General of 
the United States; Office of Management and Budget (OMB) Circular A-
133, Audits of Institutions of Higher Education and Other Nonprofit 
Organizations; and this Audit Guide.
    For purposes of OMB Circular A-133, the LSC Compliance Supplement 
is to be followed for LSC funds and includes the restrictions and 
prohibitions on the use of non-LSC funds. Accordingly, the OMB 
Compliance Supplement for Audits of Institutions of Higher Education 
and Other Nonprofit Institutions (OMB Compliance Supplement) does not 
apply to LSC funds. If the non-LSC funds (Federal or state) of a 
recipient are subject to consideration under the OMB Circular A-133 
audit, the OMB Compliance Supplement may otherwise apply to those 
funds.
    Each recipient of LSC funds is required to have an audit in 
accordance with the requirements of this Guide. Such audit shall meet 
the objectives outlined in Section II-1.A, ``Objectives'', which 
include an assessment of the recipient's compliance with the laws and 
regulations identified in the Compliance Supplement (Appendix A).
I-3. Applicability
    The requirements of this Audit Guide apply to all recipients and 
subrecipients of LSC funds, except where specific provisions have been 
otherwise made through grant or subgrant agreements. This Audit Guide 
does not apply to grants to law schools, universities or other special 
grants, which are covered by special provisions of the respective grant 
agreements. Exceptions to these audit requirements are determined by 
the OIG in consultation with management.
I-4. Authority
    This Audit Guide has been prepared under the authority provided by 
the following sections of the LSC Act, the IG Act and 110 Stat. 1321 
(1996): LSC Act Sec. 1008 (a), (b), 42 U.S.C Sec. 2996g (a), (b); LSC 
Act Sec. 1009(c)(1), 42 U.S.C Sec. 2996h(c)(1); and LSC Act 
Sec. 1010(c), 42 U.S.C Sec. 2996i(c). IG Act Sec. 4(a)(1), 4(b)(1), 5 
U.S.C APP 3 Sec. 4(a)(1), 4(b)(1). 110 Stat. 1321 (1996) Secs. 509 (a) 
to (l).
I-5. Effective Date
    This Audit Guide is effective for audits of LSC programs for 
periods ending on or after December 31, 1996, except as otherwise 
authorized by the Corporation.
I-6. Communicating with the OIG Regarding Audit Matters
    Recent legislation has brought a number of changes in the 
communication needs of recipients, IPAs, and the OIG. Because of these 
changes, the OIG is making special efforts to facilitate the additional 
communications needs. We are currently expanding reporting capabilities 
through electronic mail on the Internet, as well as providing a World 
Wide Web page for interactive ``Questions and Answers.''
    In addition, the OIG also has a staff of auditors available to 
answer questions, or address audit issues by telephone or facsimile.
    The phone numbers and addresses are:

Telephone--(202) 336-8812
E[email protected]
Fax--(202) 336-8955
Web Site--http://oig.lsc.gov/

[[Page 54820]]

I-7. Revisions to the Guide
    The OIG will periodically revise the Audit Guide and its appendices 
through bulletins or replacement sections. Revisions may reflect 
changes to public law, corporate regulations, auditing standards, or 
other guidelines. Revisions should be incorporated into the recipient's 
copy of the Audit Guide, and furnished to the Independent Public 
Accountant (IPA) by the recipient. Questions relating to any revisions 
should be directed to the OIG. Information concerning the Audit Guide 
and any revisions will be posted periodically and will be available on 
the LSC OIG World Wide Web page.
I-8. Cumulative Status of Revisions

------------------------------------------------------------------------
            Effective Date                         Description          
------------------------------------------------------------------------
Aug. 1976.............................  Original Edition of ``Audit and 
                                         Accounting Guide for Recipients
                                         and Auditors'' issued.         
June 1977.............................  Revised Original Edition of     
                                         Audit and Accounting Guide     
                                         issued.                        
Sept. 1979............................  Revision to Pages 4-1 and 6-6.  
Sept. 1981............................  Revision to Pages ii, 4-1, 6-6, 
                                         VIII-3, and addition of Page 4-
                                         2.                             
Jan. 1, 1986..........................  Revised 1986 Edition of Audit   
                                         and Accounting Guide Effective.
Aug. 13, 1986.........................  Regulation 1630 Replaces Chapter
                                         4 of both the Original and 1986
                                         Edition of the Audit and       
                                         Accounting Guide.              
Dec. 31, 1995.........................  Chapter 6 of both Original and  
                                         1986 Audit and Accounting Guide
                                         replaced by Audit Guide.       
Dec. 31, 1996.........................  Revision to November 1995 Audit 
                                         Guide to adopt audit provisions
                                         of 110 Stat. 1321 (1996).      
------------------------------------------------------------------------

I-9. Responsibilities of Recipients
I-9.A. Maintain Adequate Internal Controls
    Recipients, under the direction of their boards of directors, are 
required to establish and maintain adequate accounting records and 
internal control procedures. Until revised, guidance relating to these 
responsibilities may be found in both LSC's 1981 and 1986 editions of 
the ``Audit and Accounting Guide for Recipients and Auditors,'' 
referred to above in Section I-8, ``Cumulative Status of Revisions.''
    Internal Control is defined as the process put in place by the 
recipient's board of directors, management, and other personnel 
designed to provide reasonable assurance of achieving objectives over:
    1. Reliability of financial reporting;
    2. Compliance with laws and regulations that have a direct and 
material effect on the program; and any other laws so identified in the 
Compliance Supplement; and
    3. Safeguarding of assets against unauthorized use or disposition.
I-9.B. Provide Audited Financial Statements
    Recipients are responsible for preparing annual financial 
statements and arranging for an audit of those statements to be 
completed and submitted to the OIG within 120 days of the recipients' 
fiscal year ends. While the recipients' boards of directors have the 
final responsibility for the appointment of the auditor, pursuant to 
Section 509(d) of 110 Stat. 1321 (1996), the OIG has direct authority 
to ``* * * remove, suspend, or bar an independent public accountant, 
upon showing of good cause, from performing audit services required by 
this section * * *'', based upon rules of practice to be promulgated by 
the OIG.
    Pursuant to Section 509(c) of 110 Stat. 1321 (1996), the 
recipient's failure to provide an acceptable audit in accordance with 
the guidance promulgated by the OIG may result in the following 
sanctions: (1) the withholding of a percentage of the recipient's 
funding until the audit is completed satisfactorily; or (2) the 
suspension of the recipient's funding until an acceptable audit is 
completed.
    A written agreement between the recipient and the IPA must be 
executed and, at a minimum, should specifically include all matters 
described below in Section II-1, Audit Requirements (Subsections A 
through I). Contracts or engagement letters should also contain an 
escape clause that would allow, without significant penalty, 
modification or cancellation made necessary by changes in law.
    Appendix B is a sample audit agreement that includes the required 
matters described in Section II-1, Audit Requirements, and additional 
provisions which can be used to document the understanding between the 
recipient and the IPA. Recipients should consider incorporating these 
additional provisions in their audit agreements.
    In procuring audit services, recipients may refer to the Guide for 
Procurement of Audit Services (Appendix C).
I-9.C. Requirements for Recipient 5-Day ``Special Report'' to the OIG 
on Noncompliance with Laws and Regulations
    Section 509(b) of 110 Stat. 1321 (1996) states that recipients 
``shall report in writing any noncompliance found by the auditor during 
the audit * * * within 5 business days to the Office of the Inspector 
General and shall provide a copy of the report simultaneously to the 
auditor. If the recipient fails to report the noncompliance, the 
auditor shall report the noncompliance directly to the Office of the 
Inspector General within 5 business days of the recipient's failure to 
report. The auditor shall not be liable in a private action for any 
finding, conclusion, or statement expressed in a report made pursuant 
to this section.''
    In fulfilling this requirement, recipients are required to report 
to the OIG any instances of noncompliance with respect to the practice 
restrictions identified in the Compliance Supplement as reported by the 
auditor in accordance with Section II-1.H, Requirements for Auditor 5-
Day ``Special Report'' to the OIG on Noncompliance with Laws and 
Regulations. The recipient must report to the OIG within five (5) 
business days after receiving the report of noncompliance from the IPA. 
The recipient's submission to the OIG pursuant to this section is to 
include a transmittal letter, and a copy of the auditor's ``Special 
Report on Noncompliance with Laws and Regulations'' (See Appendix E for 
Recipient 5-Day Letter). Reports submitted pursuant to the requirements 
of this section must be sent to the OIG by facsimile, Email or 
registered mail. The recipient is also required to simultaneously 
provide a copy of its report to the OIG to the auditor using the same 
manner of communication (facsimile, Email or registered mail).
I-9.D. Corrective Action Plans
    Consistent with Section 509(j) of 110 Stat. 1321 (1996), recipient 
management is responsible for expeditiously resolving all 
recommendations and audit findings which include: (1) material 
reportable conditions in internal control; (2) material noncompliance 
with laws and regulations identified in the LSC Compliance Supplement 
(Appendix A); and (3) questioned costs, including those of sub-
recipients. Recipients are required to develop and submit to the 
Corporation corrective action plans within 30 days of submission of the 
audit report to the OIG. The corrective

[[Page 54821]]

action plan must describe the corrective action taken or planned in 
response to the audit findings and recommendations identified by the 
IPA. The corrective action plan must identify: (1) each finding as 
reported by the IPA; and (2) the action that will be taken and the date 
by which it will be taken or completed. If the recipient disagrees with 
the finding or believes corrective action is not required, it shall 
provide an explanation and specific reason(s) (e.g. regulatory or legal 
requirements) that corrective action is not required. If practical, and 
as an option, a recipient may incorporate its corrective action plan in 
its response to the auditor's findings and recommendations. However, 
selection of this option shall not preclude submission of the audit 
reports within the required timeframe, nor serve as a basis for an 
extension request.
    Pursuant to the requirements of Section 509(k)(1) of 110 Stat. 1321 
(1996), LSC management has the responsibility for follow-up on ``* * * 
significant reportable conditions, findings and recommendations found 
by the independent public accountants and [referred] to the Corporation 
management by the Office of Inspector General to ensure that instances 
of deficiencies and noncompliance are resolved in a timely manner * * 
*'' To facilitate the responsibilities of LSC management and the OIG, 
recipients are required to submit the corrective action plans to the 
OIG; the corrective actions plans will be forwarded to LSC management 
by the OIG.

II. Audit Performance Requirements

II-1. Audit Requirements
II-1.A. Objectives
    The primary audit objectives are to determine whether:
    1. The financial statements are presented fairly, in all material 
respects, in conformity with Generally Accepted Accounting Principles 
(GAAP), or other Comprehensive Basis of Accounting;
    2. The internal control structure provides reasonable assurance 
that the recipient is managing funds, regardless of source, in 
compliance with applicable Federal laws and regulations, and controls 
are in place to ensure compliance with the laws and regulations which 
could have a material impact on the financial statements; and
    3. The recipient has complied with applicable provisions of Federal 
law, Corporation regulations and grant agreements, regardless of source 
of funds, which may have a direct and material effect on its financial 
statement amounts and on the LSC program.
II-1.B. Reports
    The IPA will prepare the audit reports required by GAS and OMB 
Circular A-133. Recipients should ensure that management letters are 
included with the report submissions to LSC, as well as the Summary 
Findings Form on Noncompliance with Laws and Regulations, Questioned 
Costs and Reportable Conditions (See Appendix D for form and content). 
The IPA has additional responsibility under Section II-1.H, 
Requirements for Auditor 5-Day ``Special Report'' to the OIG on 
Noncompliance with Laws and Regulations, for interim reporting of 
noncompliance with certain laws and regulations.
II-1.C. Qualifications of the IPA
    The comprehensive nature of auditing performed in accordance with 
GAS places on the IPA the responsibility for ensuring that: (1) the 
audit is conducted by personnel who collectively have the necessary 
skills; (2) independence is maintained; (3) applicable standards are 
followed in planning and conducting audits and reporting the results; 
(4) the IPA has an appropriate internal quality control system in 
place; and (5) the IPA undergoes an external quality control review. 
IPAs must meet the qualifications stated in GAS.
II-1.D. Auditor Access to Records
    The IPA will be provided access to all records of the recipient the 
IPA reasonably believes to be necessary to the performance of the 
audit.
II-1.E. Audit Working Papers
    The audit working papers are to be prepared in accordance with GAS, 
and are to be retained by the IPA for at least three years from the 
date of the final audit report.
II-1.F. Access to Audit Working Papers
    The audit working papers are to be available for examination upon 
request by representatives of LSC and the Comptroller General of the 
United States. The LSC Act, Sec. 1009(d), prohibits access by the 
Corporation and the Comptroller General to any reports or records 
subject to the attorney-client privilege. To the extent not protected 
by the attorney-client privilege, the Corporation, including the OIG, 
is provided with access by Section 509 (h) of 110 Stat. 1321 (1996) to 
``* * * financial records, time records, retainer agreements, client 
trust fund and eligibility records, and client names * * *'' The audit 
working papers are subject to Quality Assurance Review by the LSC OIG.
II-1.G. Disclosure of Irregularities, Illegal Acts and Other 
Noncompliance
    During an audit, if matters are uncovered relative to actual, 
potential, or suspected defalcations, or other similar irregularities, 
the IPA will comply with Statement on Auditing Standards (SAS) Number 
53, ``The Auditor's Responsibility to Detect and Report Errors and 
Irregularities,'' and SAS Number 54, ``Illegal Acts by Clients.'' While 
the auditor may contract directly with the recipient for audit 
services, it is emphasized that any items considered by the auditor to 
justify reporting to the recipient's program director and/or board of 
directors, should also be included in the auditor's reports or 
management letter for LSC's consideration. IPAs should be aware that 
the recipient, by grant assurance, has a responsibility to report to 
the OIG within specified time periods on matters involving 
misappropriation, theft, embezzlement of any funds (LSC, non-LSC and 
client escrow funds) and property, regardless of recovery. IPAs should 
also follow Government Auditing Standards, Chapter 5, for guidance on 
direct reporting of irregularities and illegal acts to the OIG. The 
reporting requirements under this section are separate and distinct 
from the special reporting requirements discussed at Section II.1.H 
below.
II-1.H. Requirements for Auditor 5-Day ``Special Report'' to the OIG on 
Noncompliance with Laws and Regulations
    Section 509(b) of 110 Stat. 1321 (1996):
    (1) Recognizes the auditor's responsibility to select and test a 
representative number of transactions and report any instances of 
noncompliance with laws and regulations;
    (2) Provides that the auditor shall not be liable in a private 
action for any finding, conclusion, or statement expressed in a special 
report on noncompliance made pursuant to this section; and
    (3) Places additional responsibility on the auditor to report any 
instances of noncompliance directly to the OIG, in the event the 
recipient fails to notify the OIG within five (5) business days of 
receipt of the auditor's interim report on noncompliance.
    The IPA is responsible for providing sufficient information to the 
recipient on the findings of noncompliance to facilitate the recipient 
meeting its interim reporting responsibilities under Section I-9.C, 
Requirements for Recipient 5-Day ``Special Report'' to the

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OIG on Noncompliance with Laws and Regulations. The laws and 
regulations requiring special reporting are defined in the Compliance 
Supplement (Appendix A). When a determination has been made that an 
instance of noncompliance based on sufficient competent evidential 
matter has occurred, IPAs are to report immediately to the recipient. 
The IPA's report to the recipient pursuant to this section should not 
await completion of the audit reports identified below in Section III, 
Audit Reporting Requirements. The IPA's special report to the recipient 
shall be in letter format and shall specifically contain, at a minimum, 
the following: (1) a description of the particular instance(s) of 
noncompliance discovered during the course of the audit; and (2) the 
circumstances surrounding the instance(s) of noncompliance.
    Within five (5) business days after issuance of the IPA's special 
report to the recipient, and in accordance with Section I-9.C, 
Requirements for Recipient 5-Day ``Special Report'' to the OIG on 
Noncompliance with Laws and Regulations, the auditor should receive 
from the recipient a copy of the recipient's 5-day letter to the OIG. 
If no such copy is received, the IPA shall submit a copy of the report 
directly to the OIG, within five (5) business days of the recipient's 
failure to provide the required copy of its report to the OIG. This 
statutory procedure thus ensures that the OIG will receive a copy of 
the IPA's special report on noncompliance within ten (10) business days 
after the recipient's receipt of the report from its auditor (See 
Appendix F for the Auditor 5-Day Letter to the OIG). The auditor's 
submission to the OIG under this section must be transmitted by 
facsimile, Email or registered mail.
II-1.I. IPA Notification to OIG on Cessation of Audit Services
    Pursuant to Section 509(e) of 110 Stat. 1321 (1996), the IPA is 
required to notify the OIG when it ceases to provide audit services to 
the recipient. The IPA shall notify the OIG within five (5) business 
days of its termination or cessation of services to the recipient. (See 
Appendix G for the notification form.)
II-2. Review of Internal Controls
    In accepting LSC funds, recipient management asserts that its 
accounting system is adequate to comply with LSC requirements. As part 
of the review of internal controls, the auditor is required to evaluate 
the effectiveness of the recipient's accounting system and internal 
controls. The primary objectives of this evaluation are to ensure that 
resources are safeguarded against waste, loss and misuse, and that 
resources are used consistent with LSC regulations and grant 
conditions.
II-3. Assessing Compliance with Laws and Regulations
    The requirements set out in the Compliance Supplement (Appendix A) 
are those which could have a material impact on the LSC program. 
Accordingly, examination of these compliance requirements is part of 
the audit. As stated in Section I-1, ``Purpose'', Congress increased 
the restrictions and prohibitions on the types of activities in which 
recipients may engage. The failure of a recipient to comply with the 
practice restrictions contained in the Compliance Supplement may affect 
the recipient's eligibility for LSC funding.
    The Compliance Supplement specifies the compliance requirements and 
provides suggested procedures to be considered in the auditor's 
assessment of a recipient's compliance with laws and regulations. The 
suggested procedures can be used to test for compliance with laws and 
regulations, as well as to evaluate the related controls. Auditors 
should use professional judgement in deciding which procedures to 
apply, and the extent to which reviews and tests should be performed. 
Auditors are required to select and test a representative number of 
transactions. If the reviews and evaluations are performed as part of 
the internal control structure review, audit procedures should be 
modified to avoid duplication. Auditors should also refer to the grant 
agreements for additional requirements.
    In certain cases, noncompliance may result in questioned costs. 
Auditors are to ensure that sufficient information is obtained to 
support the amounts questioned. Working papers should adequately 
document the basis for any questioned costs and the amounts reported.
II-4. Audit Follow-up
    Consistent with GAS paragraph 4.10, Audit Follow-up, the auditor is 
required to follow-up on known material findings and recommendations 
from previous audits that could affect the financial statement audit 
and, in this case, the program. The objective is to determine whether 
timely and appropriate corrective action has been taken. Auditors are 
required to report the status of uncorrected material findings and 
recommendations from prior audits. These requirements are also 
applicable to findings and recommendations issued in a management 
letter.

III. Audit Reporting Requirements

III-1. Audit Reports and Distribution
    IPAs should follow the requirements of GAS, OMB Circular A-133, 
Statement on Auditing Standards (SAS) 74 and Statement of Position 
(SOP) 92-9 (and any revisions thereto) for guidance on the form and 
content of reports. The OMB Circular A-133 reports must reference the 
LSC Audit Guide and its Compliance Supplement. In addition to the 
reports required under OMB Circular A-133, IPAs are required to submit 
a Summary Findings Form on Noncompliance with Laws and Regulations, 
Questioned Costs and Reportable Conditions (Appendix D). Three copies 
of the audit reports, Summary Findings Form on Noncompliance with Laws 
and Regulations, Questioned Costs and Reportable Conditions and the 
management letter, where applicable, are to be submitted to the LSC OIG 
within 120 days of the recipient's year end.
III-2. Extension Requests for Audit Submissions
    Under exceptional circumstances, an extension of the 120-day 
requirement may be granted. Requests for extensions must be submitted 
in writing not later than two weeks prior to the report due date, and 
directed to the Office of Inspector General. Requests not submitted in 
the required time frame will be granted only under unforeseen, 
extraordinary and compelling reasons.
III-3. Views of Responsible Officials
    Consistent with GAS paragraph 7.38, Views of Responsible Officials, 
auditors are encouraged to report the views of the responsible program 
officials concerning the auditors' findings, conclusions, and 
recommendations, as well as planned corrective action, where practical.
IV. Reference Materials
    A. Title X--Legal Services Corporation Act of 1974, 42 USC 2996, to 
2996.l.
    B. 45 Code of Federal Regulations Part 1600 to 1642.
    C. Government Auditing Standards, issued by the Comptroller General 
of the United States, 1994 Revision.
    D. OMB Circular A-133, Audits of Institutions of Higher Education 
and Other Nonprofit Institutions.
    E. AICPA Professional Standards, Volume I.

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    F. AICPA Integrated Practice System, Not-For-Profit Organizations 
Audit Manual.
    G. Practitioners Publishing Company Guide to Audits of Nonprofit 
Organizations, Seventh Edition (June 1994).
    H. AICPA Audit and Accounting Guide for Not-for-Profit 
Organizations, June 1, 1996.
    I. AICPA Statement of Position (SOP) 92-9, Audits of Not-for-Profit 
Organizations Receiving Federal Awards, December 28, 1992.
    J. Pursuant to LSC Regulations, 45 C.F.R. 1630.4(g):
    The Circulars of the Office of Management and Budget shall provide 
guidance for all allowable cost questions arising under this part when 
relevant policies or criteria therein are not inconsistent with the 
provisions of the Act, applicable appropriations acts, this part, the 
Audit and Accounting Guide for Recipients and Auditors, and Corporation 
rules, regulations, guidelines, and instructions.
    Among the OMB Circulars which should be referred to if not 
inconsistent with LSC policies are:

Office of Management and Budget (OMB) Circular A-50, Audit Follow-up.
OMB Circular A-110, Uniform Administrative Requirements for Grants and 
Agreements with Institutions of Higher Education, Hospitals, and Other 
Nonprofit Organizations.
OMB Circular A-122, Cost Principles for Nonprofit Organizations.
OMB Circular A-123, Internal Control Systems.
OMB Circular A-127, Financial Management Systems.

    Dated: October 17, 1996.
Victor M. Fortuno,
General Counsel.
[FR Doc. 96-27059 Filed 10-21-96; 8:45 am]
BILLING CODE 7050-01-P