Table 6

Accounting for context in LGs’ financial health analysis: the comparative-integrated analytical model

Step 1 rating agenciesStep 2a Literature reviewStep 2b Guidelines and standards by international settersFinal framework
CriteriaCriteriaCriteriaCriteria, grouped in sub-dimensionsDimensions
 
  • S2a.1. Administrative traditions: (Continental Napoleonic; Continental Federal; Nordic; Anglo-Saxon; Central Eastern European; South Eastern European) (Kuhlmann et al., 2025)

  • S2a.2. Citizen orientation/structural concentration (Jugl, 2025)

 0.1. Administrative traditions (administrative traditions, citizen orientation/structural concentration – persistent nationwide attributes) [S2a.1; S2a.2]0. Administrative traditions
  • S1.1. Country's/Region's overall income, economic growth and economic diversification (Moody's)

  • S1.2. Wealth and income levels – GDP per capita with local qualitative adjustments (S&P)

  • S1.3. Economic stability (Fitch)

  • S1.4. Financial market development, affected by endogenous, exogenous and specific-sector factors (Fitch)

  • S1.5. Sovereign rating (Fitch)

 
  • S2b.1. Growth, inflation, interest rates, currency depreciation (IMF)

  • S2b.2. Economic and political uncertainty and risks (IMF, IPSASB)

  • S2b.3. Oil prices (IMF)

  • S2b.4. Population ageing (IMF, IPSASB)

  • S2b.5. Future economic and demographic conditions (IPSASB)

  • S2b.6. Assumptions about country and global trends (e.g., productivity, competitiveness, population age, income, educational level and workforce participation) (IPSASB)

  • S2b.7. Purchasing Power Parities (OECD)

  • S2b.8. Population, GDP (OECD, ECB)

  • S2b.9. Citizens and other stakeholders' sentiments and reactions (IMF)

  • 1.1. Sovereign risk, political conditions and policy environment (sovereign creditworthiness, political stability and macro-policy credibility)

  • 1.1.1. Sovereign credit rating and perceived credit risk [S1.5]

  • 1.1.2. Economic and political uncertainty, governance and risk factors [S2b.2]

  • 1.1.3. Forward-looking policy and global trend assumptions (productivity, competitiveness, etc.). [S2b.6]

  • 1.1.4. External comparability and international positioning (purchasing power parties, population/GDP scale, country and global trends) [S2b.7; S2b.8; S2b.6]

  • 1.2 Financial system characteristics and market conditions (depth, functioning and vulnerability of financial markets)

  • 1.2.1. Financial market development and sector-specific conditions [S1.4]

  • 1.2.2. Market-sensitive macro-financial factors (interest rates, inflation expectations, exchange rate dynamics) [S2b.1]

  • 1.2.3. Exposure to commodity price fluctuations, particularly oil [S2b.3]

  • 1.3. Macroeconomic strength, structure and performance (local level)

  • (core indicators of economic capacity, stability, income levels and structural characteristics)

  • 1.3.1. Overall economic size, income level, growth performance and diversification [S1.1; S1.2; S2b.8]

  • 1.3.2. Economic stability and macro-financial resilience (inflation, interest rates, currency depreciation) [S1.3; S2b.1]

  • 1.3.3. Structural long-term economic outlook (demographics, productivity, competitiveness) and citizens/stakeholders' sentiments and reactions [S2b.4; S2b.5; S2b.6; S2b.9]

1. International and national macroeconomic, political and financial operating environment
  • S1.6. Rules and procedures about governing powers and responsibilities (robust and clearly defined in the law; transparency in any change) (Moody's)

  • S1.7. Fiscal planning and budget management; fiscal policies such as debt and deficit ceilings (Moody's, S&P)

  • S1.8. Fiscal controls, transparent accounts and in-year monitoring and reporting (Moody's)

  • S1.9. Adequacy of the revenues to the expenditures (S&P)

  • S1.10. Predictability (frequency, implementation and outcomes) of the reforms affecting the division of responsibilities and revenues between levels of governments (S&P)

  • S1.11. Operational environment, which includes the revenue mix, tax autonomy, intergovernmental relations, funding and any equalisation mechanisms, expenditure profile, level and mix of responsibilities and bankruptcy regime (Fitch)

  • S1.12. Easy access to funding (domestic capital market, banks, public sector funding) (Moody's)

  • S1.13. Rescue mechanisms and exceptional support from Central government (Fitch, S&P)

  • S1.14. External support (bank and ad hoc loans from government (Fitch)

  • S2a.3. Legal constraints - an assessment should include at least fiscal rules, debt limits and insolvency procedures (Geissler et al., 2021)

  • S2a.4. Supervision and accountability mechanisms: No model clearly emerges from the literature, but an assessment should include at least: frequency, enforcement power, compliance vs transparency and performance-based accountability, independence, e.g. administrative control vs managerial autonomy (Geissler and Wegrich, 2021)

  • S2a.5. Intergovernmental arrangements: degree of vertical dispersion of authority, degree of horizontal coordination (Pollitt and Bouckaert, 2017)

  • S2b.10. Nature of the entity and regulatory environment (IPSASB)

  • S2b.11. Revenues shared with the central government vs local discretionary revenues (IMF)

  • S2b.12. Key institutional characteristics, such as government accountability and governance, to build trust (IMF)

  • S2b.13. Electoral cycles (IMF)

  • S2b.14. Transparency and effective communication strategies, for fostering public trust (IMF)

  • S2b.15. Transfer dependency and vertical fiscal imbalances (IMF)

  • 2.1. Institutional framework, governance quality and legal foundations (fundamental rules, legal structures and governance mechanisms that shape how the public sector operates)

  • 2.1.1. Legal framework, governing powers, responsibilities and institutional clarity [S1.1; S2a.1; S2a.3]

  • 2.1.2. Governance quality, accountability, supervision and enforcement mechanisms [S2a.2; S2b.3]

  • 2.1.3. Transparency, communication and institutional trust-building [S1.3; S2b.5]

  • 2.1.4. Regulatory and operational environment of the entity [S1.6; S2b.1]

  • 2.2 Fiscal management, budgetary performance and financial controls (how effectively a government plans, manages, controls and monitors its fiscal position)

  • 2.2.1. Fiscal planning, budgeting discipline and policy frameworks [S1.2; S2a.1]

  • 2.2.2. Fiscal controls, monitoring and reporting quality [S1.3]

  • 2.2.3. Revenue adequacy relative to expenditure responsibilities [S1.4; S2b.2]

  • 2.2.4. Predictability and stability of reforms affecting responsibilities and revenues [S1.5]

  • 2.3. Financing capacity, access to funding and support mechanisms (the ability to secure financing and the role of higher-level support mechanisms)

  • 3.1. Access to funding and liquidity sources [S1.7; S1.9]

  • 3.2. Intergovernmental support and rescue mechanisms [S1.8]

  • 2.4. Intergovernmental relations and structure of powers (how authority, responsibilities and resources are shared across levels of government)

  • 4.1. Intergovernmental arrangements, revenue-sharing and coordination mechanisms [S1.6; S1.5; S2b.2; S2a.3]

  • 2.5. Political dynamics and cyclical influences (political factors that shape budgetary behaviour, trust and institutional stability)

  • 5.1. Electoral and political cycles influencing fiscal decisions [S2b.4]

  • 5.2. Citizen and stakeholder trust, expectations and engagement [S2b.3; S2b.5]

2. Institutional, fiscal, governance and intergovernmental environment
  • S1.15. National regulation of public-sector accounting systems and standards of financial reporting and planning, in the transparency and accountability subdimension (S&P)

  • S1.16. Sector-wide accounting and reporting policies for borrowing and control and monitoring (Fitch)

  • S1.17. Accounting policies, reporting and transparency (Fitch)

  • S2a.6. Accrual accounting vs others

  • S2a.7. Adoption of IPSAS

  • S2a.8. Non-financial information

  • S2b.16. Comparison of fiscal reality in cash basis (OECD)

  • S2b.17. Accrual basis and international standards essential to improve the comparability and transparency of government financial reports (IPSASB, OECD)

  • S2b.18. ESA2010 (ECB)

  • S2b.19. Government Financial Statistics (GFS) – cash or non-cash (a spectrum of recording basis other than cash, including accrual) information (IMF)

  • 3.1. Governance, regulation and transparency of public-sector accounting (rules, oversight systems and governance mechanisms that ensure financial reporting integrity, monitoring, transparency and control in the public sector)

  • 3.1.1. Regulatory framework for public-sector accounting, reporting, borrowing and monitoring [S1.15; S1.16; S1.17]

  • 3.2. Accounting basis, standards adoption and international reporting frameworks

  • (the conceptual foundation--basis of accounting, alignment with international standards and statistical/reporting frameworks enabling comparability and high-quality public-sector information)

  • 3.2.1. Accounting basis and methodological foundations (cash, accrual, hybrid; GFS classifications) [S2a.6; S2b.15; S2b.18]

  • 3.2.2. Adoption of international financial reporting standards (IPSAS, OECD, ECB frameworks) [S2a.7; S2b.16; S2b.17]

  • 3.2.3. International comparability and harmonised reporting frameworks [S2b.15; S2b.16; S2b.17; S2b.18]

  • 3.3. Accounting for non-financial dimensions

  • 3.3.1. Integrated, sustainability and non-financial reporting requirements (ESG, SDG, IR) [S2a.8]

3. Accounting and reporting system
Source(s): Authors’ own work

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