Introductory Section

ANNUAL COMPREHENSIVE FINANCIAL REPORT, STATE OF MARYLAND

Peter Franchot Comptroller

March 21, 2022

The Annual Comprehensive Financial Report (ACFR) of the State of Maryland (State), for the Fiscal Year ended June 30, 2021, includes the financial statements of the State as well as information required by Title 2, Section 102 of the State Finance and Procurement Article of the Annotated Code of Maryland. Responsibility for both the accuracy of the presented data and the completeness and fairness of the presentation, including all disclosures, rests with the Office of the Comptroller.

The statutes of the State require an audit of every unit of the Executive and Judicial branches of government, including the Comptroller of Maryland’s records, by the Legislative Auditor at least every three to four years unless the Legislative Auditor determines, on a case-by-case basis, that more frequent audits are required. The Legislative Auditor is a licensed certified public accountant, as required by Maryland State Government Code § 2-1218. The Legislative Auditor conducts fiscal, compliance and performance audits of the various agencies and departments of the State and issues a separate report covering each of those audits. The primary purpose of the reports is to present the Legislative Auditor’s findings relative to the fiscal management of those agencies and departments.

Additionally, my office requires an audit of the State’s basic financial statements by a firm of independent auditors selected by an audit selection committee composed of members from the Comptroller’s Office, a representative from the University System of Maryland, and other units of the Executive branch of State government. This requirement has been complied with, and the opinion of CliftonLarsenAllen LLP, has been included in the financial section of this report. CliftonLarsenAllen LLP also performs an audit to meet the requirements of the Office of Management and Budget (OMB) 2 CFR 200, “Uniform Administrative Requirements, Cost Principles, and Audit Requirements for Federal Awards,” and such information is contained in a separate report.

The State has issued guidelines to its agencies for establishing effective internal controls. As a recipient of Federal assistance, the State is responsible for ensuring compliance with laws and regulations related to such assistance. This compliance is accomplished through the internal control guidelines. Because the cost of internal control should not exceed anticipated benefits, the objective is to provide reasonable, rather than absolute, assurance that the financial statements are free of any material misstatements.

The accompanying financial statements include all funds of the State (primary government), as well as all component units. Component units are legally separate entities for which the primary government is financially accountable. The various colleges and universities, the Maryland Prepaid College Trust of the Maryland 529 Plans, and the Maryland Stadium Authority are reported as major component units. The Maryland Environmental Service, the Maryland Industrial Development Financing Authority, the Maryland Economic Development Assistant Authority Fund, the Maryland Small Business Financing Authority, the Maryland Food Center Authority, and the Maryland Technology Development Corporation are combined and presented as non-major component units.

Accounting principles generally accepted in the United States of America require that management provide a narrative introduction, overview and analysis to accompany the basic financial statements in the form of Management’s Discussion and Analysis (MD&A). This letter of transmittal is designed to complement the MD&A and should be read in conjunction with the MD&A. The MD&A can be found immediately following the report of the independent public accountants.

Background Information on the State:

Maryland ratified the United States Constitution on April 28, 1788. Its capitol is Annapolis, where the principal activities of state government are centered. Its employment is based largely in services, trade and government. These sectors, along with finance, insurance and real estate are the largest contributors to the gross state product. The State has a bicameral legislature, the General Assembly, composed of the Senate with 47 members and the House of Delegates with 141 members. The General Assembly meets annually for a 90-day session beginning on the second Wednesday in January.

The Maryland Constitution requires the Governor to submit to the General Assembly a balanced budget for the following year. The General Assembly cannot increase the budget except in certain organizational units. The budget currently uses a legally mandated budgetary fund structure. Each State agency is provided appropriations at a program level, which is the level at which expenditures cannot legally exceed the appropriations. The State also utilizes an encumbrance system to serve as a tool for managing available appropriations. Maryland maintains its accounts to conform with the legally mandated budget and also to comply with generally accepted accounting principles. Financial control is generally exercised under the budgetary system.

There is a Spending Affordability Committee which consists of certain designated officers of the General Assembly and other members as may be appointed by the President of the Senate and the Speaker of the House of Delegates. Each year the Committee must submit a report to the General Assembly’s Legislative Policy Committee and to the Governor recommending the level of State spending, the level of new debt authorization, the level of State personnel and the use of any anticipated surplus funds.

Also, the General Assembly created a Capital Debt Affordability Committee, the members of which are the Treasurer, the Comptroller, the Secretary of Budget and Management, the Secretary of Transportation, and one person appointed by the Governor. This Committee is required to submit an estimate of the maximum amount of new general obligation debt that prudently may be authorized to the Governor by October 1 of each year. The Committee’s recent reports encompass all tax supported debt, in addition to the general obligation debt, bonds issued by the Department of Transportation, bonds issued by the Maryland Stadium Authority and capital lease transactions. Although the Committee’s responsibilities are advisory only, the Governor is required to give due consideration to the Committee’s finding in preparing a preliminary allocation of new general obligation debt authorizations for the next ensuing fiscal year.

Information on the State’s Economic Condition:

The COVID-19 pandemic (the pandemic) continues to cause disruption amid a rapid but uneven economic recovery. Following a steep decline in output, economic stimulus offset the collapse in demand. As a result, income continued growing through the pandemic. At the same time, the pandemic continues to disrupt supply, which cannot shift as quickly as demand. We expect the recovery to continue but slow as the economy gets back to its long-term trend rate of growth. The worse the pandemic gets the more it will disrupt continued growth. As consumers and investors, people typically react to perceptions of increased risk by pulling back on consumption and increasing their savings. Furthermore, pandemic related supply constraints are causing price increases, leading to the highest measured inflation in decades.

Though the unemployment rate is low, total employment remains millions of jobs below its prior peak, pointing to a decline in labor participation. After falling 5.1% from January to April 2020, labor participation recovered only some of its loss by July 2020 and has been essentially flat ever since. The labor participation rate of workers over 55 remains near its pandemic low. Despite record openings, elevated wage growth, and expired unemployment benefits, potential workers have not been brought back into the labor force in significant numbers.

The preceding analysis speaks to the macroeconomy on average. But this average is not necessarily representative of the experience of any one sector, region, group, person, or business. Losses and gains have been experienced unequally. Job losses were concentrated among lower income workers, particularly in services, while employment in higher income jobs recovered. Larger businesses have better access to government subsidies and the financial system, so can sustain themselves for longer during a crisis. Small businesses run by Black and/or Latino owners closed, whether temporarily or permanently, at higher-than-average rates over the pandemic. In short, the pandemic worsened existing social inequalities.

The result of constrained supply during this period of adjustment is higher real prices and lower output than would otherwise be the case. The pandemic caused a negative supply shock and shifted demand towards goods. At the same time economic stimulus caused a rapid recovery in aggregate demand. The result is elevated inflation in the short run.

Inflation that persists into the long run is achieved through monetary causes. Whether elevated inflation will be persistent therefore depends primarily on monetary policy. Nominal Gross Domestic Product (GDP) has recovered its pre-pandemic trend; unemployment is low, and inflation elevated. These are signals that the Federal Reserve (the Fed) should move to tighten policy to prevent persistent inflation; they recently announced their intention to do just that. Monetary policy is at an inflection point. The nominal recovery is complete, which means the Fed must tighten the right amount at the right time to prevent persistent inflation while avoiding hitting the brakes too hard. It is a delicate balance that is easy to miscalculate in normal times.

Maryland’s economy has structural factors in its favor. Typically, the State’s economy and employment contracts less than the nation in a recession. This is partly due to high education and skill levels of the labor force and the presence of the federal government, a stable source of wellpaying jobs. That said, employment in Maryland has not performed noticeably better than the nation. Maryland employment reached its peak in January 2020 and fell by 400,700 (14.4%) to a low in April 2020. As of October 2021, employment remains 91,800 (3.3%) below the prior peak. However, the State is slightly outperforming the nation in terms of wage growth. In 2021 Q2, the most recent data at the state level, total wages grew 13.3% year-over-year in Maryland compared to 12.3% for the nation.

Our outlook calls for growth in employment and aggregate wages to slow but continue over the winter months. At the same time, there are factors supporting an outlook of continued growth. High savings will boost investment and can be drawn down to sustain consumption in the event of a decline in income. Beyond this winter, we expect the recovery to accelerate as the pandemic wanes. Real growth through 2022 is forecast to accelerate as supply adjusts and settles into longer run trends in 2022. Employment is not expected to regain its prior peak until early 2023.

Major Initiatives and Long Term Financial Planning:

With the prudent curtailment of state agency spending, Federal stimulus which helped to support individuals and small businesses, and the prudent use of the CARES Act Coronavirus Relief Fund, the state closed FY2020 with a fund balance of $703 million, $357 million higher than expected.

The FY 2022 budget preserves $1.2 billion in cash reserves between the FY 2022 ending budget surplus and the Rainy Day Fund balance. These reserves are necessary for Maryland to retain its AAA bond rating, which demonstrates the state’s continued legacy of strong financial stewardship over taxpayer monies. The FY 2022 budget is in full compliance with the General Assembly’s spending affordability guidelines.

Currently, the pension system is funded at 76.9% (compared to 73.6% in FY 2020) with FY 2022 pension funding of $1.73 billion. Progress continues to be made toward the 80% benchmark for a secure pension system.

The Free State continues its record funding of K-12 education for the seventh consecutive year at nearly $7.5 billion, with a record $803 million going toward school construction projects. In-state resident tuition growth at the University System of Maryland, Morgan State University, and St. Mary’s College is again capped at 2%. Community colleges funding is increased by $13.8 million, or 5.5%, over FY 2021.

Maryland once again builds upon its legacy of preserving natural resources and the environment by fully funding the Chesapeake and Atlantic Coastal Bays 2010 Trust Fund, which supports critical bay restoration activities. This fully funds all transfer tax programs. Nearly $43 million supports renewable and clean energy programs and another $14 million is dedicated to energy efficiency programs.

Maryland’s FY 2022 capital budget totals $4.8 billion, funding construction of buildings, infrastructure as well a long-term assets for the state. Most of the capital budget ($2.6 billion) supports transportation projects, including roads and mass transit. The remaining $2.3 billion encompasses education, environmental, and health-care related projects, and projects to spur development following the COVID-19 pandemic. A majority of the total state General Obligation bond funding in the capital budget (56%) is directed to education facilities.

Access to healthcare through the Medicaid program is available to 1.55 million Marylanders, a 10% increase over FY 2021. More than 21,000 eligible children are covered under the Child Care Scholarship program in FY 2022. The state has also provided record funding to treat mental health and substance use disorders. Efforts to treat substance abuse, including opioid abuse, have seen a funding increase of 562% since FY 2016, although the effort is far from over.

Through the RELIEF Act of 2021, an emergency package will provide more than $1 billion in tax relief and direct stimulus payments to eligible low-income Marylanders, small businesses and those who have lost their jobs as a results of the COVID-19 pandemic. The goal of the RELIEF Act is to jumpstart spending, spur job growth, and incentivize spending in local communities. Tax credits for game-changing technologies such as biotechnology, research and development, and cybersecurity also set the stage for Maryland’s future growth, innovation, and success.

State of Maryland continued response to the Covid recession

Once the pandemic struck there was an immediate understanding that aid would be necessary for Maryland business owners and individual taxpayers to survive the recession. In addition to federal aid from the CARES Act that was administered by the state, Maryland set up its own relief programs. The State has not only been called upon to respond to the COVID-19 public health crisis, but also to ensure the economic, social, and educational well-being of all Marylanders. Although the state of emergency ended on July 21 and over four million Marylanders are fully vaccinated to date, the state continues working to fight the residual economic effects on as many fronts as possible.

The RELIEF Act of 2021, passed by the General Assembly and signed into law by the Governor, provides more than $1billion in tax relief and economic stimulus for families and businesses in the form of direct stimulus payments and unemployment insurance relief to qualifying Marylanders and grants, loans, and tax relief for qualifying small businesses. The Act also builds upon the more than $700 million in emergency economic relief that had already been designated to assist struggling Marylanders. Also, the Comptroller of Maryland again extended the income tax filing and payment deadlines to July 15th, 2021, penalty and interest free, for corporate and individual taxpayers.

In FY 2021, the State obligated $190 million in Rainy Day funds to the Maryland Department of Commerce for small business relief. The Maryland Department of Housing and Community Development (DHCD) administered over $45 million for the Governor’s Maryland Strong Economic Recovery Initiative (MD-SERI) to support the state’s non-profit tourism organizations, entertainment venues, and businesses in the State’s designated Main Street Maryland communities and Baltimore City’s designated Main Street neighborhoods.

In addition to these targeted economic efforts, the state has spent more than $1.6 billion in state and federal funds to fight this public health emergency and keep Marylanders safe, including transferring $361 million to counties to fight the pandemic locally.

The Government Finance Officers Association of the United States and Canada (GFOA) awarded a Certificate of Achievement for Excellence in Financial Reporting to the State of Maryland for its Annual Comprehensive Financial Report for the Fiscal Year Ended June 30, 2020. The Certificate of Achievement is a prestigious national award recognizing conformance with the highest standards for preparation of state and local government financial reports.

In order to be awarded a Certificate of Achievement, a government unit must publish an easily readable and efficiently organized Annual Comprehensive Financial Report. This report must satisfy both generally accepted accounting principles and applicable legal requirements.

A Certificate of Achievement is valid for a period of one year only. The State of Maryland has received a Certificate of Achievement for the last 40 consecutive years (Fiscal Years ended 1980 – 2020). We believe that our current Annual Comprehensive Financial Report continues to conform to the Certificate of Achievement Program requirements, and we are submitting it to the GFOA to determine its eligibility for another certificate.

The preparation of the Annual Comprehensive Financial Report on a timely basis could not have been accomplished without the efforts and dedication of the staff of the General Accounting Division with assistance from other personnel from the various departments and agencies of the State.

I will be pleased to furnish additional information on the State’s finances upon request.

Sincerely,

Peter Franchot Comptroller of Maryland