"New accounting rules that took full hold last year prevent governments from counting on investment returns after they're broke, a technique that masked the scale of the debts they face as workers retire. But outside of their certified books, they're free to sideline it. 'There is great confusion about the numbers and what they mean,' said Robert North Jr., former chief actuary for New York City's pension funds. 'Whatever numbers are used are dependent on how they are created, what they represent and their purpose.' "

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