UD COST ACCOUNTING STANDARDS GUIDELINES

I. FEDERAL CIRCULAR OMB A-21: COST PRINCIPLES FOR EDUCATIONAL INSTITUTIONS

  • CAS Applicability
  • CAS and F&A
  • CAS related definitions
  • Determining allowability, reasonableness, and allocability of costs
  • Allocation methodology

II. EXAMPLES & CLARIFICATIONS

  • Administrative and clerical salaries/wages/fringe benefits
  • General office supplies
  • Computers
  • Postage
  • Telephone and various other communications
  • Memberships and subscriptions
  • Printing, binding, publication and copying
  • Equipment
  • Service centers
  • Cost sharing
  • Funding delays

III. ACCOUNTING FOR UNALLOWABLE COSTS

  • Questions regarding allowability of costs
  • Procedure for recording unallowable costs

APPENDIX A: REPRESENTATIVE LIST, DIRECT & INDIRECT COSTS

APPENDIX B: EXPLICITLY UNALLOWABLE COSTS ON FEDERAL AGREEMENTS

APPENDIX C: FLOW CHART OF ADMINISTRATIVE & TECHNICAL EXPENSES

APPENDIX D: CAS DEFINITIONS

The University of Delaware, as an Institution of Higher Education, must comply with a number of regulations and guidelines that restrict the ways in which sponsored funding may be spent. This document is intended to clarify the federal constraints regarding the direct and indirect charging of expenditures to federal awards. It is also intended to provide instructions regarding how to charge costs that are determined to be unallowable, as those charges must never be charged to a federal award.

These guidelines are for the use of University of Delaware principal investigators, researchers, students, staff and administrators who charge items directly to federal sponsored projects.

Anyone approving or processing the expenditure of federal funds must have a clear understanding of Cost Accounting Standards (CAS) and apply consistent application of these fundamental cost principles. Certain federal sponsors, such as the National Science Foundation, provide grants and award policy guides which contain sponsor specific policies and procedures which must be adhered to for the funds received from those sponsors. In addition, individual awards may include special terms and conditions which must be considered when incurring costs. Terms and Conditions in an award which specifically address costs override all related comments in this document. You may consult with the appropriate Contract and Grant Specialist in the Research Office for more details regarding policy regulations and guides.

I. FEDERAL CIRCULAR OMB A-21: COST PRINCIPLES FOR EDUCATIONAL INSTITUTIONS

When a sponsor awards funds to the University in support of specific programs and projects, it requires the University to manage those funds prudently to ensure that any costs incurred directly benefit the project accounts being charged.

The Federal Government is the largest sponsor of externally funded activity at the University. The cost principles relating to expenditures on federal awards are contained in the Office of Management and Budget’s (OMB) Circular A-21 ( The Cost Principles for Institutions of Higher Education. These cost principles require that any expense charged to a federally sponsored project be reasonable and necessary, allocable, consistently treated, and conform to any limits or exclusions set forth in OMB Circular A-21 or the terms and conditions of the award.

In simplest terms, the Cost Accounting Standards are a series of federal regulations that provide guidance on costing practices for educational institutions in the administration of financial management of sponsored awards. The Office of Naval Research (ONR) is the cognizant federal agency overseeing the administration of sponsored programs at the University of Delaware.

CAS APPLICABILITY

Sponsored projects will be subject to CAS if any ONE of the following criteria is applicable:

  • Federal awards
  • Awards that contain any federal flow-through funds. This is likely determined by the presence of terms and conditions that reference federal guidance from OMB circular a-21 or have been assigned a catalog of federal domestic assistance (CFDA) number. If after the award period has started it is discovered that the project is funded with federal flow-through dollars, any unallowable direct charges will need to be removed from the project and charged to a nonfederal sponsored university purpose code.
  • Awards where terms and conditions of the proposal or award documents reference OMB circular a-21 or cost
  • Accounting standards
  • Funds being used as cost sharing on a CAS covered project. Only the individual cost(s) being claimed as cost sharing would be subject to CAS.

CAS AND F&A

The University is reimbursed for a portion of those costs categorized as Facilities & Administrative Costs (F&A). To directly charge those items included in UD’s F&A Cost Rate Proposal would constitute double charging the government for the same cost. This is one of the situations that the government and OMB Circular A-21 seek to avoid. In summary, the application of CAS addresses the following:

  • Don’t charge the federal sponsor for the same cost twice, AND
  • Don’t charge the federal sponsor for unallowable costs

All awards, including those not covered under CAS are still subject to the specific sponsor requirements listed in the award and to University guidelines. Just because an award is not subject to CAS does not mean expenditures unrelated to the award’s purpose can be charged. All expenditures on an award must be reasonable, allocable, and allowable.

Costs that would normally be considered as F&A costs, such as administrative and clerical salaries, may be charged directly to non-federal awards if permitted by the sponsor’s policies or otherwise approved by the sponsor.

Irrespective of CAS applicability, most awards include either audit clauses and/or financial reporting requirements. These clauses allow for the review of supporting documentation for all expenditures. The supporting documentation should validate the relationship between the expenditure and the purpose of the award.

DETERMINING ALLOWABILITY, REASONABLENESS, AND ALLOCABILITY OF COSTS

OMB Circular A-21, Section C. 2-4 requires that all costs charged to the government satisfy the following criteria:

Allowable - All costs must be allowable under federal regulations and sponsor terms and conditions, including program-specific requirements and University policy. To be allowable, costs must be:

  • Reasonable and necessary
  • Allocable to sponsored agreements
  • Given consistent treatment appropriate to the specific circumstances at hand
  • In conformity to any limitations or exclusions set forth or in the sponsored agreement as to types or amounts of cost items.
  • Typical costs charged directly to a sponsored project include:
  • Compensation of employees for performance of work under the sponsored agreement, including related fringe benefit costs;
  • Costs of materials consumed or expended in the performance of the sponsored project;
  • Travel in accordance with the University's policy
  • Other allowable items of expense incurred for the sponsored project.
  • Costs of materials from stock/services rendered by specialized facilities or other institutional service operations may be included as costs under federally sponsored agreements, provided such items are:
  • Consistently treated in similar circumstances as direct costs, rather than Facilities and Administrative
  • (indirect) costs; and
  • Charged under a recognized method of computing actual costs.

Allocable - The project that pays the expense must directly benefit from that expense. This important concept is known as the “point of allocation”. A cost is allocable to a particular cost objective (i.e., a specific function, project, sponsored agreement, department, or the like) if the goods or services involved are chargeable or assignable to such cost objective in accordance with relative benefits received or other equitable relationship. Every incurred cost must have a direct benefit to the sponsored project being charged. OMB Circular A-21 offers the following guidelines:

In general, a cost is allocable to a particular sponsored project if it fulfills one of the following conditions:

  • It is incurred solely to advance the work under the sponsored agreement; or
  • It benefits both the sponsored agreement and other work of the institution, in proportions that can be approximated through use of reasonable methods; or
  • It is necessary to the overall operation of the institution and, in light of the principles provided in omb circular a-21, is deemed to be assignable in part to sponsored projects.

If a cost benefits two or more projects or activities in proportions that can be determined without undue effort or cost, the cost should be allocated to the projects based on the proportional benefit. If a cost benefits two or more projects or activities in proportions that cannot be determined because of the interrelationship of the work involved, then the costs may be allocated or transferred to benefited projects on any reasonable basis.

Note: Reasonable methods of allocating common use scientific items and supplies may include proportional benefit, specific anticipated use per award, full time equivalents (FTEs) on each award, lab square footage, high correlation to another lab cost that is clearly allocated, and Modified Total Direct Cost (MTDC) proportions (i.e., relative size of non- salary budget, excluding equipment, tuition, and any subcontracts).

  • In the rare instances in which a proper cost allocation cannot ultimately be determined using any reasonable methods, the cost may be charged to a single sponsored project.
  • Where the purchase of equipment or other capital items is specifically authorized under a sponsored agreement, the amounts thus authorized for such purchases are assignable to the sponsored agreement regardless of the use that may subsequently be made of the equipment or other capital items involved.
  • Any costs allocable to a particular sponsored agreement under the standards provided in OMB Circular A-21 may not be shifted to other sponsored agreements in order to meet deficiencies caused by overruns or other fund considerations, to avoid restrictions imposed by law or by terms of the sponsored agreement, or for other reasons of convenience.
  • Any costs allocable to activities sponsored by industry, foreign governments, or other sponsors may not be shifted to federally sponsored agreements.

Reasonable - The cost may be considered reasonable if the goods/services acquired and the cost involved reflects the same action that a prudent person would have taken under the same circumstances in incurring the cost. OMB Circular A-21 notes that a cost may be considered reasonable if the cost:

  • Is necessary for the performance of the sponsored agreement
  • Has been determined reasonable by the individuals concerned acting with due diligence in the same circumstances
  • Has been determined through costing policy, consistent with established institutional policies and practices

Consistent - All costs incurred for the same purpose, in like circumstances, are either to be treated as direct costs or as F&A costs. According to OMB Circular A-21 and CAS 501, this includes consistency in estimating, accumulating and reporting costs and consistency in allocating costs incurred for the same purpose.

Unlike Circumstance - A cost that is normally considered to be an F&A cost is considered an unlike circumstance if it meets specific criteria. Unlike circumstances are costs which are allowed to be charged directly to a particular sponsored award. These costs must:

  • Satisfy the definition of a direct cost (specifically identifiable with the objectives of the research, identification made with relative ease and a high degree of accuracy),
  • Be extensive or unique in nature (in comparison with other research activity at UD),
  • Where appropriate, be included in the proposal budget and adequately justified on Proposal, and approved by the sponsor.
  • Be adequately documented at the time of allocation to satisfy the relevance as a direct cost

Some questions to consider in determining the presence of a unique or ‘unlike circumstance’ in which normal F&Acosts might be charged directly should include:

  1. Does the cost provide a direct benefit to the purpose or technical objectives of the award as opposed to a cost that is "needed" to complete the project but is incidental to the purpose?
  2. Can the cost meet the definition of a direct cost? Can the cost be specifically identified with a particular award with relative ease and a high degree of accuracy? Is the cost allowable in accordance with all applicable regulations, terms and conditions, policies and procedures?
  3. For clerical and administrative salaries, do the facts and circumstances of the award meet the criteria to qualify the cost as an exception (‘unlike circumstance’) as guided by OMB Circular A-21?
  4. 4. For other costs that are normally classified as F&A costs (e.g., office supplies, postage, local telephone, memberships, etc); do the facts and circumstances of the award meet the criteria to qualify these costs as a unique situation/exception (‘unlike circumstance’)? Do these costs directly contribute to the specified goals of the award?

CAS requires consistent treatment of costs in ’like circumstances’ throughout the institution. Consequently ‘unlike circumstances’ must be demonstrated/justified if a cost that is normally considered as an F&A cost is to be budgeted, charged, and reported as a direct cost. The following arguments are not valid in the demonstration of ‘unlike circumstances’:

  • Sponsor approval of the budget allocation of a particular cost without proper review by the institution (i.e. items 1-3 above)
  • Insufficient F&A recovery to support the costs incurred
  • Sponsor limits or will not reimburse F&A costs to the University
  • Sponsor is willing to pay for the cost as a direct charge (See NOTE below)

OMB Circular A-21 also generally defines those costs, which may be charged directly, and those for which we are reimbursed through the F&A cost rate. When developing a sponsored project proposal, the Principal Investigator (PI) builds a budget which reflects the project's direct costs (e.g., researchers salaries, equipment) --- the costs which are relatively easy to associate directly with the objectives of the project, and then applies the proper negotiated F&Arate to add the cost of space, utilities, office supplies, and other essential infrastructure "overhead-type" expenses to the budget. OMB Circular A-21, D.2. also goes on to state that “identification with the sponsored work rather than the nature of the goods and services involved is the determining factor in distinguishing direct from F&A costs of sponsored agreements.”

ALLOCATION METHODOLOGIES

The proper classification (direct versus F&A) of any charge should be determined based on a logical thought process. This process can be described in three (3) steps as follows:

  • Review – All applicable regulations, terms and conditions, policies, procedures applicable to the award. This includes University of Delaware regulations, policies and procedures.
  • Judgment – Proper allocation of costs should be based upon the specific purpose of the award and the technical goals expected rather than the need of certain items.
  • Justification – Appropriate, adequate written justification of ‘unlike circumstances’ should be disclosed in the proposal (or a justification is prepared when the need arises during the life of the project that could not have been anticipated in the proposal process).

NOTE: Agency Approval of a budget based on written justification of ‘unlike circumstances’ in the proposal relies on the institutional obligation to make an informed decision based on the particular facts and circumstances of the specific award.

The OMB Circular A-21 provides two methods for allocating an allowable direct cost to two or more grants, they are defined as follows:

Proportional Benefit

If a cost benefits two or more projects or activities in proportions that can be determined without undue effort or cost, the cost should be allocated to the projects.

Example: A PI has two awards which require the purchase of mice to conduct experiments. The Specific Aims for one award indicates 150 mice are needed to conduct the research and the Specific Aims of the second award requires 50 mice to conduct the research. The PI orders 200 mice and allocates the cost of the mice75%/25% between the awards.

Interrelationship

If a cost benefits two or more projects or activities in proportions that cannot be easily determined due to the interrelationship of the work involved, then the cost may be allocated to the benefiting projects on any reasonable basis.

Example: Acetone purchased for use in a laboratory is needed for the technicians working concurrently on three research projects. A reasonable method of allocating the cost of the Acetone could be based on thenumber of FTEs.

Regardless of the method used, A-21 states that the: “University is responsible for ensuring that costs charged to a sponsored agreement are allowable, allocable, and reasonable under these cost principles; and University’s financial management system shall ensure that no one person has complete control over all aspects of a financial transaction.”

Unallowable Costs

Costs considered "unallowable" in accordance with various authoritative documents and the individual Sponsors must be identified and accounted for separately (CAS 505). These costs must be excluded from federally sponsored awards and may not be budgeted, charged or reported to a sponsor. Unallowable costs are described in Circular A-21,Section J.

Some examples include:

  • General Advertising Costs/Public Relations
  • Alcoholic Beverages Entertainment Costs Goods/Services for Personal Use Lobbying
  • Memberships in Civic/Social Clubs

Expenditures are not allowable on federal awards if sufficient source documentation is not provided to support the expenditure. An expenditure will be deemed unallowable if it does not meet University of Delaware Procurement policy 3-7 University Travel and Business Hosting and policy 5-22 UD Credit Card regarding the retention of receipts and supporting source documentation.

II. EXAMPLES & CLARIFICATIONS

The following statements should serve as the basis for administering all CAS covered sponsored awards. The lack of available F&A cost recovery funds to assist in the payment of costs normally classified as F&A costs is not a valid argument for charging such costs directly to the sponsor when developing a budget or in the decision making processregarding direct cost recovery.

IT IS THE PRIMARY RESPONSIBILITY OF THE PRINCIPAL INVESTIGATOR, WITH SUPPORT OF THE RESPECTIVE DEPARTMENTAL RESEARCH ADMINISTRATOR AND THE DEPARTMENT CHAIR, TO REVIEW THESE BUDGETS AND DETERMINE IF ALL COSTS ARE ALLOWABLE AND ALLOCATED CORRECTLY BETWEEN DIRECT AND F&A COST CATEGORIES.

Listed below are additional clarifications for several specific cost issues on federal awards.

ADMINISTRATIVE AND CLERICAL SALARIES/WAGES/FRINGE BENEFITS

While administrative and clerical salaries and wages are normally classified as F&A costs, direct budgeting and charging of such costs may be considered where a major project or activity explicitly budgets for administrative orclerical salaries and the individuals involved can be specifically identified with the technical goals of the project or activity.