2     U.S. Department of Labor

Table of Contents

Secretary’s Message ............................................................................................................................................................... 3

Department of Labor Mission, Organization, and Goal Structure.......................................................................................... 6

Program Performance Overview ............................................................................................................................................ 8

Strategic Goal 1:  Prepare workers for good jobs and ensure fair compensation ........................................................... 8

Strategic Goal 2:  Ensure workplaces are safe and healthy............................................................................................ 13

Strategic Goal 3:  Assure fair and high quality work‐life environments......................................................................... 15

Strategic Goal 4:  Secure health benefits, and for those not working, provide income security................................... 17

Strategic Goal 5:  Produce timely and accurate data on the economic conditions of workers and their families........19

American Recovery and Reinvestment Act of 2009 (Recovery Act)..................................................................................... 20

Financial Performance Overview..........................................................................................................................................21

Top Management Challenges ...............................................................................................................................................26

Open Government Link......................................................................................................................................................... 30

Questions or comments about this report should be directed to:  

U.S. Department of Labor

Center for Program Planning and Results

200 Constitution Avenue NW, Room S‐3317

Washington, DC  20210

202‐693‐7120
FY 2011 Summary of Performance and Financial Information     3

Secretary’s Message

February 15, 2012

I am pleased to submit the Department of Labor’s (DOL) Fiscal Year (FY) 2011

Summary of Performance and Financial Information, which presents highlights of

information previously published in the FY 2011 Agency Financial Report (AFR) and

the FY 2011 Annual Performance Report (APR).1

  The complete FY 2011 AFR and FY

2011 APR can be found at: http://www.dol.gov/dol/aboutdol/main.htm.

Even in challenging economic times, the Department is constantly evolving to help

meet the needs of the American people, all while working toward my vision of good

jobs for everyone.  DOL remains committed to supporting the workforce’s needs,

whether someone is looking for a job, has a job, or has retired.  Through the

Department’s many programs and services, more than 17,000 DOL employees

nationwide are hard at work getting America back to work.  We are doing this through

several major initiatives, which include the following:  

Getting America Back to Work

The Department is committed to promoting employment opportunities and training in vulnerable communities,

supporting the employment needs of our veterans, fostering innovative new ways to deliver services at lower costs, and

preparing the workforce for new employment opportunities in the “green” economy.  You see this commitment at  the

Electrical Joint Apprenticeship Training Center in San Jose, California, where trainees learn to install and maintain

advanced lighting control systems and obtain certification, or at the 100 hiring fairs held throughout the country during

FY 2011 as part of the Hiring our Heroes initiative.  Furthermore, the Department launched mynextmove.org, a Web site

designed to help job seekers identify career paths.  DOL also continues to promote its YouthBuild program, ensuring

younger workers can gain hands‐on job experience while completing their education.  Other initiatives include focusing

on the expansion of employer‐linked training, on‐the‐job training implementation grants, and apprenticeship expansion.  

Keeping Workers Safe

We are strengthening our enforcement programs to ensure that wages and worker rights are protected and that safe

working conditions exist for the entire workforce.  We are giving our inspectors the tools they need to ensure that

workers are safe when providing for their families.  As an example, the Department proposed a rule requiring that

continuous mining machines used in underground coal mines be equipped with proximity detection systems.  When

installed on mining machinery, proximity detection can detect the presence of personnel or other machinery within a

certain distance.  These systems can be programmed to send warning signals and stop machine movement when certain

areas are breached, thus protecting worker lives.  Additionally, we have made significant enhancements to our online

enforcement database to improve the public’s access to and understanding of our enforcement activities.  We also

developed a heat safety mobile application that allows workers and supervisors to monitor the heat index for their work

 

1 This report, as well as the FY 2011 AFR and the FY 2011 APR can be found on the Internet at

http://www.dol.gov/dol/aboutdol/main.htm.  This report contains information on Fiscal Year (FY) 2011 and Program Year (PY) 2010

performance.
4     U.S. Department of Labor

site.  Based on the heat index, the application displays the level of risk to outdoor workers and provides reminders about

the protective measures that should be taken to protect them from heat‐related illness.

Helping Workers Provide for Their Families and Keep What They Earn

We continue to work to ensure that employees receive the wages and benefits they earn, both while employed and

after retirement.  We have expanded our regional Wage and Hour Division presence to improve communication with

stakeholders and to help coordinate with community‐based resources to support enforcement initiatives.  Health and

pension benefits need to be protected, and we are working to reduce inequities in the workforce that result from

discrimination.  DOL will defend employee rights under the law, and the Department wants companies that play by the

rules to know that we will take action against those that use illegal tactics to gain an unfair competitive advantage.  One

area that demonstrates DOL’s commitment is protecting   migrant workers.  In September, along with the ambassadors

from the Dominican Republic, Costa Rica, and El Salvador, I signed declarations that will help protect the labor rights of

workers from those countries while they are employed in the United States.  These countries joined representatives

from Mexico, Nicaragua, and Guatemala, who previously signed agreements with the Department.

Ensuring Program Effectiveness, Improving Efficiency, and Increasing Transparency

We are striving to provide additional outputs with fewer tax dollars to ensure that the public is receiving value for the

services we are delivering. To do that, we are conducting comprehensive evaluations of our major programs to build our

knowledge of which strategies and approaches work and to ensure that resources are invested in high‐impact areas.  We

are reducing travel costs, incorporating renewable energy to reduce real property costs, and developing electronic data

collection systems to reduce the need for paper forms.  I invite you to explore our Open.Gov page on the DOL Web site.  

Here you will find the latest data sets, links to ways you can connect with Department staff, and information about how

you can provide input that will make our Web site, and our work, even better and more engaging.

Management Assurances

To lead in information technology and transparency, we implemented a new core financial management system in

January 2010.  This state‐of‐the‐art financial management system allows the Department to leverage technology to

support financial analysis and real‐time decision‐making.  Ultimately, the new system allows us to provide higher quality

service, control and reduce costs, and improve efficiency and effectiveness.  As I reported last year, the transition to the

new system was challenging; however, we ultimately received an unqualified audit opinion on the FY 2010 financial

statements in May 2011.

Having just completed our first full fiscal year with the new system, I can proudly report that we have again received an

unqualified opinion on our financial statements for the fiscal year ending September 30, 2011.  I am also pleased to

provide an unqualified statement of assurance regarding the Department’s internal controls, as required by the Federal

Managers’ Financial Integrity Act (FMFIA) of 1982 and Office of Management and Budget Circular No. A‐123,

Management’s Responsibility for Internal Control.  We are confident that the financial and summary performance data

included in this Summary Report are complete and reliable in accordance with federal requirements.

Moving forward, the Department is committed to working on weaknesses in internal controls concerning financial

reporting noted by the Inspector General and the auditors.  Further information on this, as well as the results of

management’s assessment of internal controls and compliance of financial management systems, pursuant to FMFIA

and the Federal Financial Management Improvement Act of 1996 (FFMIA), are discussed in the Management’s

Discussion and Analysis section of the Agency Financial Report.
FY 2011 Summary of Performance and Financial Information     5

Conclusion

Through our commitment to transparency and openness, the Department wants to show what we are doing to get

America working.  Therefore, it is my pleasure to submit the DOL’s Summary of Financial and Performance Information

for Fiscal Year 2011 to Congress and the American people.  It is important to remember that this report only provides a

snapshot in time.  At the end of this report, there is a list of links that will allow you to stay up‐to‐date with the

Department’s latest news.  I invite you to engage with us in real‐time by following us on Twitter, Facebook, and YouTube

for the newest information.  With all the exciting work we are doing, I look forward to the coming year and engaging

stakeholders through our effort to advance the Department of Labor’s mission.  Now, let’s get America back to work!

HILDA L. SOLIS

U.S. Secretary of Labor

   
6     U.S. Department of Labor

Department of Labor Mission, Organization, and Goal Structure

The Department of Labor fosters and promotes the welfare of job seekers, wage earners, and retirees of the U.S. by

improving their working conditions, advancing their opportunities for profitable employment, protecting their retirement

and health care benefits, helping employers find workers, strengthening collective bargaining, and tracking changes in

employment, prices and other national economic measures.

The Department accomplishes this mission through component agencies and offices that administer various statutes

and programs.  These programs are carried out through a network of regional offices and smaller field, district, and area

offices, as well as through grantees and contractors.  The largest program agencies, each headed by an Assistant

Secretary, Commissioner, or Director, are the Employment and Training Administration, Occupational Safety and Health

Administration, Mine Safety and Health Administration, Veterans’ Employment and Training Service, Employee Benefits

Security Administration, and Bureau of Labor Statistics.  The Secretary of Labor is the Chair of the Board of Directors of

Pension Benefit Guaranty Corporation.2

 

2

PBGC – a Federal corporation created by the Employee Retirement Income Security Act (ERISA) of 1974 – is not included in the DOL

organization chart.  PBGC is included in this report because PBGC is included in the Department’s performance budget.  PBGC

publishes an Annual Performance Report that can be found at http://www.pbgc.gov/about/budget‐performance‐and‐planning.html.
FY 2011 Summary of Performance and Financial Information     7

The Department’s goal structure has four levels:   

 Strategic Goals

Five broad outcome goals that support the Department’s mission and vision of good jobs for everyone.

 Outcome Goals

Fourteen outcome goals that articulate more specific objectives associated with one or more programs and DOL

agencies.    

 Performance Goals

Agency‐specific performance goals that express contributions to the Departmental objectives by its programs.  

This report includes 10 key performance goals of the 23 performance goals included in the FY 2011 APR.   

 Performance Measures

Progress in achieving the performance goals is measured by one or more quantifiable performance measures.  

This summary includes 36 key measures of the 111 measures in the FY 2011 APR.

The strategic goal framework signals the Secretary’s commitment to leading a stronger, more effective Department of

Labor.  An important innovation of the new goal structure is the Department’s commitment to measuring the effect of

its agencies’ activities on the day‐to‐day lives of working families – their wages, working hours, benefits, work‐life

balance, workplace safety and health, and equal employment opportunity, among other issues.  This focus on workers

and their families is reflected in the table below, which organizes DOL program agencies into five categories.  

Employment and Training

Employment and Training Administration (ETA)

Veterans’ Employment and Training Service (VETS)

Worker Protection

Office of Federal Contract Compliance Programs (OFCCP)

Occupational Safety and Health Administration (OSHA)

Wage and Hour Division (WHD)

Employee Benefits Security Administration (EBSA)

Mine Safety and Health Administration (MSHA)

Office of Labor‐Management Standards (OLMS)

Policy

Women’s Bureau (WB)

Office of Disability Employment Policy (ODEP)

Bureau of International Labor Affairs (ILAB)

Benefits

Office of Workers’ Compensation Programs (OWCP)

Federal‐State Unemployment Insurance (UI) System (administered by ETA)

Statistics

Bureau of Labor Statistics (BLS)

In addition to these agencies and programs, the Department’s mission is also supported by administrative, policy, legal,

public affairs, and congressional liaison offices.
8     U.S. Department of Labor

Program Performance Overview

Strategic Goal 1:  Prepare workers for good jobs and ensure fair compensation

Six outcome goals support Strategic Goal 1:

1.1 Increase workers’ incomes and narrow wage and income inequality;  

1.2 Assure skills and knowledge that prepare workers to succeed in a knowledge‐based economy, including in high

growth and emerging industry sectors like “green” jobs;

1.3 Help workers who are in low‐wage jobs or out of the labor market find a path into middle‐class jobs;  

1.4 Help middle‐class families remain in the middle class;  

1.5 Secure wages and overtime; and  

1.6 Foster acceptable working conditions and respect for workers’ rights in the global economy to provide workers

with a fair share of productivity and protect vulnerable people.

The Employment and Training Administration (ETA) and the Veterans’ Employment and Training Service (VETS) oversee

programs that prepare workers for good jobs at good wages.  VETS also protects veterans’ reemployment rights.  The

Office of Federal Contract Compliance Programs (OFCCP) ensures workers are recruited, hired, trained, promoted,

terminated, and compensated in a non‐discriminatory manner by federal contractors.  OFCCP helps workers in the

federal contractor sector by strengthening affirmative action and by combating discrimination on the basis of race,

color, religion, sex, national origin, disability, or status as a covered veteran.  The Wage and Hour Division (WHD)

protects workers’ hard‐earned wages.  WHD concentrates its compliance programs on ensuring fair compensation for

the most vulnerable workers – agricultural and young workers, workers in fissured industries3

, and individuals with

disabilities – while continuing to protect the rights of all those who seek WHD’s assistance.  The Bureau of International

Labor Affairs (ILAB) works to improve worker rights and livelihoods for vulnerable populations of workers

internationally.  The Women’s Bureau (WB) is the only federal office that exclusively serves and promotes the interests

of women in the workforce by conducting research, projects, outreach, and evaluations on issues of importance to

working women.  The Office of Disability Employment Policy (ODEP) maintains the Department’s focus on the significant

barriers to employment faced by individuals with disabilities and provides national leadership by developing and

influencing disability employment‐related policies and practices to increase the employment of people with disabilities.

Results for key agency performance goals and measures that support Strategic Goal 1 are provided in tabular form (see

below).  Following each table is a brief narrative that explains significant successes, challenges, and trends.

 

3 Fissured industries are those that have redefined employment relationships through subcontracting; third‐party management;

franchising; independent contracting; and other contractual forms which make the worker‐employer relationship tenuous and less

transparent.
FY 2011 Summary of Performance and Financial Information     9

Performance Goal ETA 1.1 – Increase the average earnings of individuals served through the Workforce Investment Act (WIA),

Registered Apprenticeship, Community Service Employment for Older Americans (CSEOA), Job Corps, and Trade Adjustment

Assistance (TAA) Programs.

*Target reached (Y), improved (I), or not reached (N) FY/PY

2007

FY/PY

2008

FY/PY

2009

FY/PY

2010

FY/PY  

2011

Six Month Average Earnings (WIA‐Adult)

Target $12,045 $12,862 $13,741 $12,721 $12,865

Result $13,575 $14,649 $13,712 $13,801 —

* Y Y N Y —

Six Month Average Earnings (WIA‐Dislocated Worker)

Target $14,410 $14,888 $15,542 $15,238 $15,418

Result $15,188 $16,167 $16,804 $17,550 —

* Y Y Y Y —

Six Month Average Earnings (WIA‐Indian and Native American Program)

Target baseline $9,157 $9,174 $9,261 $9,363

Result $9,665 $9,780 $9,853 $10,175 —

* — Y Y Y —

Six Month Average Earnings (Apprenticeship)

Target — — baseline $19,324 $19,077

Result — — $20,566 $20,335 $22,210

* — — — Y Y

Average wage of placed graduates (Job Corps)

Target — — $9.02 $9.10 $9.25

Result — — $9.22 $9.40 —

* — — Y Y —

Six Month Average Earnings (TAA)

Target baseline $14,050 $13,386 $13,314 $13,074

Result $13,914 $14,281 $15,087 $14,214 $18,184

* — Y Y Y Y

ETA reached six of the six indicators for which it had targets.  Among the three employment measures utilized by ETA,

the performance under six‐months average earnings has been the least impacted by the economic downturn.   

The workforce system continues to face significant challenges in helping workers get good jobs, earn good wages, and

retain their jobs in this environment.  As the economy recovers and job growth returns, the reintegration of millions of

unemployed and underemployed workers into jobs that pay family‐sustaining wages is essential for spreading the

benefits of the recovery more broadly.  ETA programs support training in emerging industry sectors (including green

jobs) to help workers become more competitive and equip them with the credentials and skills needed to compete in

the global labor market.  In FY 2011, ETA provided technical assistance to the workforce system to improve credential

attainment for its customers.  In FY 2012, ETA will continue to emphasize credential attainment to increase individual

earning potential.  

At the beginning of FY 2011, the TAA Program operated under the requirements of the Trade Act of 1974 (the Trade

Act), as amended by the Trade and Globalization Adjustment Assistance Act of 2009 (TGAAA) (2009 Program).  The

TGAAA provided that its amendments to the TAA Program would expire on December 31, 2010, and the program would

revert to its more restrictive level of benefits, services, and eligibility authorized by the Trade Act as amended by the

TAA Reform Act of 2002 (2002 Program).  However, on December 29, 2010, the Omnibus Trade Act of 2010 extended

the expiration date of the 2009 Program to February 12, 2011.  After February 12, the states continued to provide

benefits and services to workers covered under the 2009 Program, and following guidance issued by the Department,

began to operate the 2002 Program for workers covered under certifications issued after the expiration of the 2009

Program.  During FY 2011, the Office of Trade Adjustment Assistance focused on providing guidance and technical

assistance to the states to ensure that trade‐affected workers had access to the benefits and services available to them

under the various TAA Programs. 
10     U.S. Department of Labor

Performance Goal ETA 1.2 – Increasing skill attainment, certification and work preparedness of individuals served through a range

of programs to prepare them to compete in a knowledge‐based economy featuring emerging industries such as green jobs.

*Target reached (Y), improved (I), or not reached (N) FY/PY

2007

FY/PY

2008

FY/PY

2009

FY/PY

2010

FY/PY

2011

Percent of participants entering employment or enrolling in post‐

secondary education, the military or advanced training/ occupational

skills training in the first quarter after exit (WIA‐Youth)

Target 61% 59.4% 58.0% 53.1% 53.3%

Result 62% 60.6% 53.7% 59% —

* Y Y N Y —

Percent of participants who earn a diploma, GED, or certificate by the

end of the third quarter after exit (WIA‐Youth)

Target 45% 50.9% 47.9% 55.4% 54.7%

Result 57% 53.9% 52.9% 59.5% —

* Y Y Y Y —

Percent of Job Corps participants entering employment or enrolling in

post‐secondary education and/or advanced training/ occupational

skills training in the first quarter after exit (Job Corps)

Target 82% 74% 75.0% 65.3% 66.3%

Result 73% 66% 65.8% 73.4% —

* N N N Y

Percent of participants who earn a diploma, GED, or certificate by the

end of the third quarter after exit (Job Corps)

Target 64% 54% 55.0% 56% 57%

Result 53% 55% 60.6% 64.4% —

* N Y Y Y —

Percent of participants who earn a diploma, GED, or certificate by the

end of the third quarter after exit (YouthBuild)

Target — — baseline 60.7% 60%

Result — 41% 58% 62.16% —

* — — — Y —

Through investments in youth education and training programs under the WIA Youth formula program, Job Corps, and

YouthBuild grants, the Department worked to ensure that workers get the skills and knowledge needed to prepare them

to succeed in a knowledge‐based economy, including in high‐growth and emerging industry sectors like “green” jobs.  

The Job Corps, WIA Youth, and YouthBuild programs exceeded their degree or certificate attainment targets.  The Job

Corps and WIA Youth programs also exceeded their targets for placement in employment, education, or training.  The

unprecedented high unemployment rates and low employment rates for youth likely contributed to DOL’s lower results

on the placement measure.  The placement result mirrors both trends in the national economy.  The FY 2010‐2012

targets are based on a methodology developed by DOL for setting national performance targets using regression

analysis.  This econometric model uses program results from the prior year, current labor market conditions and

individual characteristics to correct for the effects of the business cycle and labor market conditions on the outcomes of

employment and training programs, producing targets that objectively reflect the impact of the economic environment

on program performance.  

The first full cycle of the 2007 YouthBuild grantees was completed in PY 2009 and the YouthBuild program was able to

achieve its goal of establishing a baseline for the degree or certificate measure.  To continue the upward trend for this

measure, the Department provided a “coach” (a youth development content expert) to each of over 200 YouthBuild

grantees to provide grantees with phone and on‐site coaching services and other targeted technical assistance.  This

intensive TA approach assisted the grantees to exceed the PY 2010 target for degree/certificate attainment by 1.5

percentage points.  It is expected that the ongoing use of these TA coaches will continue to result in the meeting and

exceeding of performance targets.

Job Corps achieved each of its three performance targets for PY 2010.
FY 2011 Summary of Performance and Financial Information     11

    

Performance Goal VETS 1.3 – Improve veterans’ access to training and employment opportunities.

*Target reached (Y), improved (I), or not reached (N) FY/PY  

2007

FY/PY  

2008

FY/PY  

2009

FY/PY

2010

FY/PY

2011

Percent of disabled veteran participants employed in the first

quarter after exit

Target 56.0% 58.5% 51.4% 41.7% 44.2%

Result 58.4% 55.8% 43.9% 43.1% —

* Y N N Y —

Percent of disabled veteran participants employed in the first

quarter after exit still employed in the second and third quarters

after exit

Target 79.0% 81.0% 76.9% 70.8% 78.3%

Result 81.1% 79.7% 75.8% 77.2% —

* Y N N Y —

Average earnings of disabled veteran participants in the second and

third quarters after exit

Target — $15,500 $14,743 $16,969 $17,096

Result — $16,873 $16,449 $17,357 —

* — Y Y Y —

Under the Department’s Performance Goal 1.3, VETS assesses the employment outcomes for disabled veterans, who are

served by the One‐Stop Career Center staff.  Those outcomes are the entered employment rate, the employment

retention rate and the average earnings.  For PY 2010, the entered employment rate for disabled veterans slightly

declined from the prior year by less than 1.9 percent, but exceeded its annual target by over 3.3 percent.  Both

employment retention rate and the average earnings for disabled veterans not only performed better than the prior

years and exceeded the annual targets by 9.0 percent and 2.2 percent respectively.  

In order to provide better employment services to disabled veterans and to improve a quality of service delivery, VETS

has encouraged front‐line service delivery staff to respond in two principal ways to assist disabled veterans.  First, VETS

refocused the responsibilities of Disabled Veterans Outreach Program (DVOP) specialists and Local Veterans

Employment Representative (LVER) staff who serve disabled veterans.  This included a greater emphasis on the delivery

of intensive services, including counseling and career planning, comprehensive assessments, and development of

individual employment plans.  This is intended to help disabled veteran jobseekers to be better prepared to compete for

the scarce job openings in the current labor market.  Secondly, DVOP specialists coordinate closely with their

counterparts from the Department of Veterans Affairs (VA) who refer participants from VA’s Vocational Rehabilitation

and Employment (VR&E) Program to DVOP Specialists.  LVER staff members are encouraged to place greater emphasis

on employer outreach, which is intended to expand the number of job openings available with employers who are

favorably inclined toward veterans and disabled veterans.

Performance Goal ETA 1.4 – Ensure that those workers adversely affected by foreign and domestic economic conditions can

remain in the middle class.

*Target reached (Y), improved (I), or not reached (N) FY/PY

2007

FY/PY

2008

FY/PY

2009

FY/PY

2010

FY/PY

2011

Percent of participants employed in the first quarter after exit still

employed in the second and third quarters after exit (WIA‐Dislocated

Worker)

Target 89% 84.7% 84.0% 78.0% 78%

Result 87% 86.0% 79.7% 81.9% —

* N Y N Y —

Percent of participants employed in the first quarter after exit still

employed in the second and third quarters after exit (National

Emergency Grants)

Target — — baseline 76.8% 77.1%

Result — — 78.5% 85.5% —

* — — — Y —

Percent of participants employed in the first quarter after exit still

employed in the second and third quarters after exit (TAA)

Target 85% 91% 87.5% 83.3% 82.9%

Result 88% 90% 88.0% 86.2% 89.9%

* Y I Y Y Y

It is the Department’s goal to help keep middle‐class families in the middle‐class.  Over 80 percent of participants exiting

the workforce system were still employed nine months after completing program services and gaining employment
12     U.S. Department of Labor

through the WIA Dislocated Worker program, the National Emergency Grant Program (NEG), and TAA.  All three of the

aforementioned programs attained their respective targets in PY 2010.   

In FY 2011, during the past year, the Department developed and disseminated career and workforce information to the

workforce development system, partner agencies and the public through national electronic tools.  ETA believes that

improved workforce information and job assessment tools are critical in creating a match between jobseekers and those

employers willing to hire.  ETA developed and disseminated O*NET occupational competency profiles, coordinated

workforce information grants to states, and provided technical assistance on the analysis and strategic use of labor

market information.  To improve the Department’s ability to provide information to the public, ETA launched the

Veterans ReEmployment, the My Next Move and My Next Move for Veterans portals.

The Veterans ReEmployment portal is designed to assist veterans with employment, training, career planning, financial

and emotional help after military service.  The site links veterans to local resources and provides a military‐to‐civilian job

search based on military job title or occupation code.

My Next Move gives individuals three main ways to explore careers, including an online O*NET interest assessment, and

provides an easy‐to‐read, one‐page profile of each occupation highlighting important knowledge; skills and abilities;

technologies used; simplified salary and outlook information; and links to find specific training and employment

opportunities.

My Next Move for Veterans is designed for U.S. veterans who are current job seekers and includes online profiles for

over 900 different careers.  Veterans can find careers through keyword search; by browsing industries that employ

different types of workers; or by discovering civilian careers that are similar to their job in the military.  

As referenced during Performance Goal 1.1, during FY 2011, ETA’s Office of Trade Adjustment Assistance focused on

implementing the changes to the Trade Act, providing guidance and technical assistance to the states to ensure that

trade‐affected workers had access to the benefits and services available to them under the various TAA Programs, and

maintaining progress in petition processing despite legislative changes, which required investigations under different

laws and eligibility criteria.
FY 2011 Summary of Performance and Financial Information     13

Strategic Goal 2: Ensure workplaces are safe and healthy

One outcome goal supports Strategic Goal 2:   

Outcome Goal 2.1:  Secure safe and healthy workplaces, particularly in high‐risk industries.  

The DOL agencies working toward safe and healthy workplaces are MSHA, the OSHA, and WHD.  The workplace safety

and health missions of MSHA and OSHA fit well into this goal.  WHD’s role is to enforce key safety and health provisions

in certain statutes.  For example, the Fair Labor Standards Act ensures the safe employment of young workers,

encourages their educational endeavors, and provides a path to future employment.  The Migrant and Seasonal

Agricultural Worker Protection Act and the Immigration and Nationality Act’s (INA) H‐2A Programs, and the

Occupational Safety and Health (OSH) Act’s field sanitation provisions protect:  agricultural workers by providing

standards regulating the safe transportation of migrant and seasonal workers; farm workers by ensuring safe and

healthy housing; and field workers by establishing standards for drinking water, toilets, and hand‐washing.  Enforcement

of the worker protection provisions of the H‐2A program assures working conditions that protect the wages as well as

the safety and health of vulnerable workers, and ensure that the local labor force is not displaced by lower paid foreign

or migrant labor.

Results for key agency performance goals and measures that support Strategic Goal 2 are provided in tabular form (see

below).  Following each table is a brief narrative that explains significant successes, challenges, and trends.

Performance Goal OSHA 2.1 – Improve workplace safety and health through the enforcement of occupational safety and health

regulations and standards.

*Target reached (Y), improved (I), or not reached (N) FY 2007 FY 2008 FY 2009 FY 2010 FY 2011

Decrease the construction fatality rate, by focusing on the four

leading causes of fatalities (falls, struck‐by, caught in/between, and

electrocution)

Target — — — — 8.80

Result — — — 7.90 8.50

* — — — — Y

Decrease the general industry fatality rate, by focusing on the four

leading causes of fatalities (falls, struck‐by, caught in/between, and

electrocution)

Target — — — — 1.00

Result — — — 1.00 1.00

* — — — — Y

Federal Agency total case rate for injuries and illnesses

Target 3.70 3.66 3.49 3.10 3.09

Result 3.32 3.37 3.22 3.08 2.78

* Y Y Y Y Y

Federal Agency lost time case rate for injuries and illnesses

Target 1.71 1.66 1.61 1.42 1.42

Result 1.61 1.57 1.48 1.44 1.33

* Y Y Y I Y

In FY 2011, OSHA reached its targets for the four DOL Priority Goal measures listed above.  Reduced fatality rates are

attributed in part to enforcement programs such as the Site Specific Targeting (SST) and National and Local Emphasis

Programs (NEP/LEP), which targeted high hazard industries associated with fatalities.  Implementation of the President’s

POWER initiative (Protecting Our Workers and Ensuring Reemployment) with the Department’s Office of Workers’

Compensation Programs (OWCP) helped federal agencies lower employees’ injury and illness rates.  

In FY 2012, OSHA will continue to carry out actions to meet the agency’s priorities of reducing workplace injuries,

illnesses, and fatalities through enforcement, regulation, compliance assistance and outreach.  OSHA leverages its

resources by strategically targeting those employers and industries where workers are in the most danger of getting

hurt, sick or killed by occupational hazards.  OSHA will continue to implement inspection‐emphasis programs that

address the most significant injuries in the most high‐hazard workplaces.  For example, OSHA has implemented new
14     U.S. Department of Labor

construction‐related NEPs and LEPs that address hazards or industries posing a significant occupational safety or health

risk to workers in the construction industry.   

In addition, OSHA will target high‐hazard workplaces for unannounced inspections through its SST program; significant

hazards and violations are targeted through the Severe Violators Enforcement Program (SVEP).  Under this program,

OSHA is uncovering more systemic problems – sometimes in multiple worksites owned by the same employer, and

sometimes across entire industries.  Rooting out systemic problems can eventually make a difference in the lives of tens

of thousands of workers.

Performance Goal MSHA 2.1 – Prevent death, disease, and injury from mining and promote safe and healthy workplaces for the

Nation’s miners

*Target reached (Y), improved (I), or not reached (N) FY 2007 FY 2008 FY 2009 FY 2010 FY 2011

Five‐year rolling average of fatal injuries per 200,000 hours worked

Target — — baseline 0.0171 0.0178

Result — — 0.0180 0.0187 0.0164

* — — — N Y

Percent of Metal and Nonmetal mines conducting their own noise,

dust, gas, mist and flame surveys

Target — — — — 17%

Result — — — — 26%

* — — — — Y

In FY 2011, MSHA reached its target for the DOL Priority Goal to reduce mining fatalities, primarily by strategic

enforcement through impact inspections at mines with troubling compliance histories.  Other measures MSHA has

undertaken to prevent mining deaths include a more robust Pattern of Violations (POV) program; special initiatives such

as "Rules to Live By," which focuses attention on the most common causes of mining deaths; and outreach efforts such

as "Safety Pro in a Box," which provides guidance to the metal/nonmetal mining industry on best practices and

compliance responsibilities.  

In the year following the explosion at the Upper Big Branch Mine which took the lives of 29 miners in the worst coal

mine disaster in four decades, the mining community achieved a near record low number of mining deaths.  MSHA also

reached its FY 2011 target for Metal and Nonmetal (MNM) mine operators conducting their own surveys/samples for

airborne contaminants (focusing on silica dust) and noise.  Effective surveys and sampling focus on attention on the

need to reduce exposures to noise and dust, as well as other air contaminants.  Continued emphasis on MSHA’s

expectations and requirements with respect to health surveys is aimed at steady progress toward a five‐year goal of 85

percent of MNM mine operators conducting these surveys.   

In the years ahead, MSHA remains committed to preventing mine deaths by developing a health and safety culture

throughout the mining industry in which mine operators take ownership and responsibility for the health and safety of

miners.  MSHA’s education and technical assistance programs will assist operators to maintain effective safety and

health management programs that are constantly evaluated, implement find‐and‐fix programs to identify and eliminate

mine hazards, and provide training for all mining personnel.  
FY 2011 Summary of Performance and Financial Information     15

Strategic Goal 3:  Assure fair and high quality work‐life environments

Three outcome goals support Strategic Goal 3:  

3.1 Break down barriers to fair and diverse workplaces so that every worker’s contribution is respected;  

3.2 Provide workplace flexibility for family and personal care‐giving; and  

3.3 Ensure worker voice in the workplace.  

Eight DOL agencies have programs, performance goals, and measures that contribute to achievement of this goal.  

Through the work of the OFCCP, DOL ensures that over 200,000 contractors and sub‐contractors working under

contracts with the federal government provide equal employment opportunities.  ODEP develops policy and policy

strategies to reduce barriers to employment for individuals with disabilities.  The Women’s Bureau (WB) formulates

standards and policies to promote the welfare of vulnerable, wage‐earning women and, with WHD, promotes workplace

flexibility for family and personal care‐giving.  The Office of Labor‐Management Standards (OLMS), ILAB, OSHA, MSHA,

and WHD conduct outreach so that workers are better informed of their rights, are better able to freely exercise those

rights without fear of adverse consequences, and are better positioned to meaningfully participate in workplace

decision‐making.  Through these activities, workers increase their voice in the workplace.

Results for a key agency performance goal and measures that support Strategic Goal 3 are provided in tabular form (see

below).  Following the table is a brief narrative that explains significant successes, challenges, and trends for this key

agency performance goal.

Performance Goal OLMS 3.3 – Ensure union financial integrity, democracy, and transparency.

*Target reached (Y), improved (I), or not reached (N) FY 2007 FY 2008 FY 2009 FY 2010 FY 2011

Percent of disclosure reports filed electronically

Target — — baseline 18.5% 24.5%

Result — — 17.4% 20.6% 21.4%

* — — — Y I

Average number of days to resolve union officer election

complaints

Target — baseline 88 84 80

Result — 92 70 81 79

* — — Y Y Y

Percent of targeted audits that result in a criminal case

Target — baseline 12.0% 12.5% 13%

Result — 11.5% 12.1% 14.6% 14.9%

* — — Y Y Y

In FY 2011, OLMS exceeded or improved performance for these performance goals.

OLMS has invested in the use of new technology to facilitate the electronic filing of union financial reports.  During FY

2010, OLMS implemented a new, web‐based system for the electronic filing of LM‐2 union annual reports, which

ameliorates barriers to electronic filing that were identified by OLMS stakeholders.  In FY 2011, OLMS implemented a

similar system for its LM‐3 and LM‐4 union filers.  However, delays in rolling out phase II of the project meant that many

unions could not take advantage of the new system, and as a result, OLMS did not meet its goal of 24.5 percent of forms

filed electronically.  However, 21.4 percent of forms were filed electronically – an improvement over FY 2010 when 20.6

percent of forms were electronic.   

OLMS established a goal in FY 2008 to decrease the number of elapsed days to resolve union officer election complaints.  

In passing the Labor‐Management Reporting and Disclosure Act in 1959, Congress established a 60‐day deadline for

court filing of an election complaint.  An analysis of data indicated that waivers of the 60‐day limit were increasing,

extending the average elapsed time to 92 days.  Waivers of the 60‐day filing deadline are sometimes necessary to

accommodate settlement discussions between OLMS and the union and for other valid reasons.  However, quick
16     U.S. Department of Labor

resolution of election complaints ensures quicker restoration of democratic voice and a democratically operated union.  

In fiscal years 2009, 2010 and 2011, OLMS exceeded its goals for this measure.  OLMS continues to examine new

methods for reducing its elapsed days further.  A new team‐based approach for handling election cases has proven

successful; and OLMS will continue to implement this approach in FY 2012.

The increased complexity of union financial transactions continues to be a major challenge.  By identifying anomalies in

union financial reports and using other targeting measures, OLMS strives to more effectively identify unions where

criminal activity may be present.  OLMS has exceeded its target for three years straight.  By effectively identifying audits

that lead to a criminal case, OLMS is able to use its resources more efficiently, thus freeing resources for other priority

tasks.
FY 2011 Summary of Performance and Financial Information     17

Strategic Goal 4:  Secure health benefits, and for those not working, provide income security

Three outcome goals support Strategic Goal 4:  

4.1 Facilitate return to work for workers experiencing workplace injuries or illnesses who are able to work;  

4.2 Ensure income support when work is impossible or unavailable; and  

4.3 Improve health benefits and retirement security for all workers.  

Seven DOL agencies, as well as a government corporation whose board is chaired by the Secretary of Labor, have

programs that contribute to Strategic Goal 4.  OWCP administers four compensation programs that provide a critically

important safety net for injured or ill workers.  Program benefits include monetary compensation for injury or illness,

wage replacement, medical treatment, and vocational rehabilitation and other reemployment services.  In support of

the OWCP program for federal workers, the OSHA plays an important role in promoting safe and healthy workplaces

through the Protecting Our Workers and Ensuring Reemployment (POWER) initiative.  ETA administers the

Unemployment Insurance (UI) Program which provides the unemployed with some income while they seek work, while

the Employee Benefits Security Administration (EBSA), through its enforcement of Title I of the Employee Retirement

Income Security Act of 1974 (ERISA), protects the security of retirement, health and other welfare plan benefits and

assets for all workers who have employer‐sponsored plans.  The Pension Benefit Guaranty Corporation (PBGC), the

aforementioned government corporation, was created to encourage the continuation and maintenance of private‐

sector defined‐benefit pension plans, provide timely and uninterrupted payment of pension benefits, and keep pension

insurance premiums at a minimum.

Results for key agency performance goals and measures that support Strategic Goal 4 are provided in tabular form (see

below).  Following each table is a brief narrative that explains significant successes, challenges, and trends.  

Performance Goal OWCP 4.1 – Assist in the recovery and re‐employment of injured workers.

*Target reached (Y), improved (I), or not reached (N) FY 2007 FY 2008 FY 2009 FY 2010 FY 2011

Government‐wide Lost Production Day rate in non‐Postal government agencies

Target 49.0 48.5 42.0 35.4 35.4

Result 46.3 41.3 35.8 34.6 33.8

* Y Y Y Y Y

Percent of injured Federal workers coming under Federal Employees’

Compensation Act (FECA) Disability Management that are reemployed by (non‐

Postal) Federal agencies

Target — — — 86.9% 86.7%

Result — — — 89.7% 91.6%

* — — — Y Y

Return to work is most successful through early identification of work injury or illness, prompt development of case

information, and efficient provision of assistance services that will support recovery and return to work.  Achievement of

this is measured by using two key indicators:  disability duration, measured as lost production days, and the percentage

of workers successfully returned to employment following injury or illness.  OWCP provides assistance to Federal

employing agencies to elevate their participation in reemploying workers; makes greater use of technology to improve

communications and data and information exchanges with employers and claimants; and, through regular monitoring of

longer‐term disability cases, identifies cases whose medical conditions improve and could benefit from vocational

rehabilitation and job placement services.   

Under POWER, individual Executive Branch agencies are directed to reduce Lost Production Day (LPD) rates (per 100

employees) by 1 percent per year through FY 2014.  The Government‐wide LPD rate has declined steadily over the past

five years.  Another POWER target is to increase the overall share of cases of the 14 largest Executive Branch agencies

that are returned to work to 92 percent within two years of their start in OWCP disability management.  In FY 2011, 91.6

percent of the injured workers had been returned to work within two years, an increase from the FY 2010 result of 89.7
18     U.S. Department of Labor

percent. Success is due to OWCP’s early intervention strategies in assisting injured workers to return to work, and

employing agencies’ continuing dedication to reemploying their workers.   

Performance Goal ETA 4.2 – Facilitate timely and accurate payments to unemployed workers.

*Target reached (Y), improved (I), or not reached (N) FY/PY

2007

FY/PY

2008

FY/PY

2009

FY/PY

2010

FY/PY

2011

Percent of all intrastate first payments made within 21 days

Target 90.0% 88.4% 85.7% 85.9% 84.0%

Result 88.2% 86.8% 82.9% 82.2% 84.6%

* N N N N Y

Percent of the amount of estimated overpayments that states detect  

established for recovery

Target 60.0% 56.0% 51.8% 52.8% 51.4%

Result 54.8% 56.2% 52.9% 49.8% 58.8%

* N Y Y N Y

Percent of determinations about UI tax liability of new employers made

within 90 days of the end of the first quarter they became liable

Target 82.8% 84.9% 88.7% 90.0% 86.4%

Result 85.6% 84.9% 84.1% 86.4% 87.3%

* Y Y N I Y

The FY 2011 performance goals were achieved.

Making timely payments to unemployed workers is critical to fulfilling the Unemployment Insurance (UI) system’s key

statutory objective of making full payment of unemployment compensation "when due."  Performance exceeded the FY

2011 target of 84 percent – 84.6 percent of first payments were made within statutory timeframe, an increase from the

FY 2010 level of 82.2 percent.  The improvement in first payment timeliness was led by double‐digit improvements in

California, Rhode Island, and Virginia.

Ensuring that benefits are paid only to those who meet eligibility requirements and that erroneous payments are

detected and recovered is critical to the integrity of any benefit payment program.  States detected and established for

recovery 58.8 percent of the estimated overpayments, which exceeded the FY 2011 target of 51.4 percent.  Further,

overpayments established were unchanged while estimated overpayments fell by 16%, the result of a 28% drop in UI

benefit payments.

The third performance goal states that 86.4 percent of the UI tax liability determinations for new employers will be

made within 90 days of the end of the quarter in which employers become liable.  Promptly enrolling new employers in

the UI program is key to fulfilling major program objectives of supporting the timely payment of taxes – which fund UI

benefits – and making timely and accurate eligibility determinations based on employer‐reported wages.  In FY 2011,

87.3 percent of new status determinations were made within the specified 90‐day period.  In 34 states, performance

improved and exceeded the 86.4 percent target.  This represents an increase of nearly one percentage point from the

year before.
FY 2011 Summary of Performance and Financial Information     19

Strategic Goal 5:  Produce timely and accurate data on the economic conditions of workers

and their families

One outcome goal supports Strategic Goal 5:

Outcome Goal 5.1:  Provide sound and impartial information on labor market activity, working conditions, and price

changes in the economy for decision making, including support for the formulation of economic and social policy

affecting virtually all Americans.

  

The Bureau of Labor Statistics (BLS) of the U.S. Department of Labor is the principal Federal agency responsible for

measuring labor market activity, working conditions, and price changes in the economy.  Its mission is to collect, analyze,

and disseminate essential economic information to support public and private decision‐making.  As an independent

statistical agency, BLS serves its diverse user communities by providing products and services that are objective, timely,

accurate, and relevant.  

Results for the agency performance goal and five of fourteen measures that support Strategic Goal 5 are provided in

tabular form (see below).  Following the table is a brief narrative that explains significant successes, challenges, and

trends.  

Performance Goal BLS 5.1 – Improve the timeliness, accuracy, and relevance of information on labor market activity, working

conditions, and price changes in the economy  

*Target reached (Y), improved (I), or not reached (N) FY 2007 FY 2008 FY 2009 FY 2010 FY 2011

Percent of timeliness targets achieved for the Labor Force

Statistics Principal Federal Economic Indicators (PFEIs).

Target — — — baseline 100%

Result — — — 100% 100%

* — — — — Y

Percent of accuracy targets achieved for Labor Force Statistics

Principal Federal Economic Indicators (PFEIs).

Target — — — baseline 100%

Result — — — 100% 100%

* — — — — Y

Percent of relevance targets achieved for Labor Force Statistics

Principal Federal Economic Indicators (PFEIs).

Target — — — baseline 100%

Result — — — 100% 100%

* — — — — Y

Average number of Internet site user sessions each month

(Dissemination).

Target 3,700,000 4,300,000 5,100,000 6,100,000 6,900,000

Result 4,223,523 5,032,111 6,090,587 6,972,577 7,213,823

* Y Y Y Y Y

Customer satisfaction with BLS products and services as measured

by the American Customer Satisfaction Index (Mission

Achievement).

Target — — — baseline 75

Result — — — 75 75

* — — — — Y

BLS revised its performance framework in 2010.  For most performance measures, 2010 is the baseline year.  In 2011,

BLS reached 100 percent of the underlying timeliness, accuracy and relevance targets for its Labor Force Statistics, Prices

and Living Conditions, Compensation and Working Conditions, and Productivity and Technology Principal Federal

Economic Indicators.   

In addition, BLS measured Dissemination through the Average number of Internet site user sessions each month, and

exceeded its target of 6.9 million in FY 2011 by reaching 7.2 million user sessions.  Finally, in FY 2011, BLS met its target

by achieving a score of 75 on the American Customer Satisfaction Index (ACSI) that measures customer satisfaction with

its full Web site.
20     U.S. Department of Labor

American Recovery and Reinvestment Act of 2009 (Recovery Act)

Since our nation’s greatest resource is its workers, the Recovery Act targeted investments to key areas that create and

preserve good jobs.  DOL has two key roles in this recovery effort: providing worker training for these jobs; and easing

the burden of the recession on workers and employers by providing extended and expanded unemployment benefits

and assisting and educating them regarding expanded access to continued health benefits.  Listed below are descriptions

of a few of the largest (by funding level) among DOL’s 24 Recovery Act programs.  More details are posted on the Web

at www.recovery.gov and www.dol.gov/recovery.

Unemployment Insurance (UI) – Extension of the Emergency Unemployment Compensation, 2008 (EUC08) Program.   

The Recovery Act extended the Emergency UI program, commonly known as EUC08, which provides weekly UI benefits

to individuals who have exhausted their regular State‐financed UI benefits, through December 31, 2009, with phase‐out

through May 31, 2010.  Subsequent legislation further extended these benefits to March 6, 2012, with phase‐out

through August 15, 2012.

Unemployment Insurance – Federal Additional Compensation (FAC) Program.   

The Recovery Act also created a new federally‐funded program, FAC, which temporarily increased UI benefits by $25 a

week through January 1, 2010, with phase‐out through June 30, 2010.  Subsequent legislation further extended this

program to June 2, 2010, with phase‐out through December 7, 2010.

Unemployment Insurance – Modernization ($7 Billion Incentive Fund).   

The Federal‐State UI Program provides unemployment benefits to eligible workers who are unemployed because of a

lack of suitable work, and meet other eligibility requirements.  States operate UI programs under their own laws, which

must conform to Federal law.  The Modernization Program helped States make UI more accessible to workers by

temporarily defraying the costs of certain eligibility liberalizations.  At the conclusion of the program on September 30,

2011, $4.4 billion of the $7.0 billion had been disbursed to 41 states, while $2.6 billion remained unclaimed, reverting to

the Federal Unemployment Account on October 1, 2011.

Workforce Investment Act (WIA) Dislocated Worker Program.   

Prior to passage of the Recovery Act, funding for the public workforce investment system had declined, while program

enrollments increased, placing strain on the system’s capacity to keep pace with recessionary impacts such as job loss

and worker dislocations.  The Recovery Act nearly doubled the annual funding to the WIA Dislocated Worker Program.  

As of September 30, 2011, all program funds were obligated by states.  States have used these Recovery Act dollars to

improve their reemployment efforts, increase training in new or emerging occupations, and design and create new

programs or program elements to respond to local needs.   

Workforce Investment Act (WIA) Youth.   

The Recovery Act made an additional $1.2 billion available for WIA Youth activities, using the same formula as the

regular appropriation and extended the youth eligibility age from 21 to 24.  Grantees focused on creating summer

employment opportunities for youth, including opportunities in the health care sector and in green jobs within the

construction, energy efficiency, renewable energy, and other related industries.  The Recovery Act WIA Youth activities

ended June 30, 2011.  A total of 426,206 youth were served which includes 368,068 youth who were placed in summer

employment.  As of September 30, 2011, approximately 99% of the Recovery Act WIA Youth Program funds were

obligated and expended.  
FY 2011 Summary of Performance and Financial Information     21

Financial Performance Overview

MESSAGE FROM THE CHIEF FINANCIAL OFFICER

Transparency and accountability provide the foundation for effective financial

management.  Because we finished our transition to a new core financial management

system, Department of Labor officials have taken a major step toward the administration’s

goal of providing clearer and more accessible information to stakeholders.  We have

modernized government through technology.

The FY 2011 financial statements are the first produced entirely from the new financial

system, and I am proud that the Department has obtained an unqualified audit opinion on

its financial statements for 14 consecutive fiscal years.  This clean audit opinion provides

independent confirmation that the Department’s financial statements are presented fairly

and in conformity with U.S. generally accepted accounting principles.  Accurate and timely

financial information improves DOL’s accountability to its stakeholders and the operational, budget, and policy decision‐

making processes that are the foundation for the services the Department delivers to the public.  

Following challenges in migrating to the new financial management system in FY 2010, we continued to work to resolve

outstanding material weaknesses and significant deficiencies identified during the FY 2010 audit process.  In addition,

we have significantly improved the ability of the financial system to process procurement documents, grants, and travel

payments in conjunction with the Department’s legacy systems.

I am extremely proud of the Department’s financial management personnel, who have worked tirelessly to achieve a

clean opinion for FY 2010 and, under a compressed schedule, attained that same result for FY 2011.  They exemplify the

high standards of professionalism demanded by the American people, and they enable the Department to be a leader in

sound financial management across government.  As DOL places additional emphasis on maximizing outcomes in its core

missions despite limited resources, it will be critical to focus on the sound financial management necessary to support

Secretary Solis’ vision of good jobs for everyone.

James L. Taylor

Chief Financial Officer

February 15, 2012
22     U.S. Department of Labor

FINANCIAL REPORTING ENTITY

DOL reports its financial activities annually in Financial Statements, prepared in accordance with U.S. generally accepted

accounting principles and the financial reporting requirements of the Office of Management and Budget (OMB).  For

fiscal years 2011 and 2010, five principal financial statements, the Consolidated Balance Sheet, Consolidated Statement

of Net Cost, Consolidated Statement of Changes in Net Position, Combined Statement of Budgetary Resources, and

Statement of Social Insurance, were presented with accompanying notes and other required information.  A sixth

financial statement, the Statement of Changes in Social Insurance Amounts, was also produced for the first time in FY

2011.  These Financial Statements were included in DOL’s FY 2011 Agency Financial Report, produced instead of the

Performance and Accountability Report issued in prior years.   

The DOL financial reporting entity is organized by major program agencies, which conduct operations in five major

program areas, through execution of DOL’s annual budget.  The Department’s FY 2011 net operating costs by major

program agency and by major program are shown in the table below:

NET COST OF OPERATIONS BY MAJOR PROGRAM AGENCY AND MAJOR PROGRAM

(1) The Pension Benefit Guaranty Corporation (PBGC), a Federal corporation under the chairmanship of the Secretary of Labor, is designated by OMB as a separate

reporting entity for financial statement purposes and is not included in this financial overview.

(2) At the beginning of FY 2010, DOL dissolved the Employment Standards Administration (ESA) and established its four component offices/divisions as stand‐alone

agencies reporting directly to the Office of the Secretary.  This reorganization was reflected in DOL’s FY 2011 budget.  In FY 2011, all applicable appropriations

occurred under the previous ESA structure.  Consequently, references to ESA are retained throughout this financial overview.

DOL’S NET COST BY MAJOR PROGRAM AGENCY

MAJOR PROGRAM OPERATING

AGENCIES1 2011 Net Cost

(000s)

Employment and Training Administration

(ETA)

$125,691,396

Employment Standards Administration

(ESA)2

5,426,592

Office of Job Corps (OJC) 1,716,696

Veterans’ Employment and Training

Service (VETS)

227,716

Occupational Safety and Health

Administration (OSHA)

596,010

Mine Safety and Health Administration

(MSHA)

397,294

Employee Benefits Security

Administration (EBSA)

206,996

Bureau of Labor Statistics (BLS) 671,952

Departmental Management (DM) 136,506

TOTAL NET COST OF OPERATIONS $135,071,158

DOL’S NET COST BY MAJOR PROGRAM

MAJOR PROGRAMS Operating

Agencies

2011 Net Cost

(000s)

Income maintenance ETA, ESA,

OSHA, EBSA,

DM

$124,897,829

Employment and training ETA, ESA,

OJC, VETS,

DM

7,644,815

Labor, employment and

pension standards

ESA, EBSA,

VETS, DM

826,240

Worker safety and health OSHA,

MSHA, DM

992,334

Statistics BLS, DM 672,242

Cost not assigned to

programs

DM 37,698

TOTAL NET COST OF OPERATIONS $135,071,158
FY 2011 Summary of Performance and Financial Information     23

ASSETS AND LIABILITIES ‐ 2011

TOTAL ASSETS were $38.1 billion at the end

of FY 2011, a decrease of 11% from 2010.  

Funds with U.S. Treasury (28.8% of total

assets) represent balances available to DOL

($8.9 billion) as well as restricted balances

not available ($2.1 billion).

Investments in Treasury securities (42.6%)

consist of non‐marketable, special issue

Treasury securities held primarily in the

Unemployment Trust Fund (UTF).

Advances and receivables, net (25.5%)

consist primarily of amounts due from

other Federal agencies for benefits paid by

DOL ($5.9 billion) and from States for UI

taxes, advances and benefit overpayments

($2.2 billion).

Property, plant and equipment, net (3.2%)

primarily consists of depreciated PP&E held

by 125 Job Corps centers located in the

territorial U.S. (76%), improvements to GSA

leased facilities (13%) and internal use

software (11%).

TOTAL LIABILITIES were $70.8 billion at the

end of FY 2011, a $9.0 billion (14%) increase

over 2010.

Debt rose by $8.5 billion (21.1%), caused by

increases in UTF borrowings from Treasury

to meet unemployment benefit

requirements.

Workers’ benefits liabilities increased by

$0.7 billion (4%) due to a total decrease in

accrued UI benefits for the current period

and increase  in Federal employee, Black

Lung and Energy employee compensation

benefits for the current period and future

periods.

FINANCIAL POSITION

Highlights of DOL’s financial position for the fiscal years ended September 30, 2011 and 2010 follow:

SUMMARY OF CONSOLIDATED BALANCE SHEET

As of September 30, 2011 and 2010

(Dollars in Thousands)

ASSETS

2011 20101

Funds with U.S. Treasury $10,954,458 $12,618,146

Investments in Treasury securities 16,213,789 19,281,093

Advances and receivables, net 9,706,214 9,766,444

Property, plant and equipment, net 1,219,912 1,174,713

TOTAL ASSETS $38,094,373 $42,840,396

         

      

LIABILITIES AND NET POSITION

LIABILITIES 2011 20101

Accounts payable and other liabilities $1,688,035 $1,973,164

Debt 48,935,904 40,400,725

Workers' benefits, current period 3,320,444 5,284,543

Workers' benefits, future periods 16,877,801 14,190,027

     Total liabilities $70,822,184 $61,848,459

NET POSITION

Unexpended appropriations $9,210,647 $10,539,272

Cumulative results of operations (41,938,458) (29,547,335)

     Total net position ($32,727,811) ($19,008,063)

TOTAL LIABILITIES AND NET POSITION $38,094,373 $42,840,396

          

(1) FY 2010 numbers were revised in the Department’s reissued FY 2010 Agency Financial Report

published in May 2011.  As such, FY 2010 numbers may differ from those appearing in the FY 2010

Summary Report of Performance and Financial Information.

NET POSITION

Net Position represents the difference between DOL’s assets and liablities,

measured by its two components, Cumulative Results of Operations and Unexpended Appropriations.  

Cumulative Results of Operations accounts for DOL’s net results of operations since inception, plus any prior period

adjustments not affecting net results.  Net results of operations represents the difference between financing sources,

as reported on the Consolidated Statement of Changes in Net Position, and the net cost of operations, as reported on

the Consolidated Statement of Net Cost.

Unexpended Appropriations measures the cumulative difference between appropriations received by DOL from

Treasury and appropriations used, transferred or unavailable.  Appropriations are considered used by DOL when goods

and services have been received or benefits provided.
24     U.S. Department of Labor

Highlights of the changes in DOL’s net position for the fiscal years ended September 30, 2011 and 2010 follow:

SUMMARY OF CONSOLIDATED STATEMENT OF CHANGES IN NET POSITION1

For The Years Ending September 30, 2011 and 2010

(Dollars in Thousands)

CUMULATIVE RESULTS OF OPERATIONS 2011 20102

Beginning balance, as adjusted ($29,547,335) $3,703,340

Financing sources      

Appropriations used 63,729,728 99,719,400

Employer taxes   52,679,104 41,060,101

Interest, reimbursements and other 6,271,203 5,783,400

Total financing sources 122,680,035 146,562,901

Net cost of operations (135,071,158) (179,813,576)

Net change (12,391,123) (33,250,675)

Cumulative results of operations, ending ($41,938,458) ($29,547,335)

UNEXPENDED APPROPRIATIONS

Beginning balance, as adjusted $10,539,272 $10,825,237

Financing sources    

Appropriations received 67,405,860 101,266,852

Appropriations used (63,729,728) (99,719,400)

Appropriations transferred or unavailable (5,004,757) (1,833,417)

Total financing sources (1,328,625) (285,965)

Unexpended appropriations, ending $9,210,647 $10,539,272

NET POSITION ($32,727,811) ($19,008,063)

(1) The cumulative negative net position is primarily due to the operation of DOL's benefit programs, such as unemployment insurance, black lung disability

benefits and energy employees compensation benefits.  For unemployment insurance and black lung the negative position primarily results from benefit

payments exceeding the available resources from payroll taxes and excise taxes and are financed in the interim by loans from the Treasury to be repaid from

future tax collections.  In the case of the energy employees compensation benefits, the negative position primarily results from recorded liabilities for future

payments exceeding currently available resources.

(2) FY 2010 numbers were revised in the Department’s reissued FY 2010 Agency Financial Report published in May 2011.  As such, FY 2010 numbers may differ from

those appearing in the FY 2010 Summary Report of Performance and Financial Information.  

(3) The term "earmarked funds," which primarily consist of the UTF and the BLDTF, refer to those items that are financed by specifically identified revenues such as

payroll taxes and excise taxes, which can be supplemented by other financing sources, both of which remain available over time. These revenues and financing

sources are required by statute to be used for designated purposes and must be accounted for separately from the Government's general revenues.

NET COST OF OPERATIONS

DOL reports its net cost of operations by major program on the Consolidated Statement of Net Cost.  Net cost is

calculated by deducting the earned revenues attributable to a program from that program’s gross cost to arrive at its

net operating cost.  In FY 2011, DOL reported gross costs of $139.5 billion, earned revenues of $4.4 billion, and a net cost

of operations of $135.1 billion.

DOL’s net operating cost in FY 2011 decreased by $44.7 billion (25%) from the prior year.  This decrease was primarily

attributable to the $44 billion (26%) decrease in income maintenance program costs in FY 2011, caused by a 29%

decrease in unemployment benefits.  Income maintenance costs have ranged 92% to 94% of DOL’s total net operating

costs since FY 2009.

CHANGES IN NET POSITION – 2011

DOL’s Net Position decreased by $13.7

billion in 2011, a 72% decrease from 2010,

primarily caused by a $12.4 billion

decrease in Cumulative Results of

Operations, compounded by a $1.3 billion

decrease in Unexpended Appropriations.

Cumulative Results of Operations

accounts for the residual surplus or deficit

in DOL’s earmarked3 funds and all other

funds.  Earmarked funds are financed by

specific revenues used for specific

purposes.  The UTF and BLDTF are DOL’s

largest earmarked funds.  The decrease in

Cumulative Results of Operations was

caused by the excess of 2011 net operating

costs ($135.1 billion) over 2011 Financing

Sources ($122.7 billion).

Financing Sources in 2011 included

Employer taxes and reimbursements of

$52.7 billion to fund UI and Black Lung

disability benefits (43% of total financing

sources); Appropriations used of $63.7

billion (52%), authorized by DOL’s budget;

and Interest and assessments of $1.9

billion (1% of total financing sources),

earned on DOL’s trust fund investments

and fines levied by DOL's enforcement

agencies.
FY 2011 Summary of Performance and Financial Information     25

Income Maintenance

Unemployment Insurance (UI) managed by

ETA through the Federal / State UI system

provides grants to States, and regular and

emergency UI benefits to covered workers,

financed by employer taxes, Treasury

borrowings and appropriations.   Total UI

system costs were $120.0 billion in FY 2011,

a 26% decrease from FY 2010, caused by a

$42.6 billion (28%) decrease in net UI

benefits.  Workers’ Benefits programs

provide benefits to injured Federal

employees and their survivors for lost wages,

and benefits to eligible Energy workers, coal

miners and their survivors disabled by

occupational diseases.  The decrease in Net

Federal and Energy workers’ compensation

benefits results from the change in the

Energy Employees Occupational Illness

Compensation Benefits liability, which

increased less in FY 2011 than in FY 2010.  

Employment and Training

ETA, Job Corps and VETS provide

employment and training to job seekers,

workers and veterans, including

economically disadvantaged individuals

through adult, youth, dislocated worker and

older worker training programs using

Federal, State and local service providers,

and a network of contractors and grantees.

The net cost of these programs in FY 2011

was $7.6 billion, a 9% decrease from 2010.

Labor, Employment and Pension

Standards

ESA programs enforce compliance with

minimum wage, overtime, child labor, and

labor union standards. EBSA programs

protect private employee retirement, health,

and other benefit plans from abuse; and

VETS programs assist service members with

issues affecting civilian employment. The

total net cost of these programs in FY 2011

was $0.83 billion, up 7% over 2010.

Worker Safety and Health

OSHA and MSHA operate programs to

protect the safety and health of America’s

workforce through enforcement, workplace

inspection and compliance assistance.  The

net cost of these programs in FY 2011 was

$0.99 billion, down 2% from 2010.

Statistics

BLS programs disseminate timely, relevant

economic information to the public.  The net

cost of these programs in FY 2011 was $0.67

billion, down 1.3% from 2010.

Highlights of DOL’s net cost of operations for the fiscal years ended September 30, 2011 and 2010 follow:  

SUMMARY OF CONSOLIDATED STATEMENT OF NET COST BY MAJOR

PROGRAM COMPONENT

For The Years Ending September 30, 2011 and 2010   (Dollars in Thousands)

NET COST BY MAJOR PROGRAM COMPONENT   2011 20101

INCOME MAINTENANCE

Unemployment Insurance (ETA)

Unemployment benefits, net $111,261,567 $153,857,069

Grants to States to administer UI program 5,327,043 4,545,418

Other 3,383,984 3,010,594

Total unemployment insurance 119,972,594 161,413,081

Workers' Benefits  

Net Federal and Energy workers'

compensation benefits 3,989,554 6,527,083

Black Lung disability benefits 201,219 220,977

Interest on repayable advances, BLDTF   226,646 223,923

Other 476,087 425,679

Total workers’ benefits 4,893,506 7,397,662

Other Departmental programs   31,729 40,275

Total income maintenance $124,897,829 $168,851,018

EMPLOYMENT AND TRAINING

ETA employment and training programs 5,718,802 6,519,848

Job Corps employment and training program 1,716,696 1,662,617

Veterans employment and training programs 207,393 224,568

Other Departmental employment and training 1,924 1,878

Total employment and training $7,644,815 $8,408,911

LABOR EMPLOYMENT AND PENSION STANDARDS

Employment Standards Administration 531,735 475,375

Employee Benefits Security Administration 179,843 172,190

Veterans Employment and Training Service 20,323 31,629

Other Departmental programs 94,339 91,928

Total labor, employment and pension standards $826,240 $771,122

WORKER SAFETY AND HEALTH

Occupational Safety and Health Administration 594,924 611,682

Mine Safety and Health Administration 397,294 400,428

Other Departmental programs 116 2,004

Total worker safety and health $992,334 $1,014,114

STATISTICS

Bureau of Labor Statistics 671,952 676,275

Other Departmental programs 290 5,009

Total statistics $672,242 $681,284

Costs not assigned to programs 37,698 87,127

NET COSTS OF OPERATIONS $135,071,158 $179,813,576

(1) FY 2010 numbers were revised in the Department’s reissued FY 2010 Agency Financial Report published in

May 2011.  As such, FY 2010 numbers may differ from those appearing in the FY 2010 Summary Report of

Performance and Financial Information.
26     U.S. Department of Labor

Top Management Challenges

For 2011, the OIG considers the following as the most serious management and performance challenges facing the

Department:

 Protecting the Safety and Health of Workers

 Improving Performance Accountability of Workforce Investment Act Grants

 Ensuring the Effectiveness of the Job Corps Program

 Safeguarding Unemployment Insurance

 Improving the Management of Workers’ Compensation Programs

 Maintaining the Integrity of Foreign Labor Certification Programs

 Ensuring the Security of Employee Benefit Plan Assets

 Securing Information Technology Systems and Protecting Related Information Assets

 Ensuring the Successful Development and Implementation of Major Information Management Systems

 Ensuring the Effectiveness of Veterans’ Employment and Training Programs

 Improving Procurement Integrity

These top management challenges are intended to identify and help resolve serious weaknessesin areas that involve

substantial resources and provide critical services to the public.    The complete description of these challenges, the

Department’s progress, and what remainsto be done – as identified by the OIG – and Management’sresponse are

available at: http://www.dol.gov/_sec/media/reports/annual2011/2011annualreport.pdf  

The table below summarizes 11 challenges confronting Departmental management in 2011.

Top Management

Challenge Issue Departmental Progress What Remainsto be Done

Protecting the

Safety and Health

of Workers

OSHA

 Determining the

Effectiveness of Federally

and State Operated

Worker Safety and Health

Programs

 Evaluating the Impact of Penalty

Reductions on Workplace Safety

MSHA

 Completing Mandatory Regular

Mine Safety and Health

Inspections  

 Applying Available

Enforcement Authorities  

 Addressing Contested Citations

 Maintaining an experienced

and properly trained

enforcement staff

 Timely Setting and Updating of

Regulations and Standards

 Continued to enhance Severe

Violator

Enforcement Program

(SVEP)

 Revised OSHA’s penalty policy

 Introduced new approach to

measuring performance at

worker protection agencies

 MSHA designed and

implemented new criteria for

identifying mines with a

pattern of violations

 MSHA continues to

identify and hire mine

inspector candidates

within authorized

personnel levels  

 Monitor the SVEP to ensure

results are achieved

 Evaluate the impact of OSHA

penalty reductions on

workplace safety

 Evaluate whether OSHA

State Plan programs are as

effective as Federal OSHA

 Finalize proposed POV

regulations implementing

procedures to facilitate early

resolution of enforcement issues

 Collaborate with the FMSHRC to

reduce the time it takes to

resolve contested cases before

the FMSHRC

 Timely complete its rulemaking

agenda

 Encourage technological

advances
FY 2011 Summary of Performance and Financial Information     27

Top Management

Challenge Issue Departmental Progress What Remainsto be Done

Protecting the  

Safety and Health  

of Workers

 Fostering the Development and

Implementation of New

Technologies

 Worked to reduce

backlog of contested

cases

 MSHA has recently approved

the first wireless

communication system for

use in underground mines

Improving Performance

Accountability of

Workforce Investment

Act Grants

 Ensuring Grant Objectives Are

Accomplished

 Meeting Increased Demand

for Services

 Coordinating with Other

Service Providers

 ETA executed a contract for

the services of 14 staff for 12

months to assist with grant

management activities for

Recovery Act grants

 Begun involving outside

experts in developing its

research plan and it has

made improvements to its

Web‐based database for

disseminating research and

evaluation findings

 Closely monitor its WIA grants

and address any disconnects

between the training being

provided and employment

demands

 Continue efforts to identify and

prioritize workloads and funding

levels to ensure Recovery Act

funded green jobs grants are

adequately monitored, grant

funds are spent properly, and

grants achieve their intended

purpose

 Work with HHS to develop a joint

strategy for addressing client

needs in the One‐Stop center

setting

Ensuring the

Effectiveness of the Job

Corps Program

 Ensuring Eligibility

 Ensuring Health and Safety

 Improving Performance

Accountability

 Improving the Integrity of

Reported Performance Data

 Ensuring Financial

Accountability

 Provided up‐to‐date guidance

on admissions procedures

 Instituted requirement for all

potential students to provide

income documentation  

 Stated it has published:

several Information Notices

and Program Instructions on

safety issues

 Instituted a data integrity

assessment system

 Needs to provide proactive,

consistent, and rigorous

oversight of contractors at all

centers

 Improve the transparency and

reliability of its performance

metrics, especially the job

training match

 Take actions to ensure centers

provide a safe and conducive

learning environment while

supporting student success and

program retention

Safeguarding

Unemployment

Insurance

 Reducing UI improper payments

estimated at $17.5 billion for

the current year due to large

increases in claims

 Implemented State

Information Data Exchange

System (SIDES) in five states

 Facilitated states’

implementation of the

Treasury Offset Program  

 Mandated that all states use

National Directory of New

Hires (NDNH)

 Fully implement SIDES

 Ensure that CA adopts NDNH

 Promote use of  databases to

detect improper payments
28     U.S. Department of Labor

Top Management

Challenge Issue Departmental Progress What Remainsto be Done

Improving the

Management of

Workers’ Compensation

Programs

Preventing FECA Fraud and

Improper Payments

Timeliness of Energy

Workers’ Compensation

claims decisions

 Run the death match with

the Social Security

Administration weekly and

will improve procedures to

ensure timely termination of

benefits upon the death of a

claimant  

 Reduced the time to process

initial claims filed by Energy

Workers

 Obtain access to Social Security

wage records, enhance

incentives for recovered

employees to return to work,

and address retirement equity

issues

 Continue to work with other

Federal agencies to reduce

overall Energy case processing

time

Maintaining the

Integrity of Foreign

Labor Certification

Programs

Fraudulent FLC applications

Improving the H‐1B and  H‐2B

FLC application processes

Uncertainty regarding the

debarment process

 Office of Foreign Labor

Certification (OFLC) continues

to work closely with the OIG

to reduce fraud in the FLC

application process

 For H‐1B challenges, entered

into a contract with a third‐

party vendor for employer

verification Services

 Proposed new rules governing

H‐2B process

 Evaluate the results of

certification processes and make

adjustments to enhance integrity

of H‐1B & H‐2B application

processing system

 Ensure that suspensions and

debarments are considered and

decisions documented for

anyone convicted of FLC

violations  

 FLC debarments are reported to

appropriate DOL personnel for

inclusion in the government‐

wide exclusion system

Ensuring the Security of

Employee Benefit Plan

Assets

 Implementing the Patient

Protection and Affordable

Care Act (PPACA)

 Uncertainty about the impact

of EBSA enforcement

programs

 Limited authority to oversee

employee benefit plan audits

 Issued PPACA regulations

and sub‐regulatory guidance

 Began development of

baseline ERISA compliance

measure

 Issue additional PPACA

regulations

 Establish timetables to respond

to public comments

 Proceed with rulemaking for

Section 6604 of PPACA

 Provide HHS with the results of

survey of benefits typically

covered by employers

 Determine what additional

changes are needed to improve

program effectiveness

 Seek legislative change to

address deficient plan audits

Securing Information

Technology Systems

and Protecting Related

Information Assets

 Control deficiencies over

access to key IT systems  

 Oversight of third‐party

(contractor) systems

 Ineffective accounting for

sensitive IT assets

 Protecting sensitive

information that can be

accessed remotely

 Developed an improved

identity verification system

implemented in Oct. 2011

 Instituted Enterprise

Implementation Committees

(EIC) and IT Acquisition

Review Boards (ARB) to

improve IT operations

 Implementing a Trusted

Internet Connection

program

 Establish a Chief Information

Officer to provide exclusive

oversight over all IT issues

 Improving security controls

testing and evaluation process

 Ensure the Department has a

consolidated, viable inventory

system

 Implement additional security

controls to protect remotely

accessed data
FY 2011 Summary of Performance and Financial Information     29

Top Management

Challenge Issue Departmental Progress What Remainsto be Done

Ensuring the Successful

Development and

Implementation of

Major Information

Management Systems

 Executives and managers are

expected to face issues in

fostering major, complicated,

multi‐year IT projects within

budget and on‐time

 Assessing lessons learned

from completed

implementation of New

Core Initiative  

 EIC and ARB provide greater

executive expertise and

procurement oversight to all

IT projects

 Direct executive involvement

and highly trained of project

managers recommended

 Continued analysis of setbacks

and failures in order to achieve

anticipated success

 Establish an independent Chief

Information Officer whose

primary duty is to provide

oversight of DOL IT operations

Ensuring the

Effectiveness of

Veterans’ Employment

and Training Programs

Providing meaningful

employment and training

services to military members

transitioning to civilian

employment

Reducing homelessness

among veterans  

 VETS is redesigning its

Transition Assistance

Program to be customized to

individual veteran needs.  

 2009 & 2010 HVRP grantees

are to meet higher standards

or lose funding  

 Coordinated with the

National Veterans Training

Institute to improve services

provided to Disabled

Veterans outreach specialists

 Standard forms and policy are

needed to monitor TAP

workshops, establish outcome

goals, develop new MOU with

partner agencies, and ensure

compliance with new

management controls for

contract administration

 Ensure HVRP grantees are

meeting reported

accomplishments and take

corrective action when required

 Rigorous oversight of

management systems,

outcomes, for all programs

Improving Procurement

Integrity

In FY 2010 DOL awarded

3,804 contracts. Audits and

investigations reveal need for

effective controls to be put in

place, including the proper

separation of procurement

and programmatic

responsibilities, to reduce risk

of improper procurement

activities.

 161 certifications have been

awarded to DOL contracting

employees for completing

Federal acquisition training  

 Increased internal controls

on procurement and is

updating policy related to

Procurement Review Board

 Previous improper

procurement issues have

been assessed‐ integrity and

ethics training are being

implemented

 Standard and consistent internal

controls and compliance

frameworks for procuring

agencies need to be

implemented

 Creation of a Chief Acquisition

Officer whose primary duty is

acquisition management

 
30     U.S. Department of Labor

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