Request for Information: Post-implementation Review of ... · IFRS 12 sets out disclosure requirements for an entity’s interests in subsidiaries, joint arrangements, associates

IFRS® StandardRequest for Information

December 2020

Post-implementation ReviewIFRS 10 Consolidated Financial StatementsIFRS 11 Joint ArrangementsIFRS 12 Disclosure of Interests in Other Entities

Comments to be received by 10 May 2021

Request for Information

Post-implementation Review ofIFRS 10 Consolidated Financial Statements,

IFRS 11 Joint Arrangements andIFRS 12 Disclosure of Interests in Other Entities

Comments to be received by 10 May 2021

Request for Information Post-implementation Review of IFRS 10 Consolidated Financial Statements, IFRS 11Joint Arrangements and IFRS 12 Disclosure of Interests in Other Entities is published by the InternationalAccounting Standards Board (Board) for comment only. Comments need to be received by 10 May2021 and should be submitted by email to [email protected] or online at https://www.ifrs.org/projects/open-for-comment/.

All comments will be on the public record and posted on our website at www.ifrs.org unless therespondent requests confidentiality. Such requests will not normally be granted unless supported bya good reason, for example, commercial confidence. Please see our website for details on this policyand on how we use your personal data.

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CONTENTS

from page

OVERVIEW OF THE POST-IMPLEMENTATION REVIEW 4

INVITATION TO COMMENT 5

WORK UNDERTAKEN IN THE FIRST PHASE 7

QUESTIONS FOR RESPONDENTS 9

Information about the respondent 9

IFRS 10 Consolidated Financial Statements 9

Control—Power over an investee 9

Control—The link between power and returns 16

Investment entities 19

Accounting requirements 23

IFRS 11 Joint Arrangements 27

Collaborative arrangements outside the scope of IFRS 11 27

Classifying joint arrangements 29

Accounting requirements for joint operations 30

IFRS 12 Disclosure of Interests in Other Entities 32

Disclosure of interests in other entities 32

Other topics 34

APPENDIX

Appendix—Background to IFRS 10 Consolidated FinancialStatements, IFRS 11 Joint Arrangements and IFRS 12 Disclosure ofInterests in Other Entities 35

POST-IMPLEMENTATION REVIEW OF IFRS 10, IFRS 11 AND IFRS 12

© IFRS Foundation 3

Request for Information

Post-implementation Review of IFRS 10 Consolidated FinancialStatements, IFRS 11 Joint Arrangements and IFRS 12 Disclosureof Interests in Other Entities

December 2020

Overview of the Post-implementation Review

Purpose of the Post-implementation Review

The International Accounting Standards Board (Board) is undertaking a Post-implementation Review of IFRS 10 Consolidated Financial Statements, IFRS 11 JointArrangements and IFRS 12 Disclosure of Interests in Other Entities. Post-implementation reviews are part of the Board’s due process and help theBoard assess the effects of requirements on users of financial statements,preparers and auditors.1 In particular, the Board aims to assess whether:

(a) an entity applying the requirements in a Standard produces financialstatements that faithfully portray the entity’s financial position andperformance, and whether this information helps users of financialstatements to make informed economic decisions;

(b) areas of the Standard pose challenges;

(c) areas of the Standard could result in inconsistent application; and

(d) unexpected costs arise when applying or enforcing the requirements ofthe Standard, or when using or auditing information the Standardrequires an entity to provide.

Phases of the Post-implementation Review

This Post-implementation Review is being conducted in two phases. In thefirst phase the Board identified and assessed the matters to be examinedfurther in a request for information. Paragraphs 15–17 set out the process theBoard followed to identify these matters.

The main findings from the first phase, which took place from September2019 to April 2020, are discussed in paragraphs 18–21.

In the second phase, the Board will consider responses to this Request forInformation, feedback from discussions with stakeholders and a review ofrelevant research, including academic literature, on the effect on financialreporting of applying the Standards.

The Board will summarise its findings and state what steps, if any, it plans totake as a result of the review. The Board could decide to add a standard-settingproject to its agenda, consider one or more matters further as part of itsresearch programme, or both. The Board could also decide to take no action.

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1 The Due Process Handbook is available on the IFRS Foundation’s website, www.ifrs.org.

REQUEST FOR INFORMATION—DECEMBER 2020

4 © IFRS Foundation

https://cdn.ifrs.org/-/media/feature/about-us/legal-and-governance/constitution-docs/due-process-handbook-2020.pdf?la=en

https://www.ifrs.org/

In deciding whether to add a standard-setting project, the Board will assess:

(a) whether the reporting of specified transactions or activities isdeficient;

(b) the importance of the matters under review to users of financialstatements;

(c) the type of entities likely to be affected; and

(d) whether the matters raised by respondents are pervasive or acute.

The Board’s objectives when IFRS 10, IFRS 11 and IFRS 12 were issued were to:

(a) develop a single basis for consolidation and robust guidance forapplying that basis to situations in which it proved difficult for anentity to assess control.

(b) address two features of IAS 31 Interests in Joint Ventures the Boardregarded as impediments to high-quality reporting on jointarrangements. Applying IAS 31:

(i) the structure of the joint arrangement was the soledeterminant of the accounting for that arrangement; and

(ii) an entity could choose the accounting treatment for interestsin jointly controlled entities.

(c) enable users of financial statements to evaluate the nature of and risksassociated with an investor’s2 interests in other entities, including jointarrangements, associates and structured entities.

In some situations, assessing control is complex. Investors use variousstructures and can customise how control and economic returns are shared.Legal requirements and regulations vary across jurisdictions. The use ofquantitative thresholds that appear simple to apply can undermine faithfulrepresentation and reduce the usefulness of financial statements. Financialreporting standards are most effective when they set out clear objectives andrequirements and establish a framework for applying judgement effectivelyacross a wide range of structures and regulatory regimes.

Invitation to comment

This Request for Information sets out 10 questions:

(a) Question 1 relates to the respondent’s background;

(b) Questions 2–9 relate to the matters the Board has decided to examinefurther; and

(c) Question 10 provides the respondent with an opportunity to commenton other topics not addressed in the Request for Information.

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2 In this Request for Information, the term ‘investor’ refers to a party that assesses whether itcontrols (jointly controls or exercises significant influence on) an investee regardless of the formof its involvement with the investee.



The Board welcomes specific feedback on applying IFRS 10, IFRS 11 andIFRS 12. Respondents should provide specific details, including identifying anychallenges and suggesting any additional support the Board could considerproviding to stakeholders applying the Standards.

Respondents need not answer all the questions. When answering thequestions, respondents are asked to consider the effect of the requirements:

(a) on the relevance and faithful representation of financial statements;

(b) on comparability, both from period to period for a single reportingentity and between entities; and

(c) on the costs to users and preparers of financial information.

Comments are most helpful if they:

(a) answer the questions as stated;

(b) indicate the paragraph or paragraphs of IFRS 10, IFRS 11 or IFRS 12 towhich they relate;

(c) describe the effects of the requirements on relevance, faithfulrepresentation, comparability and costs;

(d) assess the matter’s pervasiveness; and

(e) are supported by examples.

Deadline

The Board will consider all comments received by 10 May 2021.

How to comment

Please submit your comments electronically:

Online https://www.ifrs.org/projects/open-for-comment/

By email [email protected]

Your comments will be on the public record and posted on our website unlessyou request confidentiality and we grant your request. We do not normallygrant such requests unless they are supported by a good reason, for example,commercial confidence. Please see our website for details on this policy and onhow we use your personal data.

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Work undertaken in the first phase

Identifying matters to be included in the Request for Information

In the first phase of the Post-implementation Review, the Board identifiedmatters that required further examination after:

(a) reviewing the Board publications, including the project summaries andfeedback statements published when IFRS 10, IFRS 11 and IFRS 12 wereissued, submissions to the IFRS Interpretations Committee (Committee)and amendments to IFRS 10, IFRS 11 and IFRS 12.

(b) undertaking more than 20 meetings with users and preparers offinancial statements, auditors, regulators and national standard-setters, including the Board’s consultative bodies. Stakeholders wereasked to share their experience of applying IFRS 10, IFRS 11 andIFRS 12 and to identify areas for the Board to examine further.3

(c) reviewing academic research and other literature.4

The Board used the findings from the activities listed in paragraph 15 toidentify matters that warranted further examination, based on the followingcriteria:

(a) the importance of the matter to those who raised it, including whetherfinancial statements faithfully portray the reporting entity’s financialposition and performance, and whether the requirements result inreporting entities providing financial information that is useful inmaking informed economic decisions;

(b) how application challenges affect the consistent application of IFRS 10,IFRS 11 and IFRS 12; and

(c) the importance of the matter relative to the objectives of or mainchanges introduced by IFRS 10, IFRS 11 and IFRS 12.

For example, in this Request for Information the Board is seeking feedback onthe definition of an ‘investment entity’ because the definition was introducedby an amendment to IFRS 10. The findings from the first phase have indicateda risk of inconsistent application of the definition. Similarly, the Board isseeking feedback on the classification of joint arrangements because theclassification determines how an investor accounts for its interest in such anarrangement. Previously, when applying IAS 31, an investor had a choice torecognise interests in an arrangement classified as a joint venture using eitherproportionate consolidation or the equity method.

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3 Agenda Paper 7A presented to the International Accounting Standards Board (Board) at its April2020 meeting sets out the findings from the first phase.

4 Agenda Paper 7C presented to the Board at its April 2020 meeting discusses the academicliterature review.



https://cdn.ifrs.org/-/media/feature/meetings/2020/april/iasb/ap7a-pir-of-ifrs-10-ifrs-11-and-ifrs-12.pdf

https://cdn.ifrs.org/-/media/feature/meetings/2020/march/iasb/ap7c-pir-of-ifrs10-ifrs11-ifrs12.pdf

Main findings from the first phase

Feedback from the first phase demonstrated that stakeholders agree with theuse of control as the single basis for consolidation. Some stakeholdersreported that in some situations, applying the requirements of IFRS 10involves significant judgement and reaching a conclusion can provechallenging. For example, challenges can arise when the information availableto the entity could lead to several conclusions or when an entity or other partyis uncertain whether a right or obligation exists.

Given the broad range of structures and arrangements, the Board avoidedrequirements based on quantitative thresholds and developed a single basisfor consolidation that requires a holistic and qualitative assessment of alllegal, contractual and other facts and circumstances before such adetermination is made. The Board concluded that the use of judgement indetermining if an investor controls an investee is necessary and appropriate.

IFRS 11 establishes a principle that the accounting for joint arrangementsshould reflect the rights and obligations the parties have as a result of theirinterests in the arrangements. This approach aims to address the two featuresof IAS 31, described in paragraph 7(b), that the Board regarded asimpediments to high-quality reporting on joint arrangements. Stakeholders donot oppose the principle in IFRS 11 but some have concerns aboutrequirements in IFRS 11 that were the subject of submissions to theCommittee. These requirements relate to:

(a) the classification of joint arrangements in specific situations; and

(b) the accounting requirements for joint operations.

Stakeholders made few comments on IFRS 12 in the first phase. Somestakeholders suggested increasing the specificity of information entities arerequired to provide when applying the Standard, while others found some ofthe disclosure requirements excessive.

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Questions for respondents

Information about the respondent

Question 1—Your background

To understand whether groups of stakeholders share similar views, the Board wouldlike to know:

(a) your principal role in relation to financial reporting. Are you a user or apreparer of financial statements, an auditor, a regulator, a standard-setter or anacademic? Do you represent a professional accounting body? If you are a user offinancial statements, what kind of user are you, for example, are you a buy-sideanalyst, sell-side analyst, credit rating analyst, creditor or lender, or asset orportfolio manager?

(b) your principal jurisdiction and industry. For example, if you are a user offinancial statements, which regions do you follow or invest in? Please statewhether your responses to questions 2–10 are unrelated to your principaljurisdiction or industry.

IFRS 10 Consolidated Financial Statements

Control—Power over an investee

IFRS 10 requires an investor to present consolidated financial statementswhen it controls one or more other entities (subsidiaries). An investor hascontrol when the investor is exposed, or has rights, to variable returns fromits involvement with the investee and has the ability to affect those returnsthrough its power over the investee.

An investor has power over the investee if the investor has the current abilityto direct the relevant activities of the investee. Having a majority of the votingrights provides power over an investee in some situations. In other situations,other rights and factors shall be considered to assess whether the investor hasthe current ability to direct the relevant activities of the investee.

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Power over an investee—Relevant activities

Feedback Analysis

Some stakeholders found it challenging, onoccasion, to identify the relevant activities.This challenge can arise when two or moreinvestors each have rights that give themthe unilateral ability to direct different activities.

Some stakeholders said identifying relevantactivities requires significant judgementwhen the relevant activities occur at different times or are conditional on futureevents. In such situations, the contributionof each activity to the investee’s performance may change over time. Thisintroduces additional complexity into thelifetime assessment.

In developing IFRS 10, the Board decidedto provide requirements explaining theactivities of an investee to which the definition of control referred (relevant activities). The Board specified that to havecontrol of an investee an investor must havethe current ability to direct activities of theinvestee that significantly affect the investee’s returns. The Board consideredthe requirements would be particularlyhelpful to assess control of an investee thatis not directed through voting or similarrights.(a)

When two or more investors have decision-making rights over different activities of aninvestee, IFRS 10 requires an investor todetermine the relevant activities that mostsignificantly affect the investee’s returns.

To have power, an investor does not have to be able to direct all the activities thatsignificantly affect the returns of an investee.

Requirements in IFRS Standards

Paragraph 10 of IFRS 10:

An investor has power over an investee when the investor has existing rights that give it thecurrent ability to direct the relevant activities, ie the activities that significantly affect theinvestee’s returns.


If two or more investors each have existing rights that give them the unilateral ability to directdifferent relevant activities, the investor that has the current ability to direct the activities thatmost significantly affect the returns of the investee has power over the investee.

(a) See paragraph BC57 of the Basis for Conclusions on IFRS 10 Consolidated Financial Statements.

Question 2(a)

In your experience:

(i) to what extent does applying paragraphs 10–14 and B11–B13 of IFRS 10 enablean investor to identify the relevant activities of an investee?

(ii) are there situations in which identifying the relevant activities of an investeeposes a challenge, and how frequently do these situations arise? In thesesituations, what other factors are relevant to identifying the relevant activities?



Power over an investee—Rights that give an investor power (1 of 2)

Feedback Analysis

Some stakeholders said they found itchallenging to assess whether rights areprotective. For example, it can be challeng-ing to make this assessment for rights heldby a franchisor under a franchise agreementthat restrict the ability of a party other thanthe franchisor to direct relevant activities.

Laws or contractual agreements can grantdecision-making rights. In IFRS 10 theBoard addressed the rights that give aninvestor power and those that do not.(a)

The Board’s view was that includingapplication guidance in IFRS 10 on therights that give an investor power wouldhelp in determining whether an investorcontrols an investee, or whether the rightsheld by other parties are sufficient toprevent an investor from controlling aninvestee.

An investor assesses the nature of its rightsand rights held by others to determine ifthese rights are protective. Only substantiverights that are not protective can give aninvestor power.


Paragraphs B26–B27 of IFRS 10:

In evaluating whether rights give an investor power over an investee, the investor shall assesswhether its rights, and rights held by others, are protective rights. Protective rights relate tofundamental changes to the activities of an investee or apply in exceptional circumstances.However, not all rights that apply in exceptional circumstances or are contingent on eventsare protective …

Because protective rights are designed to protect the interests of their holder without givingthat party power over the investee to which those rights relate, an investor that holds onlyprotective rights cannot have power or prevent another party from having power over aninvestee …


Generally, franchisors’ rights do not restrict the ability of parties other than the franchisor tomake decisions that have a significant effect on the franchisee’s returns. Nor do the rights ofthe franchisor in franchise agreements necessarily give the franchisor the current ability todirect the activities that significantly affect the franchisee’s returns.

It is necessary to distinguish between having the current ability to make decisions thatsignificantly affect the franchisee’s returns and having the ability to make decisions thatprotect the franchise brand. The franchisor does not have power over the franchisee if otherparties have existing rights that give them the current ability to direct the relevant activities ofthe franchisee.

(a) See paragraph BC95 of the Basis for Conclusions on IFRS 10.



Power over an investee—Rights that give an investor power (2 of 2)

Feedback Analysis

Some stakeholders asked for additionalguidance on how an investor reassessesits own rights and the rights of otherparties (including potential voting rights)when facts and circumstances change.

For example, some stakeholders askedthe Board to clarify how changes inmarket conditions affect the assessmentof whether potential voting rights aresubstantive.

The Board decided to require an entity toreassess whether it controls an investee iffacts and circumstances indicate that thereare changes to one or more of the threeelements of control.

An investor may hold financial instruments,such as options, which give the holder theright to gain power over an investee. However,in assessing control, potential voting rightsare considered only if they are substantive.

An investor considers all facts and circumstances, including the relevant factorslisted in paragraph B23 of IFRS 10, todetermine whether a right is substantive. Thecomparison between the strike or conversionprice and the current market value of theunderlying share is one factor an investorshould consider. The Board noted that achange in market conditions alone would nottypically result in a change in the consolida-tion conclusion.(a)

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An investor shall consider all facts and circumstances when assessing whether it controls aninvestee. The investor shall reassess whether it controls an investee if facts andcircumstances indicate that there are changes to one or more of the three elements of controllisted in paragraph 7 …

Paragraph B23 of IFRS 10:

Determining whether rights are substantive requires judgement, taking into account all factsand circumstances. Factors to consider in making that determination include but are notlimited to:

…

(c) Whether the party or parties that hold the rights would benefit from the exercise ofthose rights.

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An investor’s initial assessment of control or its status as a principal or an agent would notchange simply because of a change in market conditions (eg a change in the investee’sreturns driven by market conditions), unless the change in market conditions changes one ormore of the three elements of control listed in paragraph 7 or changes the overall relationshipbetween a principal and an agent.


Question 2(b)

In your experience:

(i) to what extent does applying paragraphs B26–B33 of IFRS 10 enable an investorto determine if rights are protective rights?

(ii) to what extent does applying paragraphs B22–B24 of IFRS 10 enable an investorto determine if rights (including potential voting rights) are, or have ceased tobe, substantive?



Power over an investee—Control without a majority of the voting rights

Feedback Analysis

Some stakeholders said that in somesituations, assessing whether an investorwith less than a majority of the voting rightshas control of an investee is challengingand can lead to inconsistent outcomes.

Some stakeholders specifically referred tothe situation described in paragraph B42(a)of IFRS 10 in which an investor with lessthan a majority of the voting rights has thepractical ability to direct an investee’srelevant activities because of the size of theinvestor’s voting rights relative to the sizeand dispersion of the other shareholdings.

Some stakeholders described divergentviews on whether a minimum level of votingrights is needed for control and, if so, whatthis minimum level should be.

Some stakeholders said the reassessmentrequirements are challenging to apply whenthe other shareholdings are widelydispersed. These stakeholders said therequirements oblige an investor to monitortransactions or events between othershareholders and that such monitoring canbe burdensome.

The Board has identified situations in whichan investor can control an investee eventhough it does not own more than half thevoting rights of an investee and does nothave other contractual rights in relation tothe activities of the investee. The Boardconcluded that it would be inappropriate tospecify that power only applies in situationsin which an investor has the unassailableright to direct the activities of the investee inevery possible scenario and the power toblock the actions of others.

As noted in paragraph 19 of this Request forInformation, in developing IFRS 10 theBoard avoided requirements based onquantitative thresholds and developed asingle basis for consolidation that requires aholistic and qualitative assessment of alllegal, contractual and other facts andcircumstances before such a determinationis made.

The Board concluded the assessment ofcontrol requires an entity to consider allfacts and circumstances and it would beimpossible to develop reconsiderationcriteria that would apply to every situation inwhich an investor obtains or loses control ofan investee. Therefore, the reassessment ofcontrol only when particular reconsiderationcriteria are met would lead to inappropriateconsolidation decisions in some cases.(a)

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An investor can have power even if it holds less than a majority of the voting rights of aninvestee.

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An investor with less than a majority of the voting rights has rights that are sufficient to give itpower when the investor has the practical ability to direct the relevant activities unilaterally.

Paragraph B42 of IFRS 10 provides examples of facts and circumstances to beconsidered in determining whether an investor with less than a majority of the voting rightshas power.


Question 2(c)

In your experience:

(i) to what extent does applying paragraphs B41–B46 of IFRS 10 to situations inwhich the other shareholdings are widely dispersed enable an investor that doesnot hold a majority of the voting rights to make an appropriate assessment ofwhether it has acquired (or lost) the practical ability to direct an investee’srelevant activities?

(ii) how frequently does the situation in which an investor needs to make theassessment described in question 2(c)(i) arise?

(iii) is the cost of obtaining the information required to make the assessmentsignificant?



Control—The link between power and returns

One element of control is the link between power and returns. An investorneeds to be able to use its power over the relevant activities of an investee toaffect its returns from its involvement with the investee. An investor cannotuse its power to affect its returns when it acts as an agent on behalf of anotherparty.

The link between power and returns—Principals and agents

Feedback Analysis

Some stakeholders said it can be challeng-ing to determine whether a decision makeris acting as a principal or an agent.

Some stakeholders noted that the remuneration (for example, a performancefee) and other interests held by the decisionmaker can be subject to complex arrange-ments and depend on future events orperformance. In such cases, stakeholdersfind it challenging to assess whether thedecision maker’s exposure to variablereturns is consistent with being an agent.

Stakeholders’ views differed on whether aminimum level of economic interest isrelevant in determining an agency relation-ship, and if so, what this minimum levelshould be.

The Board decided that the IFRS 10requirements which address control shouldalso apply to agency relationships.However, the Board noted that identifyingthe link between power and returns isimportant in distinguishing principals fromagents, so the requirements include aparticular focus on the exposure to returns.

The Board rejected developing a model thatwould specify a particular level of returnsthat would result in the determination of anagency relationship.

As previously stated, in developing IFRS 10the Board avoided requirements based onquantitative thresholds.

The Board concluded that the moreexposure a decision maker has to variablereturns from its involvement with an investee, the more likely it is that thedecision maker is a principal.



A decision maker shall consider the overall relationship between itself, the investee beingmanaged and other parties involved with the investee, in particular all the factors below, indetermining whether it is an agent:

(a) the scope of its decision‑making authority over the investee …;

(b) the rights held by other parties …;

(c) the remuneration to which it is entitled in accordance with the remunerationagreement(s) …; and

(d) the decision maker’s exposure to variability of returns from other interests that itholds in the investee …

Different weightings shall be applied to each of the factors on the basis of particular facts andcircumstances.

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Question 3(a)

In your experience:

(i) to what extent does applying the factors listed in paragraph B60 of IFRS 10 (andthe application guidance in paragraphs B62–B72 of IFRS 10) enable an investorto determine whether a decision maker is a principal or an agent?

(ii) are there situations in which it is challenging to identify an agency relationship?If yes, please describe the challenges that arise in these situations.

(iii) how frequently do these situations arise?



The link between power and returns—Non-contractual agency relationships

Feedback Analysis

Some stakeholders said it can be challeng-ing to prove or disprove that an investor andother parties have an agency relationship inthe absence of a contractual arrangement(a de facto agency relationship).

For example, when two investors undercommon control each hold an interest in aninvestee, some stakeholders are unsure ofwhat factors to consider in determiningwhether one investor acts on the otherinvestor’s behalf.

The Board concluded that when assessingcontrol, an investor considers its de factoagent’s decision‑making rights and theagent’s exposure or rights to variablereturns together with its own as if theagent’s rights were held by the investordirectly. In reaching this decision, the Boardjudged it inappropriate to assume that allother parties listed in paragraph B75 ofIFRS 10 would always or never act as defacto agents for the investor. The Boardacknowledged that judgement is requiredwhen assessing whether a party is a defacto agent of the investor. This assessmentincludes considering the nature of therelationship and how the parties interact.



When assessing control, an investor shall consider the nature of its relationship with otherparties and whether those other parties are acting on the investor’s behalf (ie they are ‘defacto agents’). The determination of whether other parties are acting as de facto agentsrequires judgement, considering not only the nature of the relationship but also how thoseparties interact with each other and the investor.

Such a relationship need not involve a contractual arrangement. A party is a de facto agentwhen the investor has, or those that direct the activities of the investor have, the ability todirect that party to act on the investor’s behalf. In these circumstances, the investor shallconsider its de facto agent’s decision‑making rights and its indirect exposure, or rights, tovariable returns through the de facto agent together with its own when assessing control of aninvestee.

Paragraph B75 of IFRS 10 provides examples of other parties that might act as de factoagents for the investor.

Question 3(b)

In your experience:

(i) to what extent does applying paragraphs B73–B75 of IFRS 10 enable an investorto assess whether control exists because another party is acting as a de factoagent (ie in the absence of a contractual arrangement between the parties)?

(ii) how frequently does the situation in which an investor needs to make theassessment described in question 3(b)(i) arise?

(iii) please describe the situations that give rise to such a need.



Investment entities

IFRS 10 requires investment entities to measure their investments insubsidiaries at fair value and to recognise any changes in fair value in profit orloss. An investment entity consolidates a subsidiary if the subsidiary is not aninvestment entity itself and its main purpose and activities are to provideservices that relate to the investment entity’s investment activities.

IFRS 10 defines an investment entity and describes its typical characteristics.

Investment entities—Criteria for identifying an investment entity

Feedback Analysis

Some stakeholders said the definition of aninvestment entity may not be sufficientlyrobust. These stakeholders asked for clarification on some aspects of the definition, including:

(a) business purpose—the extent ofparticipation in the active management of the investee that isconsistent with an investment entitystatus;

(b) exit strategy—the level of formaldocumentation required to provideevidence that the investment entityhas an exit strategy for its equity andnon-financial asset investments; and

(c) fair value measurement—theconditions that need to be fulfilled to demonstrate that fair value information is used for internalreporting and decision-makingpurposes.

In defining ‘investment entity’, the Boardproposed six criteria an entity needs tomeet to qualify as an investment entity. Afterconsidering feedback from stakeholders, theBoard concluded that the criteria were toorestrictive and that the focus should be onthe business model rather than the structureof the entity.

To qualify as an investment entity, an entitymust meet the definition. The typicalcharacteristics were included to help anentity determine whether it qualifies as aninvestment entity. Such an approachachieves a balance between clearly definingthose entities that qualify as investmententities and being too prescriptive.

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Paragraphs 27–28 of IFRS 10:

A parent shall determine whether it is an investment entity. An investment entity is an entitythat:

(a) obtains funds from one or more investors for the purpose of providing thoseinvestor(s) with investment management services;

(b) commits to its investor(s) that its business purpose is to invest funds solely forreturns from capital appreciation, investment income, or both; and

(c) measures and evaluates the performance of substantially all of its investments on afair value basis.

Paragraphs B85A–B85M provide related application guidance.

In assessing whether it meets the definition described in paragraph 27, an entity shallconsider whether it has the following typical characteristics of an investment entity:

(a) it has more than one investment …;

(b) it has more than one investor …;

(c) it has investors that are not related parties of the entity …; and

(d) it has ownership interests in the form of equity or similar interests …

The absence of any of these typical characteristics does not necessarily disqualify an entityfrom being classified as an investment entity.

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Question 4(a)

In your experience:

(i) to what extent does applying the definition (paragraph 27 of IFRS 10) and thedescription of the typical characteristics of an investment entity (paragraph 28of IFRS 10) lead to consistent outcomes? If you have found that inconsistentoutcomes arise, please describe these outcomes and explain the situations inwhich they arise.

(ii) to what extent does the definition and the description of typical characteristicsresult in classification outcomes that, in your view, fail to represent the natureof the entity in a relevant or faithful manner? For example, do the definitionand the description of typical characteristics include entities in (or excludeentities from) the category of investment entities that in your view should beexcluded (or included)? Please provide the reasons for your answer.



Investment entities—Subsidiaries that are investment entities

Feedback Analysis

Some stakeholders said requiring an investment entity to measure at fair value an investment in a subsidiary that is an investment entity itself (instead of requiringthe entity to consolidate the assets andliabilities of the subsidiary) results in theloss of information about:

(a) investments held by the intermediate subsidiary—forexample, information on fair valueand on changes in the fair value ofthese investments;

(b) investment-related servicesprovided by the intermediate subsidiary—for example, revenueand the cost of the service; and

(c) other assets and liabilities held bythe intermediate subsidiary, such ascash balances and liabilities.

These stakeholders noted that some investment entities disclose some of thisinformation voluntarily.

In the feedback to the Board’s consultationon investment entities in 2011, somestakeholders suggested that at least someintermediate investment entities, such assubsidiaries established solely for legal, tax or regulatory purposes, should beconsolidated rather than measured at fairvalue.

The Board decided that fair value is themost relevant information about an invest-ment in a subsidiary held by an investmententity, except for subsidiaries that provideonly investment-related services.

Moreover, the Board did not identify aconceptual basis or a practical way to distinguish between different types of subsidiaries that are investment entities.



Except as described in paragraph 32, an investment entity shall not consolidate itssubsidiaries or apply IFRS 3 [Business Combinations] when it obtains control of anotherentity. Instead, an investment entity shall measure an investment in a subsidiary at fair valuethrough profit or loss in accordance with IFRS 9 [Financial Instruments].

Notwithstanding the requirement in paragraph 31, if an investment entity has a subsidiary thatis not itself an investment entity and whose main purpose and activities are providing servicesthat relate to the investment entity’s investment activities …, it shall consolidate thatsubsidiary in accordance with paragraphs 19–26 of this IFRS and apply the requirements ofIFRS 3 to the acquisition of any such subsidiary.



Question 4(b)

In your experience:

(i) are there situations in which requiring an investment entity to measure at fairvalue its investment in a subsidiary that is an investment entity itself results ina loss of information? If so, please provide details of the useful information thatis missing and explain why you think that information is useful.

(ii) are there criteria, other than those in paragraph 32 of IFRS 10, that may berelevant to the scope of application of the consolidation exception forinvestment entities?



Accounting requirements

Accounting requirements—Change in the relationship between an investor and aninvestee

Feedback Analysis

Some stakeholders said IFRS Standardsshould provide greater detail on how toaccount for a transaction, event or circum-stances that alter the relationship betweenan investor and an investee. One exampleis a transaction in which a parent losescontrol of a subsidiary but retains aninterest in a joint operation.

Some stakeholders disagreed with therequirement to remeasure a retainedinterest (for example, an investment in anassociate) at fair value after a loss ofcontrol. These stakeholders take the viewthat remeasuring the retained interest isinappropriate because, considered inisolation, the retained interest has notchanged.

The Board has already considered thistopic. For example, in 2014 the Boardamended IFRS 11 to add requirements onthe acquisition of interests in jointoperations. However, IFRS Standards donot provide requirements that relate to alltransactions, events or circumstances thatalter the relationship between an investorand an investee.

In 2008 the Board revised IAS 27 Consoli-dated and Separate Financial Statementsand introduced requirements to account forthe loss of control of a subsidiary (theserequirements were later transferred toIFRS 10). The Board decided that anyinvestment the parent retains in the formersubsidiary would be measured at fair valueat the date when control is lost, because theloss of control is a significant economicevent. Measuring the retained investment atfair value is consistent with the view that thenew investor–investee relationship differsfrom the former parent–subsidiary relation-ship.(a)

continued...



...continued


When an entity holds an interest in an investee, the entity applies the relevant IFRSStandards to that retained interest, namely, IFRS 9, IFRS 10, IFRS 11 and IAS 28Investments in Associates and Joint Ventures.


If a parent loses control of a subsidiary, it shall:

…

(b) recognise:

(i) the fair value of the consideration received, if any, from the transaction, eventor circumstances that resulted in the loss of control;

(ii) if the transaction, event or circumstances that resulted in the loss of controlinvolves a distribution of shares of the subsidiary to owners in their capacityas owners, that distribution; and

(iii) any investment retained in the former subsidiary at its fair value at the datewhen control is lost.

…

(a) See paragraph BCZ182 of the Basis for Conclusions on IFRS 10.

Question 5(a)

In your experience:

(i) how frequently do transactions, events or circumstances arise that:

(a) alter the relationship between an investor and an investee (for example,a change from being a parent to being a joint operator); and

(b) are not addressed in IFRS Standards?

(ii) how do entities account for these transactions, events or circumstances thatalter the relationship between an investor and an investee?

(iii) in transactions, events or circumstances that result in a loss of control, doesremeasuring the retained interest at fair value provide relevant information? Ifnot, please explain why not, and describe the relevant transactions, events orcircumstances.



Accounting requirements—Partial acquisition of a subsidiary that does notconstitute a business

Feedback Analysis

Some stakeholders are unsure how aninvestor should account for a transaction inwhich an investor acquires control of asubsidiary that does not constitute abusiness, as defined by IFRS 3. In particular, stakeholders want to understandwhether the investor should recognise anon-controlling interest for equity not attributable to the parent. The feedbackindicates that two accounting practices havedeveloped:

(a) the method described inparagraph 2 of IFRS 3—allocatingthe consideration paid to the identifiable assets and liabilitiesacquired based on their relative fairvalues; and

(b) the acquisition method in IFRS 3—including recognition of non-controlling interests.

IFRS 3, which requires recognition of a non-controlling interest, applies to acquirees.‘Acquiree’ is defined as the business orbusinesses over which the acquirer obtainscontrol in a business combination. IFRS 3applies only to the acquisition of a businessor businesses.

IFRS 10 requires a parent to consolidate allits subsidiaries and defines non-controllinginterests as equity in a subsidiary not attributable, directly or indirectly, to a parent.A subsidiary need not constitute a business.



For each business combination, the acquirer shall measure at the acquisition datecomponents of non‑controlling interests in the acquiree that are present ownership interestsand entitle their holders to a proportionate share of the entity’s net assets in the event ofliquidation at either:

(a) fair value; or

(b) the present ownership instruments’ proportionate share in the recognised amounts ofthe acquiree’s identifiable net assets.

All other components of non‑controlling interests shall be measured at their acquisition‑datefair values, unless another measurement basis is required by IFRSs.

Paragraph 2 of IFRS 3 states that IFRS 3 does not apply to the acquisition of an asset ora group of assets that does not constitute a business.



Question 5(b)

In your experience:

(i) how do entities account for transactions in which an investor acquires controlof a subsidiary that does not constitute a business, as defined in IFRS 3? Does theinvestor recognise a non-controlling interest for equity not attributable to theparent?

(ii) how frequently do these transactions occur?



IFRS 11 Joint Arrangements

IFRS 11 establishes principles for financial reporting by entities that have aninterest in arrangements that are controlled jointly. An investor that is partyto a joint arrangement determines whether the arrangement is a joint ventureor a joint operation by assessing the rights and obligations of the parties to thearrangement.

Collaborative arrangements outside the scope of IFRS 11

Collaborative arrangements outside the scope of IFRS 11

Feedback Analysis

Some stakeholders said that IFRSStandards do not provide sufficient accounting requirements for all types of collaborative arrangements, such asarrangements in which two or more partiesmanage activities together but which do notqualify as joint arrangements as defined inIFRS 11 because of a lack of joint control.

For example, parties to a collaborativearrangement may exercise significantinfluence over the arrangement. In such asituation, an entity would apply the equitymethod in accordance with IAS 28.However, some stakeholders said accounting outcomes similar to those forjoint operations would more faithfullyrepresent the arrangements.

IFRS 11 carried forward the two characteristics required by IAS 31 for anarrangement to be deemed a ‘joint venture’:

(a) a contractual arrangement thatbinds the parties to the arrange-ment; and

(b) a contractual arrangement thatestablishes that two or more ofthose parties have joint control ofthe arrangement.

Collaborative arrangements such as thosedescribed are outside the scope of IFRS 11due to a lack of joint control.



This IFRS shall be applied by all entities that are a party to a joint arrangement.

A joint arrangement is an arrangement of which two or more parties have joint control.

A joint arrangement has the following characteristics:

(a) The parties are bound by a contractual arrangement …

(b) The contractual arrangement gives two or more of those parties joint control of thearrangement …

27



Question 6

In your experience:

(a) how widespread are collaborative arrangements that do not meet the IFRS 11definition of ‘joint arrangement’ because the parties to the arrangement do nothave joint control? Please provide a description of the features of thesecollaborative arrangements, including whether they are structured through aseparate legal vehicle.

(b) how do entities that apply IFRS Standards account for such collaborativearrangements? Is the accounting a faithful representation of the arrangementand why?



Classifying joint arrangements

Classifying joint arrangements

Feedback Analysis

Some stakeholders said classifying jointarrangements as either joint operations orjoint ventures can require significantjudgement, which they believed can beburdensome. In the view of these stakeholders, the requirements in IFRS 11regarding the classification of joint arrangements should be simpler to apply.

IFRS 11 requires a joint arrangement that isnot structured through a separate vehicle tobe classified as a joint operation. Indeveloping IFRS 11 the Board’s view wasthat the accounting for joint arrangementsshould reflect the rights and obligations theparties have as a result of their interests inthe arrangements, regardless of thestructures or legal forms of those arrangements.

Applying IFRS 11, a joint arrangementstructured through a separate vehicle isclassified as a joint operation in specifiedcircumstances based on other facts andcircumstances, such as the activities of thejoint arrangement having the primaryfunction of providing output to the parties ofthe joint arrangement.



An entity shall determine the type of joint arrangement in which it is involved. Theclassification of a joint arrangement as a joint operation or a joint venture depends upon therights and obligations of the parties to the arrangement.

Paragraphs B31 of IFRS 11:

When the activities of an arrangement are primarily designed for the provision of output to theparties, this indicates that the parties have rights to substantially all the economic benefits ofthe assets of the arrangement. The parties to such arrangements often ensure their access tothe outputs provided by the arrangement by preventing the arrangement from selling output tothird parties.

Question 7

In your experience:

(a) how frequently does a party to a joint arrangement need to consider other factsand circumstances to determine the classification of the joint arrangement afterhaving considered the legal form and the contractual arrangement?

(b) to what extent does applying paragraphs B29–B32 of IFRS 11 enable an investorto determine the classification of a joint arrangement based on ‘other facts andcircumstances’? Are there other factors that may be relevant to theclassification that are not included in paragraphs B29–B32 of IFRS 11?



Accounting requirements for joint operations

Accounting requirements for joint operations

Feedback Analysis

Some stakeholders asked about cases inwhich joint operators are committed tobuying a share of output that differs fromtheir share of ownership in the jointoperation. The stakeholders asked:

(a) for the basis on which a jointoperator determines its share ofjointly held assets and jointlyincurred liabilities; and

(b) how an entity accounts for a difference between the amount of assets and liabilities initiallyrecognised and the equity that wascontributed initially.

The Committee has published a number ofagenda decisions on the accounting forinterests in joint operations.

In March 2015 the Committee noted theimportance of understanding why a jointoperator’s share of output purchased differsfrom the ownership interest in the jointoperation in determining the appropriateaccounting as required by paragraph 20 ofIFRS 11.

Some stakeholders discussed situations inwhich a joint operator enters into anagreement on behalf of the joint operation,and expressed the view that the liabilitiesrecognised by the joint operator shouldreflect its primary responsibility and takeinto consideration both the contractualagreement with the third party supplier andthe agreement with the joint operation or theother operators to reflect the expectedeconomic exposure of the joint operator.

In March 2019 the Committee said the liabilities a joint operator recognises includethose for which it has primary responsibility.The Committee said identifying the liabilitiesa joint operator incurred and those incurredjointly requires an assessment of the termsand conditions in all contractual agreementsthat relate to the joint operation, includingconsideration of the laws pertaining to thoseagreements.

When a joint operator has primary responsibility for a liability, the joint operatorrecognises that liability in its financialstatements, applying paragraph 20 ofIFRS 11, and determines whether and howit should recognise a corresponding right torecover amounts from the other jointoperators. This accounting makes clear thatalthough the joint operator may have a rightto recover from other joint operators, itwould be obliged to meet its primaryresponsibility even if it failed to recover from those operators.

continued...



...continued



A joint operator shall recognise in relation to its interest in a joint operation:

(a) its assets, including its share of any assets held jointly;

(b) its liabilities, including its share of any liabilities incurred jointly;

(c) its revenue from the sale of its share of the output arising from the joint operation;

(d) its share of the revenue from the sale of the output by the joint operation; and

(e) its expenses, including its share of expenses incurred jointly.

Question 8

In your experience:

(a) to what extent does applying the requirements in IFRS 11 enable a jointoperator to report its assets, liabilities, revenue and expenses in a relevant andfaithful manner?

(b) are there situations in which a joint operator cannot so report? If so, pleasedescribe these situations and explain why the report fails to constitute arelevant and faithful representation of the joint operator’s assets, liabilities,revenue and expenses.



IFRS 12 Disclosure of Interests in Other Entities

IFRS 12 sets out disclosure requirements for an entity’s interests insubsidiaries, joint arrangements, associates and unconsolidated structuredentities, and the risks associated with these interests.

Disclosure of interests in other entities


Feedback Analysis

Some stakeholders asked for additionalinformation including:

(a) disclosure of the composition ofnon-controlling interests (such asto which subsidiaries the interestrelates);

(b) disclosure of the proportionateshare of operating cash flowsattributable to material non-controlling interests;

(c) information on restrictions onpaying dividends, dividend traps,the tax consequences of distributions and the subordinationof debt in subsidiaries; and

(d) greater disaggregation of assetsand liabilities held by subsidiarieswith material non-controllinginterests, associates and jointventures.

In contrast, other stakeholders foundsome of the requirements in IFRS 12excessive. For example, some questionedthe need to provide information aboutsubsidiaries with significant non-controlling interests, because thegroup controls the assets and is responsible for the liabilities.

The Board’s objective in developing IFRS 12was to respond to requests from users offinancial statements to improve the disclosurerequirements on a reporting entity’s interestsin other entities.

The objective of IFRS 12 is to:

require an entity to disclose information thatenables users of its financial statements toevaluate:

(a) the nature of, and the risks associatedwith, its interests in other entities; and

(b) the effects of those interests on itsfinancial position, financial perform-ance and cash flows.(a)

Summarised financial information aboutsubsidiaries with material non‑controllinginterests is intended to help users of financialstatements predict future cash flows attributa-ble to those with claims against the entityincluding those holding the non‑controllinginterests.

The Board also sought to develop require-ments on the risks to which an entity isexposed through its involvement withstructured entities, including those it hassponsored. The requirements were developedto respond to concerns that financialstatements lacked information about the risksarising from structured entities, includingstructured entities that provide investmentand securitisation services.

continued...

28



...continued


Feedback Analysis

Some stakeholders have found itchallenging to apply requirements inIFRS 12, for example, those relating to:

(a) applying the definition ofstructured entities and identifyingunconsolidated structured entities;and

(b) obtaining the information requiredfor disclosures.

When applying IFRS 12, an entity shallconsider the level of detail necessary tosatisfy the objective of IFRS 12. Financialinformation should be disclosed separately foreach joint arrangement and associate that isindividually material, and in aggregate for jointarrangements and associates that are notindividually material.

Guidance on the appropriate level of aggregation and detail is available in IFRSStandards and in IFRS PracticeStatement 2 Making Materiality Judgements.

(a) Other entities include subsidiaries, joint arrangements, associates and unconsolidatedstructured entities.

Question 9

In your experience:

(a) to what extent do the IFRS 12 disclosure requirements assist an entity to meetthe objective of IFRS 12, especially the new requirements introduced by IFRS 12(for example the requirements for summarised information for each materialjoint venture or associate)?

(b) do the IFRS 12 disclosure requirements help an entity determine the level ofdetail necessary to satisfy the objective of IFRS 12 so that useful information isnot obscured by either the inclusion of a large amount of detail or theaggregation of items that have different characteristics?

(c) what additional information that is not required by IFRS 12, if any, would beuseful to meet the objective of IFRS 12? If there is such information, why andhow would it be used? Please provide suggestions on how such informationcould be disclosed.

(d) does IFRS 12 require information to be provided that is not useful to meet theobjective of IFRS 12? If yes, please specify the information that you considerunnecessary, why it is unnecessary and what requirements in IFRS 12 give riseto the provision of this information.



Other topics

As part of the first phase of this Post-implementation Review, somestakeholders raised questions about how IFRS 10 and IFRS 11 interact withother IFRS Standards, for example, with regard to the accounting fortransactions involving the sale of a subsidiary to a customer.5

Question 10

Are there topics not addressed in this Request for Information, including those arisingfrom the interaction of IFRS 10 and IFRS 11 and other IFRS Standards, that you considerto be relevant to this Post-implementation Review? If so, please explain the topic andwhy you think it should be addressed in the Post-implementation Review.

29

5 See Agenda Paper 12A for the June 2020 Board meeting.



https://cdn.ifrs.org/-/media/feature/meetings/2020/june/iasb/ap12a-maintenance-and-consistent-application.pdf

Appendix—Background to IFRS 10 Consolidated FinancialStatements, IFRS 11 Joint Arrangements and IFRS 12 Disclosureof Interests in Other Entities

IFRS 10 Consolidated Financial Statements

IFRS 10 Consolidated Financial Statements establishes principles for presentingand preparing consolidated financial statements when an entity controls oneor more other entities.

In 2011, the Board issued IFRS 10 to reduce the diversity in practice arisingfrom entities applying IAS 27 Consolidated and Separate Financial Statements andSIC-12 Consolidation—Special Purpose Entities.

IAS 27 required the consolidation of entities that are controlled by the parent.IAS 27 defined control as the power to govern the financial and operatingpolicies of an entity to obtain benefits from its activities. SIC-12 interpretedthe requirements of IAS 27 in the context of special purpose entities, with afocus on risks and rewards. The coexistence of IAS 27 and the SIC-12interpretation gave rise to a perceived inconsistency, which was aggravated bya lack of clarity on when an entity should apply IAS 27 or SIC-12. As a result,entities sometimes assessed control using quantitative thresholds thatpermitted structuring opportunities.

IFRS 10 replaced the requirements in IAS 27 and SIC-12 with a single basis forconsolidation—control over an investee. An investor is deemed to have controlif it:

(a) has power over the investee;

(b) is exposed, or has rights, to variable returns from its involvement withthe investee; and

(c) has the ability to use its power over the investee to affect the amountof the investor’s returns.

IFRS 10 includes requirements that enable the application of control incomplex situations, for example:

(a) when an investor controls an investee that is governed by means ofvoting rights, but the investor has less than a majority of the votingrights;

(b) when an investee is not governed by means of voting rights;

(c) agency relationships; and

(d) when the investor or other parties have protective rights.

The Board amended IFRS 10 to provide an exception to the consolidationrequirements for the class of entities defined as ‘investment entities’.

A1

A2

A3

A4

A5

A6



IFRS 11 Joint Arrangements

IFRS 11 Joint Arrangements establishes principles for financial reporting byentities with an interest in arrangements that are controlled jointly. IFRS 11replaced IAS 31 Interests in Joint Ventures.

IAS 31 specified the accounting requirements to apply depending on thestructure of the arrangement. IAS 31 also permitted an entity with an interestin a joint venture to choose between proportionate consolidation and theequity method.

IFRS 11 specifies the accounting requirements to apply based on the nature ofthe rights and obligations of the parties to the arrangement. IFRS 11 alsoprohibits an entity from applying proportionate consolidation to account foran interest in a joint venture. Paragraph BC41 of the Basis for Conclusions onIFRS 11 stated the equity method is the most appropriate method to accountfor joint ventures because it is a method that accounts for an entity’s interestin the net assets of an investee.

IFRS 12 Disclosure of Interests in Other Entities

IFRS 12 Disclosure of Interests in Other Entities requires an entity to discloseinformation that enables users of its financial statements to evaluate:

(a) the nature of, and risks associated with, the entity’s interest in otherentities; and

(b) the effects of those interests on the entity’s financial position, financialperformance and cash flows.

IFRS 12 establishes principles for disclosing a reporting entity’s interests inother entities with which the reporting entity has a special relationship. Aspecial relationship could mean the reporting entity controls another entity,has joint control of or significant influence over another entity or has aninterest in an unconsolidated structured entity.

IFRS 12 introduced additional disclosure requirements on:

(a) investment entities, in accordance with IFRS 10;

(b) joint arrangements and associates, including the nature and effects ofthe reporting entities’ relationships with the other parties or investorsin the joint arrangements and associates and the nature of the risksassociated with those interests; and

(c) consolidated entities and the reporting entities’ relationships withunconsolidated structured entities.

A7

A8

A9

A10

A11

A12



Documents

Request for Information: Post-implementation Review of ... · IFRS 12 sets out disclosure requirements for an entity’s interests in subsidiaries, joint arrangements, associates