FY 2010 Agency Financial Report 1 

 

 

 

 

 

 

 

 

 

 

 

 

U.S. Department of Labor 

FY 2009 Performance and Accountability Report

U.S. Department of Labor 

Fiscal Year

2010

Agency Financial Report

 May 2011

Good jobs for everyone 

FY 2010 Agency Financial Report 3 

FY 2010 Agency Financial Report

FY 2010 Agency Financial Report 3 

Table of Contents 

Message from the Secretary of Labor ....................................................................................................... 5

Management’s Discussion and Analysis ................................................................................................... 9

Program Performance Overview ............................................................................................................................ 12 

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

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

Management Assurances ....................................................................................................................................... 25 

Financial Section .................................................................................................................................... 27

Message from the Chief Financial Officer .............................................................................................................. 29 

Independent Auditors’ Report ................................................................................................................................ 30 

Annual Financial Statements .................................................................................................................................. 61 

Principal Financial Statements and Notes ........................................................................................................ 63 

Required Supplementary Stewardship Information ...................................................................................... 123 

Required Supplementary Information ........................................................................................................... 129 

Other Accompanying Information ........................................................................................................ 155

Top Management Challenges ............................................................................................................................... 157 

Management’s Response to the 2010 Top Management Challenges .................................................................. 171 

Summary of Financial Statement Audit and Management Assurances ............................................................... 172 

Improper Payments Information Act Reporting Details ....................................................................................... 173 

Acronyms .............................................................................................................................................................. 183 

This report can be found on the Internet at http://www.dol.gov/dol/aboutdol/.

If you have questions or comments regarding this report, contact: 

Office of the Chief Financial Officer 

U.S. Department of Labor 

200 Constitution Avenue, NW, Room S-4030 

Washington, DC 20210 

202-693-6800 

The photographs in this publication were furnished by numerous individuals. All photographs are proprietary and 

prior permission from the photographer is required for any use or reproduction of the photographs. All references 

to non-governmental companies or organizations, their services, products or resources in this report are offered for 

informational purposes and should not be construed as an endorsement by the Department of Labor of any of the 

companies or organizations, or their services, products or resources. The Department of Labor does not endorse, 

takes no responsibility for, and exercises no control over non-governmental organizations’ Web sites mentioned in 

this report, or their views or contents; nor does it vouch for the accuracy of the information contained on other 

organizations’ Web sites. 

FY 2010 Agency Financial Report 5 

Message from the Secretary of Labor 

May 20, 2011 

 I am pleased to submit the Department of Labor’s (Department or DOL) revised 

Agency Financial Report for Fiscal Year 2010. The report is one of three integrated 

reports the Department produces in place of the consolidated annual Performance and 

Accountability Report issued in prior years. The other two reports, the Annual 

Performance Report for Fiscal Year 2010, which was included in the Department’s 

Congressional Budget Justification, and the Summary of Performance and Financial 

Information for Fiscal Year 2010, are available on the Department’s website. 

This Agency Financial Report presents a detailed assessment of the Department’s 

financial results and stewardship over taxpayer resources, in support of DOL’s mission 

to promote the welfare of job seekers, wage earners, and retirees of the United States, 

and my vision of good jobs for everyone. 

Here are some of the important factors I believe are inherent in a good job: 

• a good job increases workers’ incomes, narrows wage and income inequality, and provides workplace 

flexibility; 

• a good job ensures workplaces are safe and healthy; assures workers a voice in the workplace and fosters 

fair working conditions in the global marketplace; 

• a good job is sustainable and innovative, for example a green job; 

• a good job helps rebuild a strong middle class; 

• a good job provides health benefits, retirement security and income security when work is impossible or 

unavailable. 

What We Have Done 

We have accomplished a great deal since my arrival at the Department of Labor, and we could not have done so 

much, so quickly, without the continued professionalism and dedication of the DOL workforce. Since my Senate 

confirmation in February 2009, we have initiated an aggressive agenda to transform the Department’s programs, 

through reforms that deploy research, evaluation and data to enhance effectiveness, streamline organizational 

structures and introduce 21st century technology and transparency to the Department’s day to day operations. 

We have also made possible the kind of training opportunities that will ensure our nation’s workers can better 

meet the challenges of the 21st century workplace. We have restored the focus of the Department to protecting 

workers; and we have helped ease the burden of the recession on working families. 

•Provision of Training Opportunities to Meet New Workplace Challenges 

Through the American Recovery and Reinvestment Act of 2009 and the Workforce Investment Act, the 

Department has created Green Job and Health Care training initiatives to provide workers with the skills 

they need for good jobs in these sectors. DOL’s competitive grant programs are providing workers with job 

training and certification in green industry sectors, while grants jointly administered by DOL and its Federal 

partners are preparing low income adults and dislocated workers for careers in the health care sector. 

•Strengthening of Worker Protections 

The Department continues to focus resources on its critical worker protection programs, and the agencies 

charged with enforcing workplace safety and health laws and minimum standards for fair compensation 

and working conditions in the United States. DOL’s Wage and Hour Division has expanded public 
Message from the Secretary of Labor 

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6 United States Department of Labor 

awareness and outreach to workers through the We Can Help campaign, which I was proud to announce 

in Chicago in 2010. The campaign helps connect America’s most vulnerable workers with the array of 

services offered by the Department. To support this and other worker protection initiatives, the 

Department has implemented a comprehensive hiring plan for its worker protection agencies. 

•Easing of Recessionary Burden on Working Families 

Through existing state programs, the Recovery Act and subsequent enabling legislation, the Department 

has moved aggressively to provide and maintain critical income support to unemployed workers through 

DOL’s unemployment insurance programs. More than $158 billion was made available to the states in FY 

2010 to provide regular, extended and emergency benefits to workers who had lost their jobs during the 

recession. 

Where We Are Going 

We know that the Department will continue to face challenges as we work to serve and protect America’s 

workers. We have tasked DOL’s agencies to undertake strategies focused on innovation, evaluation, and improved 

implementation in an effort to reform how they operate. And we have developed a strategic plan to guide our 

future success. 

•DOL Strategic Plan for FY 2011 – 2016 

The Department published in September 2010 the first DOL strategic plan under this administration. The 

plan is organized around five strategic goals and fourteen outcome goals. Together they provide the 

foundation for our work going forward, and the necessary components to support good jobs for everyone. 

Strategic Goals for FY 2011 ‐2016 

1. Prepare workers for good jobs and ensure fair compensation; 

2. Ensure workplaces are safe and healthy; 

3. Assure fair and high quality work‐life environments; 

4. Secure health benefits and, for those not working, provide income security; 

5. Provide timely and accurate data on the economic conditions of workers and their families. 

Management Assurances 

In January 2010, the Department retired a 25 year old legacy accounting system, and in its place deployed the New 

Core Financial Management System (NCFMS), a commercially available, state of the art, shared service provider 

system bringing necessary modernization to DOL’s financial management process. The new system positively 

impacts over 15,000 people across the Department of Labor, enhancing transparency and accountability, while 

providing financial managers with timely, relevant information to enable more innovative decision making. DOL 

agencies are using NCFMS to provide high quality service, control or reduce costs, and improve efficiency and 

effectiveness by reducing duplicative processes and system response time. 

An independent public accounting firm under contract with the Department’s Office of Inspector General was 

engaged to audit the Department’s FY 2010 financial statements, which originally were published on November 

15, 2010. Difficulties with the implementation of NCFMS, including data migration from the legacy system, 

produced significant challenges during implementation which delayed financial reporting capabilities and audit 

readiness, and created certain material weaknesses in internal control over financial reporting. 
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FY 2010 Agency Financial Report 7

We continued our efforts to resolve the outstanding issues, and are pleased to be able to reissue the FY 2010 

financial statements at this time. The auditors have evaluated these revised FY 2010 statements and we are 

extremely proud to report that DOL received an unqualifed (clean) opinion on them on May 20, 2011. 

The Department is committed to the timely resolution of all material weaknesses in internal controls over financial 

reporting. This ongoing process, as well as the results of management’s assessment of internal controls pursuant to 

the Federal Managers' Financial Integrity Act (FMFIA) and compliance of financial management systems with the 

Federal Financial Management Improvement Act of 1996 (FFMIA) are discussed in the Management's Discussion 

and Analysis section of this report. 

Conclusion 

We must continue to strive for the type of transparency that is at the heart of what the President and I call Open 

Government. DOL’s revised Agency Financial Report for Fiscal Year 2010 exemplifies this transparency and 

openness, and I am pleased to submit it to Congress and the American people, with the assurance that the 

reporting difficulties encountered in FY 2010 were temporary and are being quickly corrected. 

Hilda L. Solis 

Secretary of Labor 

FY 2010 Agency Financial Report 9

Management’s Discussion and Analysis

FY 2010 Agency Financial Report 11

Agency Financial Report

The Department of Labor (DOL or Department) has chosen to produce this Agency Financial Report (AFR) as an 

alternative to the Performance and Accountability Report (PAR) produced in prior years. Information on program 

performance will be now included in the Department’s Annual Performance Report (APR), submitted as part of 

DOL’s Congressional Budget Justification. The APR was posted on DOL’s web site at http://www.dol.gov/ 

sec/media/reports/. 

 

Mission Statement and Organizational Structure1

DOL’s mission remains as relevant today as at the Department’s founding in 1913: to foster, promote and develop 

the welfare of the job seekers, wage earners and retirees of the United States; improve working conditions, advance 

opportunities for profitable employment; and assure work related benefits and rights.

To accomplish this mission, DOL is organized into the program agencies and offices depicted in the chart below, 

which administer the various statutes and programs for which the Department is responsible. The major program 

agencies, each headed by an Assistant Secretary, Commissioner, or Director, are the Employment and Training 

Administration (ETA), Office of Job Corps (OJC) 2, Employment Standards Administration (ESA)3

, Occupational Safety 

and Health Administration (OSHA), Mine Safety and Health Administration (MSHA), Veterans’ Employment and 

Training Service (VETS), Employee Benefits Security Administration (EBSA) and Bureau of Labor Statistics (BLS). 

Bureau of International 

Labor Affairs Office of Public Affairs

Office of Job Corps Bureau of Labor 

Statistics

Employee Benefits 

Security Administration

Benefits Review Board

Administrative Review 

Board

Center for Faith Based and 

Neighborhood Partnerships

Employees' Compensation 

Appeals Board

Executive Secretariat

Office of the Chief 

Financial Officer

Occupational Safety and 

Health Administration

Office of the Assistant 

Secretary for Policy

Mine Safety and 

Health Administration

Employment Standards 

Adminisration

Office of Disability 

Employment Policy

Veterans' Employment 

and Training Service

Office of the Assistant 

Secretary for 

Administration and 

Management

Office of Congressional and 

Intergovernmental Affairs 

Office of Inspector 

General Office of the Solicitor

Office of the Secretary of Labor

Chief of Staff

Women's Bureau Employment and 

Training Administration

Office of the Deputy 

Secretary of Labor

Office of Administrative 

Law Judges

 

1

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

the Office of Management and Budget (OMB) as a separate reporting entity for financial statement purposes, and is not included as part of 

the DOL reporting entity in this AFR. 

2

 The Consolidated Appropriations Act of 2010 transferred the Job Corps program and its administrative funding from the Office of the 

Secretary back to ETA, to better integrate the program with other employment and training programs overseen by ETA. 

3

 In FY 2010, DOL dissolved ESA and established its four component offices/divisions, the Office of Federal Contract Compliance Programs, the 

Office of Labor‐Management Standards, the Office of Workers’ Compensation Programs, and the Wage and Hour Division, as stand-alone 

agencies reporting directly to the Office of the Secretary. This reorganization was reflected in DOL’s FY 2011 budget, in which funding 

previously requested for ESA was requested separately for these four component agencies. In FY 2010, all applicable appropriations 

occurred under the previous ESA structure. Consequently, ESA’s four component agencies are referenced in the AFR’s Program 

Performance Overview, whereas references to ESA are retained in the financial section of this report. 
Management’s Discussion and Analysis 

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12 United States Department of Labor 

Program Performance Overview 

This is the Department’s first AFR. From 1999-2009, DOL published a consolidated annual PAR with a Performance 

Section that included measures used for reporting under the Government Performance and Results Act (GPRA) and 

a summary of those performance results in the Management’s Discussion and Analysis (MD&A) that was also 

referred to as the Program Performance Overview (PPO). This PPO is quite different from its predecessors because 

it is now part of the AFR and GPRA results are reported separately in the APR. The FY 2010 APR was published in 

February 2011 as part of the FY 2012 Congressional Budget Justification. A third report, the Summary of 

Performance and Financial Information for Fiscal Year 2010, was published on February 15, 2011. 

Reporting outcome data a couple of months later improves data quality; prior GPRA reports included estimates 

because data were not available in time. Moreover, publication with the budget facilitates presentation of results, 

targets, and strategies in the highly relevant context of funding levels. It will be much easier to demonstrate how 

DOL uses performance information to make adjustments. Finally, this section of the AFR offers an opportunity to 

present another aspect of DOL program performance – one more easily related to spending as reported in the 

Financial Section. All DOL agencies measure outputs for activities intended to positively impact outcomes – for 

example, how many investigations a worker protection agency will conduct in a calendar quarter, or how many 

workers receive DOL-funded employment skills training – and use them to track progress in implementation of 

strategies. This report provides FY 2010 data for such measures from each agency listed in the table below. 

In FY 2010, the Department updated its five-year Strategic Plan (http://www.dol.gov/_sec/stratplan/) through a 

comprehensive effort guided by five strategic goals and 14 outcome goals supporting the Secretary’s vision of good 

jobs for everyone. The new 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. The Department’s mission is also supported by 

administrative, policy, legal, public affairs, and congressional liaison offices. 

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)
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FY 2010 Agency Financial Report 13 

The section that follows presents a brief description of the programs administered by each agency and the most 

recent results for key output measures. The Department has over 100 such measures; these were selected as most 

representative of agencies’ activities from resource allocation and strategic perspectives. Some measures are new 

and have little, if any, historical data; where there are several years’ data available, charts are provided to illustrate 

trends.

Employment and Training 

Employment and Training Administration (ETA) 

ETA provides high quality employment assistance, labor market information and job training through the 

administration of programs authorized by the Workforce Investment Act of 1998 (WIA) for adults, dislocated 

workers, youth, and targeted populations; Job Corps; Trade Adjustment Assistance (TAA); Employment Services (ES) 

authorized under the Wagner-Peyser Act; Foreign Labor Certification activities; the Community Service Employment 

for Older Americans program (CSEOA); and Apprenticeship programs. Numerous measures help ETA track outputs 

for these programs; here are descriptions and available data for just a few: 

• Number of risk assessments conducted for Grant Programs (WIA, ES, and CSEOA) – Federal Project Officers 

conduct risk assessments of grantee work plans and award documents to ensure procedures and performance 

expectations are clearly outlined and to assess grantees’ ability to carry out all tasks. Risk assessments are 

conducted at the onset of a grant and documented in the Grants e-Management System (GEMS). In FY 2010, 

ETA conducted 2,272 risk assessments for these programs. FY 2010 was the baseline year for this measure; 

historical data are not available. 

• Average petition processing time in days for TAA – This measure represents the average number of days to 

process TAA petitions from initial filing to final determination during the applicable year. Processing time 

nearly tripled between 2009 and 2010 because of the impact of the huge influx of petitions filed after the 2009 

Trade Act Amendments (2009 Amendments) took effect in May of 2009. During FY 2010, ETA increased staffing 

and focused on reducing backlogs. Those efforts led to a steady decline in average processing times in the 

second half of the year – from 177 days in April 2010 to 92 days in September 2010. This downward trend is 

expected to continue as the petition backlog declines. However, the 2009 Amendments expired after February 

12, 2011, so the program could experience more significant changes in petition volume and hence, average 

processing times. 

 

The recession led to an increase in petitions and a corresponding increase in processing times from FY 2008-

2009. However, there are several factors that exaggerated its impact on FY 2010 results. First, backlogged 

cases for FY 2009 were not counted until FY 2010 because processing time is not known until determinations 

are made – in this case several months after petitions are submitted. In addition, the 2009 Amendments that 

expanded services and benefits for petitions filed after May 18, 2009 added to the workload that would 

normally have accompanied this recession. Finally, a significant number of petitions submitted prior to the new 

legislation were withdrawn and resubmitted. This had the effect of further reducing average processing time 

for FY 2009 due to the speedy disposition of those cases, while placing the new petitions in the backlogged 

queue of petitions that were not processed until FY 2010. 

 

• Number of Regional Office Desk Audits and Contractor Past Effectiveness Ratings (CPER) Updates Completed for 

Job Corps – Regional Office Desk Audits are conducted monthly using Job Corps reports to assess contract 

Measure FY 2004 FY 2005 FY 2006 FY 2007 FY 2008 FY 2009 FY 2010 

Average petition processing time (in days) 32 29 31 33 35 48 143
Management’s Discussion and Analysis 

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14 United States Department of Labor 

operations. CPERs are updated every six months within the contract period and are included in each Option 

Year package sent to the national office for review. This measure is new for FY 2010; historical data are not 

available. In FY 2010, Job Corps conducted 2,822 regional office desk audits and CPER updates. 

Veterans’ Employment and Training Service (VETS) 

VETS helps veterans obtain positive employment outcomes through services provided at One-Stop Career Centers 

and other locations. Grants are provided to State Workforce Agencies (SWA) and other service providers to support 

staff dedicated to serving veterans, including those who require special assistance due to disabilities or other 

barriers to employment. VETS also protects the employment and reemployment rights of veterans and other 

service members under the provisions of the Uniformed Services Employment and Reemployment Rights Act 

(USERRA) program so that they can serve on active duty without harm to their employment status; and by assuring 

that veterans who seek Federal employment obtain the preferences agencies are required to apply. An output 

measure of importance to VETS’ USERRA effort is “Percent of USERRA investigations completed within 90 days.” To 

provide prompt resolution for both claimants and employers, VETS strives to complete USERRA investigations 

within 90 days as directed by the Veterans’ Benefits Improvement Act of 2008. VETS' response to this 2008 

legislation has significantly improved case timeliness in FY 2009 and FY 2010, compared to prior years.

Measure FY 2005 FY 2006 FY 2007 FY 2008 FY 2009 FY 2010 

Percent of USERRA investigations completed 

within 90 days 78% 81% 78% 78% 86% 84%

Worker Protection 

Office of Federal Contract Compliance Programs (OFCCP) 

OFCCP ensures that employers doing business with the Federal Government comply with the laws and regulations 

requiring a fair and diverse workplace, free of discrimination and harassment. A key measure is Compliance 

Evaluations (see table). Specifically, OFCCP selects Federal Contractor establishments for compliance audits 

through an administrative process in which its examines compliance with the nondiscrimination and affirmative 

action mandates under Executive Order 11246, Section 503 of the Rehabilitation Act of 1973, and the Vietnam Era 

Veterans’ Readjustment Assistance Act of 1974. OFCCP enforcement efforts in FY 2010 show a significant increase 

of more than 26% in audit activity over FY 2009 as a result of aggressive enforcement strategy that focused on all 

three program areas. 

Measure FY 2006 FY 2007 FY 2008 FY 2009 FY 2010 

Compliance Evaluations 3,975 4,923 4,333 3,917 4,960

Occupational Safety and Health Administration (OSHA) 

OSHA was established by the Occupational Safety and Health Act of 1970 with the mission to assure, so far as 

possible, that every working man and woman in the American workplace has safe and healthful working conditions. 

OSHA ensures the safety and health of America's workers by setting and enforcing workplace safety and health 

standards; delivering effective enforcement; providing training, outreach, and education; and encouraging 

continual improvement in workplace safety and health. Through these efforts, OSHA aims to reduce the number of 

worker illnesses, injuries, and fatalities and contribute to the broader goals aimed at promoting economic recovery 

and the competitiveness of our nation's workers. The most recent data for key measures of OSHA’s activity – the 

number of safety, health, and construction industry inspections – are presented in the table below. 

Safety inspections in general industry encompass a variety of high-hazard and high-consequence industries, such as 

the chemical and refinery industries, oil and gas well drilling, manufacturing, maintenance, arborist and logging 
Management’s Discussion and Analysis 

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FY 2010 Agency Financial Report 15 

work, power distribution and generation, coal manufacturing, telecommunications, green industries such as the 

windmill industry, forging, steel manufacturing, food manufacturing, and grain handling. Workers in these 

industries are exposed to a multitude of serious hazards, including falls, electrocutions, struck-by, caught 

in/between, amputations, powered industrial trucks, confined spaces, uncontrolled energy, chemical exposures, 

lead, asbestos, silica, combustible dust, cranes, and engulfment, as well as possible near misses and catastrophes in 

chemical and other facilities. Since FY 2005, safety inspections have been increasing and fatalities have been 

decreasing. 

 

Health inspections are conducted by industrial hygienists and address hazards such as chemical hazards (e.g., lead, 

hexavalent chromium, silica, asbestos, formaldehyde, metals, and diacetyl), biological hazards (e.g., bloodborne 

pathogens and tuberculosis), physical hazards (e.g., noise, radiation, and heat and cold stress), and ergonomic 

hazards (e.g., patient handling, repetitive motion, excessive force, and awkward postures). Although the number of 

health inspections declined from FY 2005 through FY 2008, there was an increase in FY 2009 and OSHA has 

maintained the upward trend through FY 2010. 

The construction industry includes construction, alteration, and/or repair, including residential construction, bridge 

erection, roadway paving, excavations, demolitions, and large scale painting jobs. OSHA tracks safety and health 

inspections of these worksites separately because construction is a large industry that exposes workers to serious 

hazards, such as falling from rooftops, unguarded machinery, being struck by heavy construction equipment, 

electrocutions, silica dust, and asbestos. The industry’s fatality rate is almost three times the rate for all workers. 

Measure FY 2005 FY 2006 FY 2007 FY 2008 FY 2009 FY 2010 

Number of Safety Inspections Conducted 31,197 31,843 33,063 33,074 33,221 34,320

Number of Health Inspections Conducted 7,638 6,736 6,316 5,517 5,783 6,649

Number of Safety and Health Inspections 

Conducted in Construction Industry 22,166 22,915 23,192 23,062 23,754 24,326

Wage and Hour Division (WHD) 

WHD is responsible for administering and enforcing laws that establish the minimum standards for wages and 

working conditions in the United States. The Fair Labor Standards Act (FLSA) minimum wage provisions and the 

prevailing wage laws provide a floor for the payment of fair wages; overtime provisions are intended to broaden 

work opportunities and promote employment. The Migrant and Seasonal Agricultural Worker Protection Act and 

the immigration programs establish working conditions intended both to protect the wages and the safety and 

health of vulnerable workers and to ensure that the labor force is not displaced by lower-paid foreign or migrant 

labor. The prevailing wage programs provide protection to local middle class workers who may be disadvantaged 

by competition from outside labor who offer their services at wages lower than those in the locality. The Family 

and Medical Leave Act was enacted to help workers balance family and work responsibilities, and the child labor 

provisions of the FLSA ensure the safe employment of young workers, encourage their educational endeavors, and 

provide a path to future employment. 

The agency uses directed investigations to increase WHD presence in high risk industries – those industries with 

high minimum wage and overtime violations – and among vulnerable worker populations. Vulnerable workers are 

those who are at risk of exploitation at work, such as workers that are reluctant to complain when they are subject 

to violations for fear of retaliation. The measure is directed investigations as a percentage of all those conducted. 

As the backlog of complaints was reduced in FY 2010 by the addition of new investigators, WHD has positioned 

itself to shift resources to directed investigations in future years. 
Management’s Discussion and Analysis 

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16 United States Department of Labor 

Measure FY 2004 FY 2005 FY 2006 FY 2007 FY 2008 FY 2009 FY 2010 

Percent of Directed Investigations 23% 23% 23% 23% 24% 23% 17%

Employee Benefits Security Administration (EBSA) 

EBSA protects workers and their families’ retirement and health benefits security through administration and 

enforcement of the Employee Retirement Income Security Act of 1974 (ERISA) through proactive enforcement, 

outreach and education programs that protect the most vulnerable populations while ensuring broad compliance 

with ERISA and related laws. EBSA is committed to protecting more than 150 million Americans covered by an 

estimated 708,000 private retirement plans, 2.8 million health plans, and similar numbers of other welfare benefit 

plans; as well as plan sponsors and members of the employee benefits community. 

Historical data for a key performance measure, “Number of Civil Investigations Processed,” are shown in the table 

below. EBSA’s civil investigation program is designed to deter and correct violations of ERISA. The number of civil 

investigations processed has declined due to, among other things, the launch of a new criminal enforcement 

project. Each year, EBSA identifies certain national enforcement projects in which field offices are to place 

particular investigative emphasis. 

Measure FY 2005 FY 2006 FY 2007 FY 2008 FY 2009 FY 2010 

Number of Civil Investigations Processed 3,782 3,411 3,236 3,570 3,669 3,112

Mine Safety and Health Administration (MSHA) 

MSHA protects the safety and health of the nation’s miners under the provisions of the Federal Mine Safety and 

Health Act of 1977, as amended by the Mine Improvement and New Emergency Response (MINER) Act of 2006. 

The purpose of MSHA is to prevent death, disease, and injury from mining and to promote safe and healthful 

workplaces for the nation’s miners through the enactment and enforcement of mandatory safety and health 

standards, mandated inspections which require four complete inspections annually at active underground mines 

and two complete inspections annually at active surface mines, and miner training and compliance assistance. A 

key measure for MSHA is “Total Number of Regular Mandated Inspections.” The metal and nonmetal mining 

industry is influenced by economic and product need causing continual fluctuations in the number of mines 

operating during any given time period. 

Total Number of Regular Mandated Inspections FY 2006 FY 2007 FY 2008 FY 2009 FY 2010 

Coal Safety and Health 5,402 4,822 5,385 5,526 5,121

Metal and Non-metal Safety and Health 16,867 15,945 18,235 17,168 16,127

Office of Labor-Management Standards (OLMS) 

OLMS administers the Labor-Management Reporting and Disclosure Act of 1959 (LMRDA) and related laws. These 

laws primarily establish safeguards for union democracy and union financial integrity and require public disclosure 

reporting by unions, union officers, union employees, employers, labor consultants and surety companies. OLMS 

also administers employee protections under various Federally-sponsored transportation programs that require 

fair, equitable protective arrangements for transit employees when Federal funds are used to acquire, improve, or 

operate a transit system. For OLMS, key measures are “Criminal investigations conducted” and “Number of days to 

resolve union officer election complaints,” recent results for which are provided in the table below. 

OLMS conducts criminal investigations to determine if potential criminal violations of the LMRDA have occurred. 

Most OLMS criminal investigations involve embezzlement or theft of union funds. Evidence of suspected 
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FY 2010 Agency Financial Report 17 

embezzlement is obtained through leads, analysis of union financial reports, surety company reports, contacts with 

union officials, employees or members, and its compliance audit program. The number of criminal investigations 

conducted by OLMS declined in FY 2010 because OLMS had fewer investigators on staff; this trend will likely 

continue in FY 2011 given reduced funding. However, OLMS will enhance audit targeting techniques to focus 

reduced audit resources on labor unions most likely to be in violation of the law and thereby conduct fewer audits 

without a significant decline in those leading to investigations. The success of audit targeting strategies is 

measured by “percent of targeted audits that result in a criminal case,” results for which appear in the FY 2010 

Annual Performance Report published with the Department’s FY 2012 Congressional Budget Justification in 

February 2011. 

For the election resolution measure, the apparent drastic improvement in FY 2009 results is considered anomalous 

because few high-complexity cases were closed that year, and such cases account for large variances in average 

resolution time. As expected, the relative number of high-complexity cases in FY 2010 returned to normal. 

Improvement from FY 2008 is attributed to efficiency gains. 

Measure FY 2006 FY 2007 FY 2008 FY 2009 FY 2010 

Criminal investigations conducted 341 406 393 405 355

Number of days to resolve union officer election complaints 77 86 92 70 81

Policy 

 

Women’s Bureau (WB or Bureau) 

The Bureau – the only Federal office dedicated to serving and promoting the interests of women in the workforce – 

develops policies and standards and conducts inquiries to safeguard the interests of working women; advocate for 

their equality and economic security for themselves and their families; and promote quality work environments. 

The Bureau’s vision is to empower all working women to achieve economic security by preparing them for highpaying jobs, ensuring fair compensation, promoting workplace flexibility, and helping homeless women veterans 

reintegrate into the workforce. 

For the Bureau, a key measure is the number of collaborations that promote the adoption and implementation of 

policies/strategies to improve employment outcomes for wage-earning women. “Number of collaborations” is 

defined as a collaboration or partnership between the Bureau or its sponsored initiatives and another entity such as 

other DOL agencies, other Federal, state or local government agencies, and/or community-based organizations. 

They include formal agreements; inter/intra agency, public/private partnerships, and verbal agreements or 

discussions that convey a course of activity to generate policy or practice outcomes in support of improving the 

work environment and increasing opportunities for women. This is a new measure for FY 2010; through the end of 

the year, there were 95 WB collaborations. 

Office of Disability Employment Policy (ODEP) 

ODEP was established to bring a permanent focus within the U.S. Department of Labor and across the Federal 

government to the development, evaluation, and dissemination of policy strategies that address the significant 

barriers to employment faced by individuals with disabilities. Although many people with disabilities are prepared, 

willing, and able to work, they remain a largely untapped labor pool. ODEP brings together Federal agencies, 

private and public sector employers, labor organizations, and other stakeholders to develop policy solutions that 

expand physical and programmatic access to One-Stop Career Centers and the workforce system in general; 

improves employer organizational practices and make workplaces more inclusive; and increases access to 

employment support for workers with a disability. 
Management’s Discussion and Analysis 

(Unaudited) 

18 United States Department of Labor 

ODEP works to achieve its outcomes through the adoption and implementation of its policies and strategies, 

accomplished through its public and private partners. For ODEP, a key measure is “Formal Agreements,” which 

formally document partnerships between ODEP and federal, state, local and private employer entities and 

organizations that directly lead to the development and dissemination of ODEP policies and strategies and 

support increased employment for people with disabilities. As indicated by the table, agreements rose from FY 

2006-2008 as ODEP's policies and strategies were developed based on its initial investments in demonstration 

projects and research from ODEP's first five years (FY 2001-2005). The number of Formal Agreements dropped in 

FY 2009 as ODEP worked to develop new alliances and partnerships – an investment that paid off in FY 2010, as 

indicated by the increased number of agreements. 

Measure FY 2006 FY 2007 FY 2008 FY 2009 FY 2010 

Formal Agreements 21 24 27 15 16

 

Bureau of International Labor Affairs (ILAB) 

ILAB works to ensure that global markets are governed by fair market rules that protect vulnerable people, 

including women and children, and provide workers a fair share of their productivity and voice in their work lives. 

In order to carry out these strategic objectives, responsibilities, and mandates, ILAB collaborates with other U.S. 

government agencies to formulate international economic, trade, and labor policies, including the formulation and 

implementation of the labor aspects of international trade and investment agreements; coordinates U.S. 

government participation in international organizations relative to labor issues; oversees and implements technical 

assistance programs; and conducts research and analysis and publishes reports on international labor issues. 

ILAB tracks the number of countries engaged in policy dialogue or collaboration as a measure of its scope of 

influence and opportunities to 1) improve labor rights and living standards of workers in the global economy, and 2) 

reduce the prevalence of the worst forms of child labor and forced labor. Data in the table below may understate 

engagements because they do not include all forms of collaboration. ILAB has not systematically collected these 

data and will do so for the first time in FY 2011. Additionally, the decrease over the past few years is due to a shift 

from many small projects to fewer yet larger projects. 

Measure FY 2005 FY 2006 FY 2007 FY 2008 FY 2009 FY 2010 

Number of foreign governments with which ILAB 

engages in policy dialogue, collaboration, or 

negotiation 

90 83 81 71 73 68 

Benefits 

Office of Workers’ Compensation Programs (OWCP) 

OWCP is comprised of four separate compensation programs which provide wage replacement, medical treatment, 

and vocational rehabilitation benefits. The Federal Employees' Compensation Act (FECA) program provides 

monetary wage-loss and medical compensation to civilian employees of the Federal Government injured at work, 

and to certain other designated groups, as well as survivor benefits for a covered employee’s employment-related 

death. The Longshore and Harbor Workers' Compensation Act program provides similar benefits to injured private 

sector workers engaged in certain maritime and related employment, and also provides monetary benefits to the 

survivors of deceased workers. The Black Lung Benefits program provides monetary and medical benefits to totally 

disabled miners suffering from coal mine pneumoconiosis stemming from mine employment, and monetary 

benefits to their dependent survivors. The Energy Employees Occupational Illness Compensation Program Act 

(EEOICPA) provides monetary compensation and/or medical benefits to employees or survivors of employees of the 
Management’s Discussion and Analysis 

(Unaudited) 

FY 2010 Agency Financial Report 19 

Department of Energy (DOE) and certain contractors or subcontractors with DOE who have been diagnosed with 

cancer or other occupational diseases due to exposure to radiation or toxic substances at covered facilities. 

A key measure for OWCP is Lost Production Day rates (LPD), expressed as days per 100 employees in Federal 

Government agencies. The LPD rate provides a valuable measure of the overall incidence and severity of workplace 

injuries for Federal employees and the effectiveness of OWCP’s and Federal employers’ return to work efforts since 

it measures actual lost days from work during the first year of injury. OWCP uses nurse case managers to provide 

early assistance in more severe injury cases to coordinate medical care and return to work services for workers 

covered by FECA. OWCP also assists Federal employers with accommodation and reemployment of their injured 

workers. These strategies have contributed to a greater than 30 % reduction in the Government-wide LPD rate 

since FY 2006. During this period, a joint OWCP/OSHA Safety, Health and Return to Employment initiative also 

contributed to this success by establishing government-wide goals for Federal employers to improve their 

compensation case handling and return to work activities. 

Measure FY 2006 FY 2007 FY 2008 FY 2009 FY 2010 

Government-Wide LPD Rate in Non-Postal Agencies 49.5 46.3 41.3 35.8 34.6

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

The federal-state UI program, authorized under the Federal Unemployment Tax Act and Title III of the Social 

Security Act, provides temporary, partial wage replacement for unemployed workers, providing them with income 

support when suitable work is unavailable. To be eligible for benefits, unemployed workers must meet eligibility 

requirements established by state laws that conform to federal law, including that they have worked recently, be 

involuntarily unemployed, and be able and available for work. One of the key measures for this program is 

“Percent of all intrastate first payments made within 21 days after the last day of the first compensable week.” The 

table below provides historical data, along with unemployment statistics, that illustrate the impact of increasing 

claims volume on program performance during the recession that began in FY 2008. The Total Unemployment Rate 

is the average of the monthly unadjusted Bureau of Labor Statistics data. 

Measure FY 2003 FY 2004 FY 2005 FY 2006 FY 2007 FY 2008 FY 2009 FY 2010

First payment timeliness 88.9% 90.3% 89.3% 87.6% 88.4% 86.8% 83.8% 82.2%

Total Unemployment Rate 6.0% 5.7% 5.2% 4.8% 4.5% 5.2% 8.3% 9.7%

Statistics 

Bureau of Labor Statistics (BLS) 

BLS produces timely, accurate, and relevant statistics reflecting labor market activity, working conditions, and price 

changes in the economy. Statistics produced by BLS support the formulation of economic and social policy affecting 

virtually all Americans. The BLS uses the American Customer Satisfaction Index (ACSI) to measure customer 

satisfaction with its website, since most users access BLS data through bls.gov, which averages more than 7 million 

user sessions each month. The ACSI survey prompts users while they are on the website for feedback regarding the 

extent to which the website meets their needs. The BLS uses these results to improve the website to better serve 

its stakeholders and as a measure of mission achievement. For FY 2009 – the first year this measure was used for 

the full website – the ACSI score was 75 out of 100. In FY 2010, the score remained at 75. 
Management’s Discussion and Analysis 

(Unaudited) 

20 United States 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 – Extension of the Emergency Unemployment Compensation, 2008 (EUC08) and 

Federal Additional Compensation Program (FAC). 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. Subsequent legislation further extended 

these benefits to January 3, 2012. The Recovery Act also created a new federally-funded program (FAC) 

which temporarily increases UI benefits by $25 a week. 

•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 helps States make UI more accessible to workers 

by temporarily defraying the costs of certain eligibility liberalizations. 

•Workforce Investment Act Dislocated Worker Program. An additional $1.25 billion was made available to the 

program for expanding services, as authorized by WIA, using the same State and local allocation formula. 

States were expected to improve assessments and career counseling to place workers in high growth 

sectors with long term opportunities. 

•Workforce Investment Act 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. 
Management’s Discussion and Analysis 

(Unaudited) 

FY 2010 Agency Financial Report 21 

Financial Performance Overview 

Financial Management Systems and Strategy 

DOL continues to pursue its financial management system strategy to improve reporting, accountability, and 

decision making, while furthering implementation of key Government-wide initiatives, e-Gov requirements, and 

other regulatory mandates. The Department seeks to maintain financial management systems, processes, and 

controls that ensure financial accountability, provide useful information to management, and satisfy Federal laws, 

regulations, and guidance. 

In FY 2010, DOL deployed the New Core Financial Management System (NCFMS) as its financial system of record to 

improve the Department’s compliance with legislation and regulations , such as the Chief Financial Officers Act of 

1990, the Government Performance and Results Act of 1993, the Federal Financial Management Improvement Act 

of 1996, the Reports Consolidation Act of 2000, and the Federal Information Security Management Act (FISMA) of 

2002, that drive Federal accounting, financial management systems, financial management reporting, and security. 

Through business process assessment leading to the implementation of NCFMS, DOL has taken great strides to 

standardize systems, business processes and data elements. 

NCFMS will allow DOL to control or reduce costs and improve efficiency and effectiveness by: 

• Reducing duplicative processes. 

• Reducing system response time. 

• Providing workflow for approvals, including invoice processing. 

• Leveraging evolving technologies through the use of shared services and the utilization of Commercial-Offthe-Shelf (COTS) solutions. 

• Better aligning of Information Technology (IT) activities with business management goals. 

Continued assessment and change management will further assure the accuracy and completeness of migrated 

data, standardize the business processes, institutionalize financial practices and improve ease of preparation and 

completeness of all types of financial reports. 
Management’s Discussion and Analysis 

(Unaudited) 

22 United States Department of Labor 

Analysis of Financial Statements 

The principal financial statements summarize the Department's financial position, net cost of operations, and 

changes in net position, and provide information on budgetary resources for FY 2010 and FY 2009. 

Financial Position 

The Department's Balance Sheet presents DOL’s financial position through the identification of agency assets, 

liabilities, and net position. The Department's total assets decreased from $44.2 billion in FY 2009 to $42.8 billion in 

FY 2010, a decrease of about 3%. Liabilities increased from $29.7 billion at the end of FY 2009 to $61.8 billion at the 

end of FY 2010, an increase of over 108 %. This increase was primarily due to increases in liabilities for current and 

future benefits (43.4%) and intra-governmental debt (181.5%). Liabilities for current and future benefits increased 

due to the increase in current unemployment benefits payable, future workers' compensation benefits liability, and 

future benefits payable under the Energy Employees Occupational Illness Compensation program. Intragovernmental debt increased due to Unemployment Trust Fund borrowings from the General Fund of the Treasury 

to meet unemployment benefit requirements. 

Net Cost of Operations 

The Department's Net Cost of Operations for the year ended September 30, 2010 was $179.8 billion, an increase of 

$40.7 billion (29.3%) over 2009. This increase was attributable to the major programs discussed below: 

$-

$5 

$10 

$15 

$20 

$25 

$30 

Funds with U.S. Treasury Investments in Treasury 

securities

Receivables and advances Property, plant and 

equipment

ASSETS ($ in Billions)

2010 - $42.8 billion 2009 - $44.2 billion

$0

$15

$30

$45

$60

$75

$90

$105

$120

$135

$150

$165

Income

Maintenance

Employment and

Training

Standards Worker Safety and

Health

Statistics

NET COST OF MAJOR PROGRAMS ($ in Billions)

2010 - $179.8 billion 2009 - $139.1 billion
Management’s Discussion and Analysis 

(Unaudited) 

FY 2010 Agency Financial Report 23 

Income Maintenance programs continue to comprise the major portion of Departmental costs. These programs 

include unemployment benefits paid to covered individuals who are out of work and seeking employment, as well 

as payments to individuals who qualify for disability benefits due to injury or illness suffered on the job. Income 

maintenance net costs were $168.9 billion, an increase of 30.39% over FY 2009. This increase was primarily due to 

increases in benefits for regular, extended, emergency and additional unemployment compensation (EUC) provided 

under existing legislation, with supplemental provisions extended through FY 2010. 

Employment and Training programs comprise DOL’s second largest cost. These programs are designed to help 

individuals deal with the loss of a job, identify new occupational opportunities, find training to acquire different 

skills, start a new job, or make long-term career plans. Employment and training costs were $8.4 billion in FY 2010, 

an increase of 16.9% over FY 2009. This increase was primarily due to increases in costs for job training programs 

for dislocated workers and youth under the Recovery Act. 

Budgetary Resources

The Statement of Budgetary Resources reports the budgetary resources available to DOL to effectively carry out the 

activities of the Department during FY 2010 and FY 2009, as well as the status of these resources at the end of each 

fiscal year. The Department had direct obligations of $256.6 billion in FY 2010, an increase of $81.9 billion (46.9 %) 

over FY 2009. 

Limitations on the Principal Financial Statements 

As required by the Government Management Reform Act of 1994 (31 USC 3515(b)), the principal financial 

statements report the Department's financial position and results of operations. While the statements have been 

prepared from the Department's books and records in accordance with formats prescribed by OMB, the statements 

differ from the financial reports used to monitor and control budgetary resources, which are prepared from the 

same books and records. The statements should be read with the realization that they are a component of the U.S. 

Government, a sovereign entity, and that liabilities reported in the financial statements cannot be liquidated 

without legislation providing resources to do so. 

Reducing Improper Payments 

 

Improved financial performance through the reduction of improper payments continues to be a key financial 

management focus of the Federal government. At DOL, developing strategies and the means to reduce improper 

payments is a matter of good stewardship. Accurate payments lower program costs. 

In accordance with the Improper Payments Information Act (IPIA) of 2002, as implemented by the OMB Circular A123, Appendix C, Requirements for Effective Measurement and Remediation of Improper Payments, the Department 

reviews its programs and activities annually, identifies programs that may be susceptible to significant improper 

payments, performs testing of programs considered high risk, establishes improper payment reduction targets in 

accordance with OMB guidance and develops and implements corrective actions for high risk programs. 

 

The Department has two programs that are classified to be at risk of significant improper payments in accordance 

with OMB criteria or classification – the Unemployment Insurance (UI) benefit program and the Workforce 

Investment Act (WIA) grant program. The table below shows the target and actual improper payments error rates 

for the programs classified as at-risk: 

DOL Program FY 2008 FY 2009 FY 2010 FY 2011

Target Actual Target Actual Target Actual Target

Unemployment Insurance 11.5% 10.0% 10.0% 10.3% 9.9% 11.2% 9.8%

Workforce Investment Act 0.19% 0.07% 0.07% 0.2% 0.07% 0.2% 0.07%
Management’s Discussion and Analysis 

(Unaudited) 

24 United States Department of Labor 

The target UI improper payments error rate for FY 2010 was 9.9 %, whereas the actual error rate was 11.2 %. This 

difference is primarily due to increases in overpayments to claimants who continued to claim benefits after they 

returned to work, claimants ineligible for benefits because they voluntarily quit their jobs or were discharged for 

cause, and claimants who failed to meet active work search requirements. These 3 causes accounted for 64% of 

overpayments in FY 2009 and 65% of overpayments in FY 2010 and represent approximately 70% of the increase in 

the overpayment rate. Corrective actions to address these causes are described in “Improper Payments 

Information Act Reporting Details” in the Other Accompanying Information section of this report. The higher actual 

error rate for WIA in FY 2009 and FY 2010 compared to the program’s annual target is primarily due to including the 

results of DOL Office of Inspector General audits and other monitoring activities in the measurement methodology 

and higher incidence of error. 

The Department has implemented various corrective actions to address the causes and reduce improper payments 

in both of these programs. Like many other Federal agencies, the Department faces challenges in meeting its 

improper payment reduction and recovery targets, particularly with programs that are sensitive to economic 

fluctuations or natural disasters, such as the UI program. Furthermore, meeting improper payment reduction and 

recovery targets of programs such as UI and WIA are contingent upon the cooperation and support of State 

agencies and other outside stakeholders who are intricately involved in the day-to-day administration and 

management of these programs' activities. 

See “Improper Payments Information Act Reporting Details” in the Other Accompanying Information section of this 

report for additional information on improper payments. 
Management’s Discussion and Analysis 

(Unaudited) 

FY 2010 Agency Financial Report 25 

Management Assurances 

Federal Managers’ Financial Integrity Act of 1982 (FMFIA) 

FMFIA requires that agencies establish internal controls and financial systems that provide reasonable assurance 

that the integrity of Federal programs and operations is protected. It requires that the head of the agency provide 

an annual assurance statement whether the agency has met this requirement. 

Appendix A of OMB Circular A-123 provides specific requirements for conducting management’s assessment of 

internal control over financial reporting, and also requires the agency head to provide an assurance statement on 

the effectiveness of internal controls over financial reporting. 

Federal Financial Management Improvement Act of 1996 (FFMIA) 

FFMIA requires that agencies implement and maintain financial management systems that comply substantially 

with the Federal financial management system requirements, applicable Federal accounting standards, and the 

United States Government Standard General Ledger at the transaction level. The agency head is to make an annual 

determination whether the financial systems substantially comply with FFMIA. 
Management’s Discussion and Analysis 

(Unaudited) 

26 United States Department of Labor 

Summary of Material Weaknesses 

Weaknesses over Financial Reporting -- DOL implemented the New Core Financial Management System (NCFMS) in 

January 2010. The Department experienced significant transaction and reporting errors in its financial reporting 

processes resulting from the implementation. This was primarily due to data migration problems that required 

significant corrections during the remainder of the year; interfaces with subsystems initially not operating as 

intended; certain processes, such as for accounting for property, plant, and equipment, were not functioning 

properly within the new system and required workarounds; and lack of adequate policies and procedures to 

account for and reconcile data on a timely basis and the preparation and review of financial statements and 

reports. The Department was not able to prepare interim financial statements for the quarter ending March 31, 

2010, for submission to OMB. Such financial statements were completed by early July but were not accurate. The 

Department is currently unable to produce auditable financial statements on a timely basis. Audit readiness and 

financial reporting have been delayed as a result of the need to resolve issues related to the migration, process 

workarounds, and legacy interfaces. Although significant progress has been made to correct the migrated data and 

resolve the issues with the interfaces such that day-to-day financial transaction processing is being performed on a 

timely basis, the Department must complete the correction of inaccurate data from the migration and implement 

formal policies and procedures for the preparation and review of interim and annual financial statements and 

reports. Management is in the process of implementing corrective action plans to address these deficiencies and 

expects to complete the corrective actions by the end of FY 2011. 

Weakness over Preparation and Review of Journal Vouchers -- Journal vouchers, which are used to account for 

various significant activities, were not available when NCFMS was implemented in January 2010. Journal voucher 

templates, which are used to prepare the journal vouchers, were then created and training was provided to the 

users in late April 2010. An Accounting Handbook that explained how the journal vouchers are to be used was not 

prepared until July 2010. During the third and fourth quarter, additional journal voucher templates had to be 

prepared as it was determined that certain accounting transactions were not being properly recorded in the new 

system. A significant amount of journal vouchers were prepared and recorded in the new system prior to June 30, 

2010, that subsequently needed to be corrected. In addition, a significant amount of the journal vouchers were not 

adequately supported or properly reviewed and approved by supervisory personnel. To remediate these 

deficiencies, management has developed a corrective action plan which includes assessing the adequacy of existing 

policies regarding journal voucher creation, approval, and supporting documentation requirements, drafting 

updates to existing policies to reflect needed changes and developing a mandatory training program for key 

stakeholders responsible for journal voucher creation and approval. 

Weakness over Budgetary Accounts Reconciliations -- As of June 30, 2010, quarterly reconciliations between the 

Apportionment and Reapportionment Schedules (SF-132) and the Report on Budget Execution and Budgetary 

Resources (SF-133) were not performed, and the SF-133 was not reconciled to the Statement of Budgetary 

Resources. Formal policies and procedures were not in place for the reconciliations and the required 

documentation to support the handling of differences. The lack of these significant reconciliations places 

management at risk of preparing inaccurate financial reports and producing and relying on inaccurate status of 

funds data for operations, which could result in the inefficient and inappropriate use of appropriations, duplicate 

postings of multiyear funding, and possible Antideficiency Act violations. Management is currently reviewing 

existing policies and procedures to identify areas that can be strengthened with budgetary accounts reconciliation 

processes, particularly the SF-132 to SF-133 reconciliation, to ensure that all reconciliations are prepared, reviewed, 

and approved on a timely basis, properly documented, and differences resolved.
Financial Section

FY 2010 Agency Financial Report 29 

Message from the Chief Financial Officer 

The U.S. Department of Labor implemented the New Core Financial Management System 

in January 2010 to increase productivity and improve internal controls when processing 

financial transactions and preparing financial reports. The event marked the first 

implementation of a secure, cloud computing-based financial management solution by a 

cabinet-level agency. 

New technology such as this enables employees to perform their jobs efficiently and 

effectively, eliminating the need for cumbersome paper processes. By moving to a cloudbased system, the Department expects to drive major operational efficiencies, saving time 

and financial investments in hardware, software, and maintenance. This system is clearly 

aligned with the Obama administration’s push for modernizing government through 

technology. 

Another goal of the Obama administration and this Department is to foster American workers’ efforts to find jobs, 

develop new skills in the workforce, and support an economic recovery. Through the American Recovery and 

Reinvestment Act of 2009, unemployment benefits eased the burdens of unemployment on the American 

workforce and stimulated a recessed economy. The Department’s financial operations monitored the appropriate 

use of these funds. 

As a consequence of converting to the New Core Financial Management System, the auditors were unable to 

complete a full examination of the Department’s FY 2010 financial statements issued in November 2010. 

Difficulties with financial reporting capabilities and the timely migration of data from the legacy system delayed the 

new system’s audit readiness, and created certain material weaknesses in the internal control over financial 

reporting. 

Since that time, with the cooperation of the Office of Inspector General and their audit team, we continued our 

efforts to improve the quality of our financial reporting. Consequently, on May 20, 2011, we received an 

unqualified (clean) opinion on the financial statements as of and for the year ended September 30, 2010. 

A clean audit opinion provides independent confirmation that the Department’s financial statements are presented 

fairly and in conformity with generally accepted accounting principles. Accurate and timely financial information 

improves DOL’s accountability to its stakeholders and the operational, budget, and policy decisions-making process. 

DOL is committed to upholding the unqualified (clean) audit opinion it has held for 14 years, and to resolving the 

material weaknesses in internal control. 

The Office of the Chief Financial Officer leads the Department’s financial management and fiscal integrity effort 

and, as stewards of taxpayers’ dollars, we take our responsibility seriously. The Department will continue to strive 

for financial management excellence during 2011. 

James L. Taylor 

Chief Financial Officer 

May 20, 2011 
30 United States Department of Labor

KPMG LLP

2001 M Street, NW

Washington, DC 20036

Independent Auditors’ Report

Secretary and Inspector General

U.S. Department of Labor:

We have audited the accompanying consolidated balance sheets of the U.S. Department of Labor (DOL) as of 

September 30, 2010 and 2009; the related consolidated statements of net cost and changes in net position and combined 

statements of budgetary resources for the years then ended; and the statements of social insurance as of September 30, 

2010, 2009, 2008, 2007, and 2006 (hereinafter referred to as “consolidated financial statements”). The objective of our 

audits was to express an opinion on the fair presentation of these consolidated financial statements. In connection with our 

fiscal year (FY) 2010 audit, we also considered DOL’s internal control over financial reporting and tested DOL’s 

compliance with certain provisions of applicable laws, regulations, contracts, and grant agreements that could have a 

direct and material effect on these consolidated financial statements.

We have also examined DOL’s compliance with section 803(a) of the Federal Financial Management Improvement Act 

of 1996 (FFMIA) as of September 30, 2010.

SUMMARY

As discussed in our opinion on the financial statements, in our report dated November 15, 2010, we did not express an 

opinion on DOL’s FY 2010 consolidated financial statements because DOL’s implementation of a new financial 

accounting and reporting system hindered its ability to assure the accuracy and completeness of consolidated financial 

statement balances. Subsequently, management was able to prepare the consolidated financial statements, and we were 

able to obtain sufficient support of the balances reported in the consolidated financial statements. Accordingly, our present 

opinion on the FY 2010 consolidated financial statements, as presented herein, is different from that expressed in our 

previous report.

As stated in our opinion on the financial statements, we concluded that DOL’s consolidated financial statements present 

fairly, in all material respects, the financial position of DOL as of September 30, 2010 and 2009; its net costs, changes in 

net position, and budgetary resources for the years then ended; and the financial condition of its social insurance program 

as of September 30, 2010, 2009, 2008, 2007, and 2006, in conformity with U.S. generally accepted accounting principles.

As discussed in our opinion on the financial statements, the statements of social insurance present the actuarial present 

value of DOL’s future expenditures to be paid to or on behalf of participants, estimated future income to be received from 

excise taxes, and estimated expenditures for administrative costs during a projection period ending in 2040.

Our consideration of internal control over financial reporting resulted in identifying certain deficiencies that we consider 

to be material weaknesses and other deficiencies that we consider to be significant deficiencies, as defined in the Internal 

Control over Financial Reporting section of this report, as follows:

KPMG LLP is a Delaware limited liability partnership, 

the U.S. member firm of KPMG International Cooperative

(“KPMG International”), a Swiss entity.
Independent Auditors’ Report

FY 2010 Agency Financial Report 31

Material Weaknesses

1. Lack of Sufficient Controls over Financial Reporting

2. Lack of Sufficient Controls over Budgetary Accounting

3. Improvements Needed in the Preparation and Review of Journal Entries

4. Lack of Adequate Controls over Access to Key Financial and Support Systems

Significant Deficiencies

5. Weakness Noted over Payroll Accounting

6. Untimely and Inaccurate Processing of Property, Plant, and Equipment (PP&E) Transactions

The results of our tests of compliance with certain provisions of laws, regulations, contracts, and grant agreements, 

exclusive of those referred to in the FFMIA, disclosed noncompliance with the Federal Managers’ Financial Integrity Act

of 1982 (FMFIA) and one other matter that are required to be reported under Government Auditing Standards, issued by 

the Comptroller General of the United States, and OMB Bulletin No. 07-04, Audit Requirements for Federal Financial 

Statements, as amended.

As stated in our opinion on DOL’s compliance with section 803(a) of FFMIA, we concluded that DOL did not comply, in 

all material respects, with the requirements of section 803(a) of FFMIA as of September 30, 2010.

The following sections discuss our opinion on DOL’s consolidated financial statements; our consideration of DOL’s 

internal control over financial reporting; our tests of DOL’s compliance with certain provisions of applicable laws, 

regulations, contracts, and grant agreements; our opinion on compliance with FFMIA; and management’s and our 

responsibilities.

OPINION ON THE FINANCIAL STATEMENTS

We have audited the accompanying consolidated balance sheets of the U.S. Department of Labor as of September 30, 

2010 and 2009; the related consolidated statements of net cost and changes in net position and the combined statement of 

budgetary resources for the years then ended; and the statements of social insurance as of September 30, 2010, 2009, 

2008, 2007, and 2006. 

In our report dated November 15, 2010, we did not express an opinion on DOL’s FY 2010 consolidated financial 

statements because DOL’s implementation of a new financial accounting and reporting system hindered its ability to 

assure the accuracy and completeness of consolidated financial statement balances. Subsequently, management was able 

to prepare the consolidated financial statements, and we were able to obtain sufficient support of the balances reported in 

the consolidated financial statements. Accordingly, our present opinion on the FY 2010 consolidated financial statements, 

as presented herein, is different from that expressed in our previous report.

In our opinion, the consolidated financial statements referred to above present fairly, in all material respects, the financial 

position of the U.S. Department of Labor as of September 30, 2010 and 2009; its net costs, changes in net position, and 
Financial Section

32 United States Department of Labor

budgetary resources for the years then ended; and the financial condition of its social insurance program as of September 

30, 2010, 2009, 2008, 2007, and 2006, in conformity with U.S. generally accepted accounting principles.

As discussed in Note 1-W to the consolidated financial statements, the statements of social insurance present the actuarial 

present value of DOL’s future expenditures to be paid to or on behalf of participants, estimated future income to be 

received from excise taxes, and estimated expenditures for administrative costs during a projection period ending in 2040. 

In preparing the statements of social insurance, management considers and selects assumptions and data that it believes 

provide a reasonable basis for the assertions in the statements. However, because of the large number of factors that affect 

the statement of social insurance and the fact that future events and circumstances cannot be known with certainty, there 

will be differences between the estimates in the statement of social insurance and the actual results, and those differences 

may be material.

The information in the Management’s Discussion and Analysis, Required Supplementary Stewardship Information, and 

Required Supplementary Information sections is not a required part of the consolidated financial statements, but is 

supplementary information required by U.S. generally accepted accounting principles. We have applied certain limited 

procedures, which consisted principally of inquiries of management regarding the methods of measurement and 

presentation of this information. However, we did not audit this information and, accordingly, we express no opinion on 

it.

The information in the Message from the Secretary of Labor and Other Accompanying Information section are presented 

for purposes of additional analysis and are not required as part of the consolidated financial statements. This information 

has not been subjected to auditing procedures and, accordingly, we express no opinion on it.

INTERNAL CONTROL OVER FINANCIAL REPORTING

Our consideration of the internal control over financial reporting was for the limited purpose described in the 

Responsibilities section of this report and was not designed to identify all deficiencies in internal control over financial 

reporting that might be deficiencies, significant deficiencies, or material weaknesses and therefore, there can be no 

assurance that all deficiencies, significant deficiencies, or material weaknesses have been identified. However, in our FY

2010 audit, we identified certain deficiencies in internal control over financial reporting that we consider to be material 

weaknesses and other deficiencies that we consider to be significant deficiencies. 

A deficiency in internal control exists when the design or operation of a control does not allow management or 

employees, in the normal course of performing their assigned functions, to prevent, or detect and correct misstatements on 

a timely basis. A material weakness is a deficiency, or combination of deficiencies, in internal control such that there is a 

reasonable possibility that a material misstatement of the entity’s financial statements will not be prevented, or detected 

and corrected on a timely basis. We consider the deficiencies described in Exhibit I to be material weaknesses.

A significant deficiency is a deficiency, or a combination of deficiencies, in internal control that is less severe than a 

material weakness, yet important enough to merit attention by those charged with governance. We consider the 

deficiencies described in Exhibit II to be significant deficiencies.

We noted certain additional matters that we reported to management of DOL in a separate letter.
Independent Auditors’ Report

FY 2010 Agency Financial Report 33

COMPLIANCE AND OTHER MATTERS

The results of certain of our tests of compliance as described in the Responsibilities section of this report, exclusive of 

those referred to in the FFMIA, disclosed one instance of noncompliance that is required to be reported herein under 

Government Auditing Standards or OMB Bulletin No. 07-04, as amended, and is described in Exhibit III.

The results of our other tests of compliance as described in the Responsibilities section of this report, exclusive of those 

referred to in FFMIA, disclosed no instances of noncompliance that are required to be reported herein under Government 

Auditing Standards or OMB Bulletin No. 07-04.

Other Matters. DOL is currently reviewing an incident regarding a potential violation of the Anti-deficiency Act. As of the 

date of this report, no final noncompliance determination has been made for this incident.

We noted certain additional matters that we reported to management of DOL in a separate letter.

OPINION ON COMPLIANCE WITH FFMIA

DOL represented that, in accordance with the provisions and requirements of FFMIA, the Secretary of Labor determined 

that DOL’s financial management systems were not in substantial compliance with FFMIA as of September 30, 2010.

We have examined the U.S. Department of Labor’s compliance with section 803(a) of the Federal Financial Management 

Improvement Act of 1996 as of September 30, 2010. Under section 803(a) of FFMIA, the U.S. Department of Labor’s 

financial management systems are required to substantially comply with (1) Federal financial management systems 

requirements, (2) applicable Federal accounting standards, and (3) the United States Government Standard General 

Ledger at the transaction level. We used OMB’s Implementation Guidance for the Federal Financial Management 

Improvement Act, dated January 9, 2009, to determine compliance.

Our examination disclosed certain weaknesses in DOL’s financial management systems’ access controls and related 

manual controls. DOL was also unable to produce timely and reliable financial reports, including auditable FY 2010 

consolidated financial statements by the OMB reporting deadline of November 15, 2010. These matters are further 

described in Exhibit III.

In our opinion, because of the effects of the matters discussed in the preceding paragraph, the U.S. Department of Labor 

did not substantially comply with FFMIA section 803(a) as of September 30, 2010.

* * * * * * *

RESPONSIBILITIES

Management’s Responsibilities. Management is responsible for the consolidated financial statements; establishing and 

maintaining effective internal control; and complying with laws, regulations, contracts, and grant agreements applicable to 

DOL.

Auditors’ Responsibilities. Our responsibility is to express an opinion on the FY 2010 and 2009 consolidated financial 

statements of DOL based on our audits. We conducted our audits in accordance with auditing standards generally 

accepted in the United States of America; the standards applicable to financial audits contained in Government Auditing 

Standards, issued by the Comptroller General of the United States; and OMB Bulletin No. 07-04, as amended. Those 

standards and OMB Bulletin No. 07-04 require that we plan and perform the audits to obtain reasonable assurance about 
Financial Section

34 United States Department of Labor

whether the consolidated financial statements are free of material misstatement. An audit includes consideration of 

internal control over financial reporting as a basis for designing audit procedures that are appropriate in the circumstances, 

but not for the purpose of expressing an opinion on the effectiveness of DOL’s internal control over financial reporting. 

Accordingly, we express no such opinion.

An audit also includes:

• Examining, on a test basis, evidence supporting the amounts and disclosures in the consolidated financial 

statements;

• Assessing the accounting principles used and significant estimates made by management; and

• Evaluating the overall consolidated financial statement presentation.

We believe that our audits provide a reasonable basis for our opinion.

In planning and performing our FY 2010 audit, we considered DOL’s internal control over financial reporting by 

obtaining an understanding of DOL’s internal control, determining whether internal controls had been placed in operation, 

assessing control risk, and performing tests of controls as a basis for designing our auditing procedures for the purpose of 

expressing our opinion on the consolidated financial statements, but not for the purpose of expressing an opinion on the 

effectiveness of DOL’s internal control over financial reporting. Accordingly, we do not express an opinion on the 

effectiveness of DOL’s internal control over financial reporting. We did not test all controls relevant to operating 

objectives as broadly defined by the Federal Managers’ Financial Integrity Act of 1982.

As part of obtaining reasonable assurance about whether DOL’s FY 2010 consolidated financial statements are free of 

material misstatement, we performed tests of DOL’s compliance with certain provisions of laws, regulations, contracts, 

and grant agreements, noncompliance with which could have a direct and material effect on the determination of the 

consolidated financial statement amounts, and certain provisions of other laws and regulations specified in OMB Bulletin 

No. 07-04, as amended. We limited our tests of compliance to the provisions described in the preceding sentence, and we 

did not test compliance with all laws, regulations, contracts, and grant agreements applicable to DOL. However, providing 

an opinion on compliance with laws, regulations, contracts, and grant agreements was not an objective of our audit and, 

accordingly, we do not express such an opinion.

Our responsibility also included expressing an opinion on DOL’s compliance with FFMIA section 803(a) requirements as 

of September 30, 2010, based on our examination. Our examination was conducted in accordance with attestation 

standards established by the American Institute of Certified Public Accountants and the standards applicable to attestation 

engagements contained in Government Auditing Standards issued by the Comptroller General of the United States, and 

accordingly, included examining, on a test basis, evidence about DOL’s compliance with the requirements of FFMIA 

section 803(a) and performing such other procedures as we considered necessary in the circumstances. We believe that 

our examination provides a reasonable basis for our opinion. Our examination does not provide a legal determination on 

DOL’s compliance with specified requirements.

______________________________

DOL’s response to the findings identified in our audit is presented in Exhibits I and II. We did not audit DOL’s response 

and, accordingly, we express no opinion on it.
Independent Auditors’ Report

FY 2010 Agency Financial Report 35

This report is intended solely for the information and use of DOL’s management, DOL’s Office of Inspector General, 

OMB, the U.S. Government Accountability Office, and the U.S. Congress and is not intended to be and should not be 

used by anyone other than these specified parties.

May 20, 2011
Financial Section

Material Weaknesses

Exhibit I

36 United States Department of Labor

1. Lack of Sufficient Controls over Financial Reporting

In fiscal year (FY) 2009, we reported a significant deficiency relating to the lack of sufficient internal controls 

over financial statement preparation. We recommended that the Chief Financial Officer (a) ensure that Office of 

Chief Financial Officer (OCFO) personnel perform a more detailed review of all financial information in the 

Performance and Accountability Report (PAR) including financial statements, notes, supplementary information, 

and supplementary stewardship information; and (b) update the U.S. Department of Labor Manual Series

(DLMS) to include guidance for U.S. Department of Labor (DOL) supervisors to follow during their financial 

statement reviews, including procedures for comparing financial data reported on the different statements and 

notes to ensure accuracy and consistency.

In January 2010, DOL implemented the New Core Financial Management System (NCFMS) to replace its legacy 

accounting and reporting system, the Department of Labor Accounting and Related Systems (DOLAR$). In late 

2009, we conducted a pre-implementation performance audit of NCFMS, which identified a number of 

implementation risks related to user acceptance, interface, integration, and mock data conversion testing. These 

risks were not addressed prior to implementation, which contributed to DOL subsequently facing many 

significant challenges related to its financial reporting process. 

DOL encountered implementation issues related to migrating data from DOLAR$ to NCFMS, completing the 

interfaces between the legacy subsystems and NCFMS, developing new accounting processes to effectively use 

NCFMS, and identifying all the necessary reporting requirements. In addition, reports needed for management, 

control, and audit purposes were not readily available or had not been created upon activation of NCFMS. 

As a result, the ability of management officials to monitor their budgets was significantly impacted and 

operational control procedures were not performed routinely throughout FY 2010. DOL also experienced delays 

in meeting certain Office of Management and Budget (OMB) reporting deadlines and in preparing audit 

deliverables. 

Despite substantial effort by the OCFO, DOL was unable to fully address many of these implementation 

problems during FY 2010. Specifically, we noted the following issues:

Reconciliation of Data: Data errors related to coding, configuration, and migration and subsequent operational 

problems created significant differences between the payroll, trust fund, and property modules and the NCFMS 

general ledger. DOL also identified a number of reconciling differences and adjustments related to beginning 

balances migrated from DOLAR$ to NCFMS that were not resolved until the third quarter of FY 2010. In 

addition, the system was not able to produce all required reports necessary to perform manual reconciliations 

between the subsystems, general ledger, and third party service providers. DOL was eventually able to complete 

all necessary reconciliations for the year ended September 30, 2010.

Also, DOL had significant difficulty reconciling its disbursement and collection activity with the U.S. 

Department of the Treasury’s (Treasury) records subsequent to the implementation of NCFMS. The various 

differences and errors resulting from data migration and subsequent corrections significantly complicated and 

delayed efforts to verify the accuracy of the fund balance with Treasury account. In addition, the monthly

submissions of the Statement of Transactions (SF-224) for the second quarter were delayed, and the collection 

and disbursement information for the SF-224s that were finally submitted to Treasury were based on estimated

data because of the aforementioned difficulties. Furthermore, we were informed that monthly fund balance with 

Treasury reconciliations were not performed for the eight month period ended August 31, 2010 prior to fiscal 

year end and a net un-reconciled difference of $1.7 billion was identified by DOL in its fund balance with 

Treasury account at that time. DOL was ultimately able to materially reconcile the net differences that were 

identified in its fund balance with Treasury account for the year ended September 30, 2010.
Independent Auditors’ Report

Material Weaknesses

Exhibit I

FY 2010 Agency Financial Report 37

In addition, we identified an overstatement of debt related to repayable advances of $11 billion because DOL did 

not properly reconcile the balance to Treasury’s records as of June 30, 2010. This error was corrected by DOL 

for the year ended September 30, 2010. 

The inability of DOL to complete reconciliations and resolve reconciling differences timely was primarily due to 

NCFMS implementation errors that prevented users from retrieving complete and accurate information from 

NCFMS and from producing reports needed for reconciliation purposes. In addition, resource constraints and 

competing priorities related to the correction of implementation errors reduced time available for staff to perform 

reconciliations and maintain effective internal control. Prompt resolution of differences and errors is an essential 

component of financial data integrity, and its absence compromises the integrity of the financial statements.

Interfaces between the General Ledger and Subsystems: Certain interfaces between the subsystems and 

NCFMS were not working properly subsequent to the system conversion. For instance, grant expense 

information in E-grants was not being transferred to NCFMS in a complete manner. In addition, certain grant 

obligations were not transmitted properly from NCFMS to the U.S. Department of Health and Human 

Services/Payment Management System in order for grantees to drawdown funds. In February 2010, certain 

“work-arounds” were developed and implemented to address these and other interface problems, and the 

majority of the underlying issues were corrected as of June 2010. We also noted that DOL experienced 

significant difficulties uploading data files from Treasury’s Bureau of Public Debt and the Integrated Federal 

Employees Compensation System into NCFMS. As a result, DOL was unable to record the majority of the 

second quarter data related to the Unemployment Trust Fund (UTF) and Federal Employees’ Compensation Act

(FECA) activities in the general ledger until June 2010. Furthermore, significant differences existed between the 

data ultimately uploaded into NCFMS and these two subsystems. DOL was able to materially reconcile these 

differences for the year ended September 30, 2010.

Financial Processes: NCFMS-specific accounting processes were not fully developed upon implementation of 

the system. For example, processes needed to record current year apportionments, evaluate the accuracy of the 

grant accrual, and record property, plant, and equipment additions and deletions were not fully implemented and 

documented for a significant part of the year. In addition, DOL had not fully implemented and documented the 

process to compile the quarterly financial statements, including development of procedures related to 

eliminations and allocations. As a result, DOL was unable to submit second quarter financial statements to OMB.

DOL was eventually able to provide the second quarter financial statements for audit purposes on July 2, 2010. 

During our review of these financial statements, we noted numerous errors that were not identified in the OCFO 

review nor communicated to us prior to delivery of the financial statements. In addition, management’s responses 

to our findings on the second quarter financial statements were not completely provided until three weeks after 

the due date. For example, we identified the following issues:

• Certain beginning balances in the financial statements did not agree with the ending balances reported in the 

FY 2009 audited consolidated financial statements.

• Certain balances that were reported in multiple places in the statements did not agree. 

• The allocation for the working capital fund for the second quarter was not recorded in the general ledger, and 

therefore, was not included in the financial statements. 

• The financial statements presented several abnormal balances, such as Unexpended Appropriations –

Earmarked Funds. 
Financial Section

Material Weaknesses

Exhibit I

38 United States Department of Labor

Furthermore, the OCFO did not perform an initial overall analytical review to compare the current period 

financial statements to the prior period financial statements to determine the reasonableness of large or unusual 

fluctuations or identify additional errors. 

The OCFO was able to submit the third quarter financial statements on July 22, 2010. However, upon delivery, 

the OCFO identified numerous errors in these financial statements that required significant adjustments, 

including errors identified in the second quarter financial statements that remained unresolved. 

The delays in compiling the second quarter financial statements resulted from the initial data migration, system 

configuration, and coding errors, and an inability to produce reports from the system for external reporting 

purposes. The financial statement errors occurred because it was necessary for DOL to defer performance of a 

sufficiently detailed review and other financial analyses of the consolidated financial statements and trial balance 

to devote more resources to its corrective action plan related to NCFMS, which was not completed in time for 

submission of the third quarter financial statements. The lack of sufficient review of the DOL consolidated 

financial statements increases the risk that material errors or fraud would not be detected and corrected timely.

The OCFO also encountered significant difficulties in preparing the financial statements at year-end for OMB’s 

reporting deadline of November 15. The draft financial statements were initially due on October 22, 2010; 

however, the OCFO was unable to complete the initial draft financial statements until November 6, 2010. 

Furthermore, several notes to the draft financial statements had not been completed at that time. In addition, the 

OCFO was not able to provide sufficient supporting documentation for all notes to the financial statements until 

November 11, 2010. Because the OCFO was unable to perform a sufficient review of the draft financial 

statements prior to submission to us, we identified numerous errors in the initial draft financial statements

provided that were not identified in the OCFO review nor communicated to us prior to delivery of the draft 

financial statements. For example, we identified the following issues:

• Unexpended Appropriations - Other Funds in the amount of $10.8 billion was incorrectly presented as 

Unexpended Appropriations - Earmarked Funds in FY 2009 column on the balance sheet.

• Numerous balances in the notes to the financial statements did not agree to the financial statements or other 

notes. For example, the Energy Employees Occupational Illness Compensation Benefits Liability of $12.1 

billion reported on the balance sheet as of September 30, 2010, was incorrectly reported as $7.966 billion in 

the notes to the financial statements. In addition, the undiscounted liability of $19.805 billion as of 

September 30, 2010, was incorrectly reported as $12.989 billion. 

• Distributed offsetting receipts of $76 billion were incorrectly reported on the Reconciliation of Budgetary 

Resources Obligated to Net Cost of Operations presented in the notes to the financial statements.

• Note 2, Funds with U.S. Treasury, included misclassifications totaling $2.1 billion. 

We noted that the final FY 2010 consolidated financial statements were revised to correct these errors. 

The OCFO informed us that the delay in submission of its draft financial statements was caused by difficulties 

encountered in completing the year-end Federal Agencies Centralized Trial Balance System II (FACTS II) 

accounting data submission. These difficulties prevented the OCFO from finalizing and recording the adjusting 

entries needed to begin preparation of the financial statements.

Identifying and Reporting Intragovernmental Transactions: Within NCFMS, various issues related to the 

identification and coding of intragovernmental transactions by trading partner, including incomplete vendor 

information, were encountered as a result of data migration errors. These errors prevented DOL from preparing 
Independent Auditors’ Report

Material Weaknesses

Exhibit I

FY 2010 Agency Financial Report 39

and submitting the required intragovernmental information to Treasury for the second quarter of FY 2010.

Although DOL was able to prepare and submit the required intragovernmental information to Treasury for the 

third and fourth quarters, we were informed that certain reconciliation procedures had not been completed for all 

trading partners. In addition, significant, unexplained reconciling differences were reported in Treasury’s 

Intragovernmental Fiduciary Confirmation System (IFCS) as of June 30, 2010. For instance, interest receivable, 

investments, and interest revenue related to UTF had unexplained differences of $158 million, $7.2 billion, and 

$345 million, respectively, which were corrected in the fourth quarter. Although some errors related to 

intragovermental transactions remained unresolved, DOL was able to correct material errors and accurately 

classify and report its intragovernmental transactions and balances, in all material respects, for the year ended

September 30, 2010. 

Accounting Resources: During our FY 2010 audit, we observed that the OCFO did not have a sufficient depth of 

accounting personnel with the accounting expertise to perform all necessary functions and provide all prepared 

by client (PBC) items in support of the audit in a timely and accurate manner. As a result, the OCFO relied

heavily on a few key employees and contractors to perform certain accounting functions because of their 

historical knowledge of certain processes, including UTF. In the absence of these key employees and contractors, 

the OCFO lacked additional resources who could respond to questions we raised in relation to these processes 

during the course of the audit. In addition, the OCFO did not have a contingency plan in place to adequately and 

timely perform all accounting functions and internal control procedures related to these processes, without the 

assistance of these key individuals. For example, we noted that DOL did not record interest payable and interest 

expense related to the UTF repayable advances in the general ledger as of June 30, 2010, when one of its 

contractors was on extended leave. In addition, reconciliations and results of procedures performed by OCFO 

contractors related to the data migrated from DOLAR$ to NCFMS could not be provided in their absence, which 

significantly delayed our audit procedures.

Although OCFO management supplemented their staff with outside resources, the OCFO did not have 

sufficiently skilled and knowledgeable employees assigned to monitor its contractors. We noted weaknesses in 

supervision, communication, and coordination between the OCFO and its contractors. Furthermore, certain PBC

items, such as data extracts related to the general ledger transactions, undelivered orders, expenses, receivables, 

and UTF transfers were initially incomplete and/or incorrect. These issues were the result of poor communication 

with contractors and inadequate review of their work by OCFO employees. As a result, we encountered 

significant delays to the audit, and the OCFO and its contractors were required to incur substantial effort to 

correct the issues.

Other Financial Reporting Controls: The grant accrual calculation was not reviewed by someone other than the 

preparer before it was recorded in the general ledger for the periods ended June 30 and September 30, 2010. 

Certain key elements of grant data changed with the implementation of NCFMS, requiring that the grant accrual 

database be modified. Because DOL encountered significant difficulties in modifying the grant accrual database,

the person normally responsible for reviewing the grant accrual had to perform the calculation for the periods 

noted above. As a result, no one with sufficient expertise was available to perform the review of the grant 

accrual. Without proper review, the grant accrual could be misstated. 

We also noted the OCFO incorrectly recorded UTF Accounts Receivable in the general ledger using the balance 

of $1.04 billion instead of the activity, which was $40.2 million as of June 30, 2010. This error was caused by a 

new contractor recording the UTF-related entries and resulted in an error of $1.0 billion that was subsequently 

corrected prior to year-end.

U.S. Standard General Ledger (USSGL) Compliance: In addition to the intragovernmental transactions 

identified above, we identified various other transactions that were not compliant with the USSGL. For example, 

we identified the following:
Financial Section

Material Weaknesses

Exhibit I

40 United States Department of Labor

• Transfers totaling $3.7 billion were not properly recorded by the receiving agencies in the appropriation trust 

fund expenditure transfers collected account because NCFMS was not configured properly. This error was 

manually corrected as of September 30, 2010.

• The $4.05 billion change in the liability for estimated future benefits related to the Energy Employees 

Occupational Illness Compensation Program was incorrectly recorded as a contingent liability and a future 

funded expense in the general ledger. This issue was caused by DOL using the incorrect general ledger 

accounts to record this entry. The change in the liability was presented correctly in the financial statements

as of September 30, 2010.

• Expended Appropriations and Appropriations Used were improperly recognized in the general ledger for 

Federal Employees’ Compensation Act benefit payments that were not funded by appropriations because of 

the posting logic used in NCFMS. This situation resulted in abnormal balances of $3.8 billion for Expended 

Appropriations and Unexpended Appropriations Used in the general ledger as of September 30, 2010. The 

OCFO recorded an on-top adjustment prior to submission of the draft financial statements to correct this 

error.

• Expended Appropriations and Appropriations Used were improperly recognized in the general ledger for 

State Unemployment Insurance and Employment Service Operations expenditure transfers because of the 

posting logic used in NCFMS. This situation resulted in abnormal balances of $3.2 billion for Expended 

Appropriations and Unexpended Appropriations Used in the general ledger as of June 30, 2010. Although 

DOL implemented a manual process to substantially correct this error for financial reporting purposes, as of 

September 30, 2010, the configuration problem had not been resolved.

• Appropriations Used totaling $202 million were improperly recorded in certain earmarked funds because 

NCFMS was configured incorrectly. Although DOL implemented a manual process to correct this error for 

financial reporting purposes, as of September 30, 2010, the configuration problem had not been resolved.

• Expenditure Transfers were improperly recorded to expense because NCFMS was configured incorrectly. 

Although DOL did implement a manual process to correct the transfers and record them in the proper 

account, as of September 30, 2010, the configuration problem had not been corrected. 

• Intragovernmental employee benefit program expenses in the amount of $187 million were misclassified as 

of September 30, 2010. This issue was caused by DOL incorrectly configuring its object class codes related 

to employee benefit programs in the general ledger. 

Federal Managers’ Financial Integrity Act of 1982 (FMFIA) Assessment Process: DOL was unable to 

complete and submit the results of its FMFIA assessment prior to its receipt of the draft FY 2010 internal control 

report in October 2010, which cited four material weaknesses. The OCFO did verbally inform us initially that 

one material weakness had been identified related to financial reporting, which included deficiencies over journal 

entries. When we received the draft Management Assurances on November 6, 2010, we noted that management 

did not identify one material weakness that we identified during the FY 2010 audit – Lack of Adequate Controls 

over Access to Key Financial and Support Systems – and did not identify all elements included in the Lack of 

Sufficient Controls over Budgetary Accounting material weakness we reported. Because management did not 

concur with our reported material weakness related to controls over access to key financial and support systems it 

was not reported in the Management Assurances. 

DOL’s FMFIA assessment process, including activities specifically related to Appendix A of OMB Circular No. 

A-123, Management’s Responsibility for Internal Control, was not appropriately designed to identify material 
Independent Auditors’ Report

Material Weaknesses

Exhibit I

FY 2010 Agency Financial Report 41

weaknesses in internal control and timely prepare and provide the draft assurance statement. In addition, the 

OCFO did not receive the financial management quarterly certifications from the DOL agencies, likely as a result 

of the issues encountered with the implementation of NCFMS. 

The Government Accountability Office (GAO) Standards for Internal Control in the Federal Government (the 

Standards) states, “Internal control should generally be designed to assure that ongoing monitoring occurs in the 

course of normal operations. It is performed continually and is ingrained in the agency’s operations. It includes 

regular management and supervisory activities, comparisons, reconciliations, and other actions people take in 

performing their duties.” 

OMB Circular No. A-123 states, “The agency head must establish controls that reasonably ensure that 

obligations and costs are in compliance with applicable laws; funds, property, and other assets are safeguarded 

against waste, loss, unauthorized use, or misappropriation; and revenues and expenditures applicable to agency 

operations are properly recorded and accounted for to permit the preparation of accounts and reliable financial 

and statistical reports....”

OMB Circular No. A-136, Financial Reporting Requirements (September 2010), section V states, “...Agencies 

are required to reconcile intragovernmental balances and transactions at least quarterly. While much of this 

reconciliation will occur after the fact, there are tools available that enable agencies to reconcile certain 

transaction types prior to final report submission. These transaction types include investments or borrowings with 

the Department of the Treasury, benefit-related transactions with the Department of Labor and the Office of 

Personnel Management, and transfers of budget authority.”

The USSGL contains the chart of accounts that provides the basic accounting structure for Federal agencies’ 

general ledger systems. It incorporates both proprietary and budgetary accounts. It also provides the accounting 

transactions for events occurring throughout the Federal Government. These transactions illustrate the proper 

proprietary and budgetary entries for each accounting event. 

FMFIA paragraph 3 states, “...The head of each executive agency shall, on the basis of an evaluation conducted 

in accordance with guidelines prescribed under paragraph (2) of this subsection, prepare a statement – that the 

agency’s systems of internal accounting and administrative control fully comply with the requirements of 

paragraph (1)....” In addition, per OMB Circular No. A-123, Section IV.A, “The agency head's assessment of 

internal control can be performed using a variety of information sources. Management has primary responsibility 

for assessing and monitoring controls, and should use other sources as a supplement to -- not a replacement for --

its own judgment.”

To address the issues noted above, the Chief Financial Officer should (a) ensure that routine reconciliation 

controls are implemented and performed; (b) ensure that all necessary financial reports are developed and 

available to the agencies; (c) ensure that any remaining interface errors are promptly resolved; (d) fully document 

and implement all business processes and controls required for the accurate and timely operation of NCFMS; (e) 

promptly resolve the classification issues related to intragovernmental balances; (f) develop and implement 

policies and procedures to monitor the work of OCFO contractors, including the designation of appropriately 

skilled and knowledgeable individuals from the OCFO to monitor each accounting process that is primarily 

performed by an OCFO contractor, to ensure the work is being properly performed; (g) ensure that someone 

other than the preparer is properly reviewing the grant accrual calculation and the UTF accounts receivable 

journal entry prior to recording them in the general ledger; (h) review significant transactions for USSGL 

compliance and make any necessary corrections; (i) review its FMFIA assessment process and implement 

enhancements to better identify material weaknesses in internal control and more timely complete its draft 

FMFIA assurance statement; and (j) ensure that the draft DLMS policies and procedures requiring detailed 

review of all financial information in the draft financial statements are comprehensive and finalized and that 

OCFO personnel adhere to these policies. Financial statement review should include procedures for comparing 
Financial Section

Material Weaknesses

Exhibit I

42 United States Department of Labor

financial data reported on the different statements to ensure accuracy and consistency; agreeing the financial data 

to the general ledger to ensure existence, completeness, and accuracy of financial data reported; and analyzing 

significant variances between current period and prior period financial information.

Management’s Response: As indicated by the auditors, DOL encountered a number of challenges during FY 

2010 with the implementation of the new financial management system, NCFMS. These challenges hampered 

our ability to perform certain quality assurance procedures relative to financial reporting and system operations, 

while simultaneously maintaining routine, day-to-day control activities and procedures. The OCFO chose to 

focus its attention and limited resources on identifying and implementing permanent system corrections to the 

many unforeseen system control and mapping issues. Workgroups were organized for both financial reporting 

and operational issues, and the OCFO aggressively managed the workgroups to ensure that issues identified with 

NCFMS were documented, tracked and corrected in a systematic manner. 

While we generally concur with the auditor’s recommendations, we note that many of the recommendations 

correspond with actions planned or already taken by the OCFO in its efforts to produce accurate and complete 

year-end financial statements. Quality assurance steps were performed for year-end financial reporting, and as 

noted by the auditors many of the issues identified by the auditors were resolved prior to the issuance of the 

financial statements. For the recommendations not yet resolved, OCFO resources will be prioritized to address 

these recommendations.

With respect to our available resources and the use of contractor staff, we do not agree with the auditor’s 

conclusions. As noted above, the NCFMS implementation created many challenges for DOL and stretched 

staffing resources in our attempts to address system-related implementation issues. As such, OCFO management 

secured additional contractor resources during FY 2010 to support NCFMS operational issues and quarterly 

financial reporting requirements. The use of contractor support for financial management is well established in 

the federal government. We will continue to use contractors as we deem necessary, and believe that the practice 

is a prudent use of available resources and one that produces effective results. We will continue to ensure that 

work performed by contractors is well documented, supervised, and readily available to the auditors.

In addition, DOL did complete its internal controls assessment process on a timely basis although we agree that a 

draft of the assurance statement was not provided to the auditors by the requested date. The discussion noted by 

the auditors was preliminary as the Department was considering how to present the material weaknesses, such as 

one overall material weakness in financial reporting with various subparts, (e.g., financial statements preparation 

process, account and reports reconciliations, journal voucher preparation and approval process, and data 

validation) or as separate weaknesses. We also informed the auditors that our assessment did not determine that 

there was a material weakness in controls over access to financial systems and management has responded to the 

auditors that it does not agree with their assessment.

Auditor’s Response: Management has provided a corrective action plan to address our recommendations. FY 

2011 audit procedures will determine whether these recommendations have been adequately addressed and can 

be considered closed.

2. Lack of Sufficient Controls over Budgetary Accounting

As part of the FY 2009 significant deficiency we reported relating to the lack of sufficient internal controls over 

financial statement preparation, we recommended that the Chief Financial Officer (a) implement procedures to 

require that OCFO staff reconcile the amount of distributed offsetting receipts reported on DOL’s quarterly 

Statement of Budgetary Resources (SBR) to distributed offsetting receipts reported on Treasury’s Quarterly 

Distributed Offsetting Receipts by Department Report, and (b) complete the quarterly reconciliations of the SBR 

to the Report on Budget Execution and Budgetary Resources (SF-133), including the completion of documented 
Independent Auditors’ Report

Material Weaknesses

Exhibit I

FY 2010 Agency Financial Report 43

supervisory reviews over these reconciliations, by a certain date that facilitates timely identification and 

correction of potential SBR misstatements.

During FY 2010, DOL encountered numerous issues related to its budgetary accounting. Specifically, we noted 

the following issues:

Budgetary Resources: We tested the reconciliation of the Apportionment and Reapportionment Schedules (SF132) to the SF-133 for the first quarter. We noted that the reconciliation identified a material difference between 

the SF-132 and SF-133, which lacked supporting documentation to substantiate that it was adequately researched 

and resolved. Upon further investigation, we noted that this difference was the result of appropriations received 

in the amount of $12.5 billion that were recorded twice in the general ledger, resulting in appropriations received 

being overstated. During the first quarter, DOL appropriately recorded the initial entry in an annual fund for 

approved funding related to the continuing resolution. However, the appropriation law that was subsequently 

passed changed it from an annual fund to a multi-year fund. DOL subsequently submitted an updated SF-132 for 

the multi-year fund, and upon OMB approval during the second quarter, recorded the $12.5 billion a second time 

without reversing the initial entry. The misstatement was corrected as of September 30, 2010. This error was not 

detected because the OCFO staff had limited time available to sufficiently and timely perform control activities 

due to competing priorities related to efforts resolving NCFMS implementation issues.

During our second quarter testing, we noted that DOL recorded an adjustment in the general ledger to decrease 

Appropriations Received in order to correct data migration errors stemming from the implementation of NCFMS. 

However, this entry was not properly reversed in the subsequent period, and as a result, Appropriations Received 

was understated by $224 million. The misstatement was corrected as of September 30, 2010.

Lack of Budgetary Reconciliations: The following budgetary reconciliations were not prepared by management 

for the second and third quarters: (1) SF-132 to the SF-133; (2) SF-133 to the SBR; (3) budgetary to proprietary

account relationship analysis; (4) net outlays per the Government-wide Accounting (GWA) Account Statement 

Expenditure Activity Report to the SBR; and (5) distributed offsetting receipts per the SBR and general ledger to 

distributed offsetting receipts per Treasury’s Quarterly Distributed Offsetting Receipts by Department Report

(Department Report). While these reconciliations were performed in prior years, the OCFO informed us that the 

reconciliations would not be provided for the second and third quarters of FY 2010 because the OCFO staff 

needed to focus its efforts on resolving issues related to the implementation of NCFMS. Because the OCFO did 

not perform these reconciliations, we identified the following differences as of June 30, 2010:

• Spending Authority from Offsetting Collections: Expenditure Transfers from Trust Funds Collected, 

Anticipated reported on the SF-133 and in the general ledger was overstated by $563 million. 

SF-132 to the SF-133

• Temporarily not Available Pursuant to Public Law was overstated and total budgetary resources reported on 

the SF-133 and in the general ledger were understated by $485.3 million. 

• Appropriation Actual reported on the SF-133 and in the general ledger was overstated by $11.95 billion 

while Appropriation Anticipated was understated by $22.45 billion.

These misstatements were corrected in the general ledger for the year ended September 30, 2010.

• Unobligated Balance Brought Forward, October 1, reported on the SBR exceeded the amounts reported on

both the SF-133 and the general ledger by $14.3 billion.

SF-133 to the SBR

• Appropriation: Borrowing Authority reported on the SBR and in the general ledger exceeded the amounts 

reported on the SF-133 by $11 billion.
Financial Section

Material Weaknesses

Exhibit I

44 United States Department of Labor

• Nonexpenditure Transfers, Net reported on the SBR was less than the amount report on the SF-133 by $28.8 

billion.

• Total Budgetary Resources reported on the SBR exceeded the amount reported on the SF-133 by $6 billion.

• Obligations Incurred reported on the SBR exceeded the amount reported on the SF-133 by $18.8 billion.

• Net Outlays reported on the SBR exceeded the amount reported on the SF-133 by $3 billion.

These misstatements were corrected in the general ledger for the year ended September 30, 2010. 

We identified numerous differences between budgetary and proprietary accounts during our account relationship 

analysis as of June 30, 2010. Specifically, we identified material differences between budgetary and proprietary 

accounts related to fund balance with Treasury, accounts receivable, accounts payable, expenses, expended 

appropriations, unexpended appropriations, and revenue. These differences ranged from $1.6 billion to $14.8 

billion. We also performed the account relationship analysis as of September 30, 2010. While we identified 

fewer differences at year end, we did note several differences related to expended appropriations, unexpended 

appropriations, accounts payable, expenses, and revenue. These differences ranged from $482 million to $3.2 

billion. These differences were resolved in the final FY 2010 financial statements. 

Budgetary to Proprietary Account Relationship Analysis

During our March 31, 2010 testing, we noted that distributed offsetting receipts reported on the SBR did not 

agree to Treasury’s Department Report. The amount reported on the SBR was understated by approximately 

$43.8 billion. DOL subsequently corrected the discrepancy in its June 30, 2010 SBR. However, we identified 

that the distributed offsetting receipts reported on the SBR as of June 30, 2010, did not agree to the general 

ledger. When we compared the distributed offsetting receipts recorded in the general ledger to Treasury’s 

Department Report as of June 30, 2010, we noted that the general ledger was understated by $11.4 billion. This 

misstatement was corrected as of September 30, 2010.

Distributed Offsetting Receipts

Nonexpenditure Transfers: During our testing, we identified that nonexpenditure transfers in the amount of 

$12.5 billion were recorded twice in the general ledger related to the Appropriations Received issue discussed in 

the Budgetary Resources section above. Furthermore, because the transfer was from a general fund to UTF, it 

was not compliant with OMB Circular No. A-11, Preparation, Submission, and Execution of the Budget, or the 

USSGL. This misstatement was corrected as of September 30, 2010. 

In addition, we identified a nonexpenditure transfer in the amount of $16.6 billion that was incorrectly recorded 

in the general ledger as Transfers – Current-Year Authority instead of Amounts Appropriated from Specific 

Invested TAFS – Transfer-Out. As a result, Nonexpenditure Transfers, Net was understated and Actual 

Appropriation was overstated by $16.6 billion as of June 30, 2010. The error also resulted in noncompliance 

with the USSGL at the transactional level. This error occurred because the OCFO did not have policies and 

procedures in place regarding how to properly record UTF repayable advances. An on-top adjustment was 

recorded to the year-end financial statements to correct this issue.

We also identified 17 nonexpenditure transfers that were recorded in the general ledger but were not supported 

by a Non Expenditure Transfer Authorization (FMS 1151). This resulted in Nonexpenditure Transfers, Net being 

overstated by $337 million as of June 30, 2010. We submitted follow-up questions to DOL to determine the 

cause of these discrepancies but did not receive a response to our inquiry. A $249 million adjustment was 

subsequently recorded in the general ledger to partially correct this error as of September 30, 2010. 

Budgetary Entries for Multi-year and No-Year Funds: DOL did not record certain apportionments approved by 

OMB for multi-year and no-year funds. Our procedures disclosed eight instances where an apportionment 

approved by OMB was not recorded in the general ledger during the first quarter of FY 2010 because DOL had
Independent Auditors’ Report

Material Weaknesses

Exhibit I

FY 2010 Agency Financial Report 45

not developed policies and procedures for this activity. This resulted in Unobligated Balances Available being 

understated by approximately $1.5 billion as of December 31, 2009. This misstatement was corrected as of 

September 30, 2010.

Obligations and Fund Control: Certain contracts and obligations were not migrated from DOLAR$ or were 

migrated with incorrect identifying information. As a result, several agencies reported concerns regarding the 

accuracy of the balances associated with their unliquidated and unpaid obligations, which adversely affected their 

ability to monitor and control their budgets. In addition, the posting logic contained within NCFMS prevented 

the reconciliation of paid and unpaid obligations from the purchasing and payables modules.

Furthermore, quarterly reviews of UDOs to determine whether any UDO balances required deobligation were not 

performed during the fiscal year. Because of resource constraints and competing priorities related to NCFMS 

implementation issues, the OCFO did not have sufficient resources to implement formal processes for the 

quarterly reviews. Without effective controls to monitor the status of UDOs and deobligate remaining funds 

timely, UDOs may be overstated. 

In addition, we performed an analysis over DOL’s obligations as of June 30, 2010. Specifically, we compared 

the amount of obligations incurred reported on the SF-133s to the total amount available to obligate on the SF132s. Based on our review, we determined that the amount of obligations incurred exceeded total funds available 

by $9.7 billion, raising a question about compliance with the Anti-deficiency Act. We submitted the results of our 

analysis to OCFO personnel and asked them to investigate and identify the causes of these discrepancies. OCFO 

personnel provided sufficient evidence in March 2011 that these discrepancies were not instances of 

noncompliance with the Anti-deficiency Act.

Additionally, we initially could not perform the same comparison as of September 30, 2010 because DOL did not 

submit the final FY 2010 SF-133s to us as of November 15, 2010. Once DOL submitted the final FY 2010 SF133s, we performed a similar analysis as of September 30, 2010 and determined that the amount of obligations 

incurred exceeded total funds available by $562,000. However, OCFO personnel provided evidence in April 

2011 that this discrepancy was not an instance of noncompliance with the Anti-deficiency Act. 

Reconciliation of the SBR and the Budget of the United States Government: The balances reported in the 

initial reconciliation to the Budget of the United States Government related to Budgetary Resources, Obligations

Incurred, and Net Outlays as of September 30, 2009, did not agree to the underlying supporting documentation. 

The differences were caused by the improper exclusion of amounts related to the Black Lung Disability Trust 

Fund refinancing from the Budget of the United States Government line item. As a result, DOL improperly 

presented a reconciling difference between the SBR and the Budget of the United States Government of $6.5 

billion for each of the three aforementioned categories. We communicated the error to DOL, and it was 

subsequently resolved in the revised reconciliation. The error occurred because DOL did not perform an 

adequate review of the reconciliation prior to submitting it to us. 

USSGL Compliance: In addition to certain issues noted above, we identified the following budgetary 

transactions that were not recorded in compliance with the USSGL. 

• DOL did not properly record the post-closing budgetary entries for unobligated balances related to unexpired 

multi-year funds at the end of FY 2009. While this error had no financial statement impact as both of the 

accounts affected were properly reported as Unobligated Balance Not Available in the FY 2009 consolidated 

financial statements, it did result in noncompliance with the USSGL at the transactional level that continued 

in FY 2010. This misstatement, which was subsequently corrected as of June 30, 2010, occurred because 

DOL did not develop policies and procedures for recording such entries. Additionally, the preparer of the 

entries did not have the technical accounting proficiency needed to properly record the entries, and the 
Financial Section

Material Weaknesses

Exhibit I

46 United States Department of Labor

entries were not properly reviewed by someone other than the preparer prior to recording them in the general 

ledger.

• Budgetary and proprietary entries were not recorded simultaneously for economic events related to the 

enactment of an appropriation or budget authority. On average, the entries we identified were recorded 10 

days apart, but we identified several transactions that were recorded 60 days or more apart. The budget and 

proprietary entries were not recorded simultaneously because they were recorded by two separate agencies 

that did not coordinate accordingly. 

• Appropriated receipts from trust funds in the amount of $599 million were improperly recorded in the 

general ledger as Other Appropriations Realized instead of Appropriated Trust or Special Fund Receipts as 

of September 30, 2010. The entries to record the appropriated receipts were not properly reviewed by 

someone other than the preparer prior to recording them in the general ledger. This misstatement was 

subsequently corrected through a post-closing journal entry.

The Standards state:

• “Internal control and all transactions and other significant events need to be clearly documented, and the 

documentation should be readily available.”

• “Internal control should generally be designed to assure that ongoing monitoring occurs in the course of 

normal operations. It is performed continually and is ingrained in the agency’s operations. It includes regular 

management and supervisory activities, comparisons, reconciliations, and other actions people take in 

performing their duties.”

• “Transactions should be promptly recorded to maintain their relevance and value to management in 

controlling operations and making decisions. This applies to the entire process or life cycle of a transaction 

or event from the initiation and authorization through its final classification in summary records. In addition, 

control activities help to ensure that all transactions are completely and accurately recorded.”

• “Control activities occur at all levels and functions of the entity. They include a wide range of diverse 

activities such as approvals, authorizations, verifications, reconciliations, performance reviews, maintenance 

of security, and the creation and maintenance of related records which provide evidence of execution of these 

activities as well as appropriate documentation.”

• “The documentation should appear in management directives, administrative policies, or operating manuals 

and may be in paper or electronic form. All documentation and records should be properly managed and 

maintained.”

According to OMB Circular No. A-136, section II.4.6.1, "... Information on the SBR should be reconcilable to 

the budget execution information reported on the SF 133 Report on Budget Execution and Budgetary Resources 

and with information reported in the Budget of the United States Government to ensure the integrity of the 

numbers presented. The SBR is an agency-wide report, which aggregates account-level information reported in 

the SF 133 ..."

OMB Circular No. A-136, section II.4.9.35 states, “Identify and explain material differences between amounts 

reported in the SBR and the actual amounts reported in the Budget of the United States Government as required 

by SFFAS No. 7. Since the financial statements are now published before the Budget, this reconciliation will be 

based on the prior year’s SBR and actual amounts for that year in the most recently published Budget.”

OMB Circular No. A-11 states, “... Nonexpenditure transfers are limited to transactions in which both accounts 

are within the same fund group (i.e., trust-to-trust or Federal-to-Federal).”

OMB Circular No. A-11 also states, “The Antideficiency Act 665(a), No officer or employee or the United States 

shall make or authorize any expenditure from or create or authorize an obligation under any appropriations or 

fund in excess of the amount available therein:..”
Independent Auditors’ Report

Material Weaknesses

Exhibit I

FY 2010 Agency Financial Report 47

OMB Circular No. A-11 states, “You need to adjust the spending authority from cash collections if the account is 

authorized to perform reimbursable work for another Federal account and you incur obligations against 

receivables from Federal sources and unfilled customer orders from Federal sources without an advance—that is, 

before receiving the cash. The law allows you to incur such obligations as long as the paying account is a Federal 

account and an obligation is recorded against resources available to the paying account. For example, a financing 

account can obligate against a subsidy accounts receivable from the program account before the cash is received 

from the program account if the program account has recorded an obligation in the form of a subsidy accounts 

payable to the financing account. (You cannot incur obligations against customer orders received from nonFederal sources without an advance, unless a law specifically allows it.)”

The USSGL contains the chart of accounts that provides the basic accounting structure for Federal agencies’ 

general ledger systems. It incorporates both proprietary and budgetary accounts. It also provides the accounting 

transactions for events occurring throughout the Federal Government. These transactions illustrate the proper 

proprietary and budgetary entries for each accounting event.

To address the issues noted above, the Chief Financial Officer should ensure that (a) policies and procedures over 

the SF-132 and SF-133 reconciliations are enhanced to address the minimum documentation requirements 

needed to substantiate that identified differences were properly researched and resolved; (b) individuals 

performing supervisory reviews are required to check the reconciliations for appropriate supporting 

documentation; (c) adequate resources are in place to complete all necessary reconciliations timely and to 

maintain adequate internal controls over financial reporting, both while NCFMS implementation issues are being 

resolved and for all periods thereafter; (d) procedures are implemented to periodically obtain and review the 

results of the agencies’ review of their unliquidated obligations and ensure expired and invalid UDOs are

deobligated timely in the general ledger either by the agency or OCFO; (e) appropriate corrective actions are 

performed to ensure that the identifying information and balances for obligations are correct, and that the posting 

logic in NCFMS is properly configured; (f) preparers of budgetary entries are properly trained and possess the 

technical accounting proficiencies needed to properly record the entries; (g) one agency is responsible for 

recording both the budgetary and proprietary journal entries for economic events, or if separate agencies continue 

to record the entries, that those agencies are appropriately coordinating; and (h) procedures are developed and 

implemented for multi-year and no-year funds to ensure that post-closing entries for unobligated balances are 

properly recorded at year end, and reapportionments are promptly recorded to the general ledger in the 

subsequent year. 

Management’s Response: Management concurs with these recommendations and has initiated appropriate 

corrective action plans. For FY 2010 year-end financial reporting we were able to address all significant issues 

and recorded adjustments as required. Budgetary accounts were analyzed and adjusted as necessary to ensure 

accurate budgetary reporting. The year-end Statement of Budgetary Resources was extensively reviewed and 

subjected to various analytical procedures. 

Management is also reviewing existing policies and procedures to identify areas that could be strengthened 

within our budgetary accounts reconciliation processes, particularly the SF-132 to SF-133 reconciliation. 

The OCFO fiscal year-end closing checklist includes tasks for unexpired multi-year and no-year funds to ensure 

that post-closing entries for unobligated balances are properly recorded at year end, and that reapportionments 

are promptly recorded to the budgetary subsystem and general ledger. 

The implementation of a new accounting system has required substantial additional resources, and has in some 

instances changed the skill levels necessary to perform routine operational activities. The OCFO is committed to 

providing additional training and support as needed to ensure that budgetary accounts are recorded accurately, 

completely and timely.
Financial Section

Material Weaknesses

Exhibit I

48 United States Department of Labor

Auditor’s Response: Management has provided a corrective action plan to address our recommendations. FY 

2011 audit procedures will determine whether these recommendations have been adequately addressed and can 

be considered closed.

3. Improvements Needed in the Preparation and Review of Journal Entries

During the FY 2006 audit, we noted that accounting staff from all DOL agencies were able to prepare and enter 

journal entries into DOLAR$ without approval. Although the OCFO developed Department-wide manual 

policies and procedures designed to ensure the segregation of journal entry preparation and approval authority in 

the second quarter of FY 2007, which was revised and reissued in the second quarter of FY 2008, the same lack 

of supporting documentation evidencing management review and approval was noted during the FYs 2007, 2008, 

and 2009 audits. 

During the course of the FYs 2006, 2007, 2008, and 2009 audits, we issued several recommendations to the 

OCFO, including the FY 2007 recommendation that management reconfigure DOLAR$ (and its successor 

system) so that journal entries entered into the DOLAR$ general ledger system (and its successor system) are 

required to be approved electronically by an individual other than the preparer before posting. We also 

recommended that:

• Agencies implement manual compensating review controls until system controls have been implemented.

• OCFO management monitor DOL employees’ and agencies’ compliance with DOL-wide policies and 

procedures in place for documenting the review of all journal entries. 

• OCFO management design and implement detective controls that require supervisors to periodically generate 

and review activity reports that list all journal entries posted to DOLAR$.

• OCFO management revise DOL-wide policies and procedures to require that all manual entries, including 

top-side adjustment entries, be documented and reviewed and approved by a supervisor or someone other 

than the preparer before the financial statements are adjusted.

During our FY 2010 audit, we tested a sample of 151 journal entries recorded in DOLAR$ from October 1, 2009,

through December 31, 2009. For 10 of these journal entries, the OCFO did not provide support evidencing that 

they had been properly reviewed by a supervisor or someone other than the preparer before they were posted to 

DOLAR$. Additionally, 20 of these journal entries were not supported by adequate supporting documentation 

(e.g., DL-1280, Miscellaneous Obligations Record, Invoice, or equivalent), which reflected the underlying 

economic transactions. Furthermore, seven of these journal entries were not in accordance with the USSGL.

In addition, we selected a sample of 242 journal entries recorded in NCFMS from January 1, 2010, through June

30, 2010. The OCFO was unable to provide any supporting documentation for 181 of the journal entries 

selected. None of the 61 journal entries tested had sufficient documentation to evidence that the entry was 

properly reviewed by a supervisor or someone other than the preparer prior to being posted. Additionally, 48 of 

these journal entries were not supported by adequate documentation, which prevented us from determining 

whether these journal entries were recorded in the proper period and in accordance with the USSGL.

In addition, we identified that 110 of the 242 journal entries were not prepared and approved by DOL personnel 

within NCFMS, because these entries were directly uploaded into the general ledger by the OCFO’s shared 

service provider (SSP). Of these 110 journal entries, 104 (including 32 of the 61 exceptions noted above) did not 

have documentation to support that they were properly reviewed and approved by a DOL supervisor prior to 

posting. 
Independent Auditors’ Report

Material Weaknesses

Exhibit I

FY 2010 Agency Financial Report 49

By posting transactions to the general ledger without proper review and approval and allowing individuals the

authority to prepare and approve their own transactions, there is an increased risk that a material error would not 

be prevented or detected and corrected in a timely manner. In addition, without adequate supporting 

documentation, management is unable to determine the appropriateness of transactions posted to the general 

ledger.

DOL supervisors did not sufficiently review journal entries to ensure they were properly prepared and supported

before posting to the general ledger. In addition, certain individuals did not follow, or document that they 

followed, DOL policies for the proper segregation of duties related to the preparation and posting of journal 

entries. 

In the case of the journal entries posted by the SSP in Q2 and Q3, the journal entries were not automatically 

routed to the appropriate authorized approver in NCFMS because of system errors, necessitating the posting by 

the SSP. Given time constraints, proper DOL approval of some of these entries was not completed and 

documented.

In addition, DOL did not reconfigure DOLAR$ to provide for electronic approval by an individual other than the 

preparer before posting because of the implementation of NCFMS in January 2010.

The Standards state, “Internal control and all transactions and other significant events need to be clearly 

documented, and the documentation should be readily available for examination. The documentation should 

appear in management directives, administrative policies, or operating manuals and may be in paper or electronic 

form. All documentation and records should be properly managed and maintained.”

The Standards also state that, “Key duties and responsibilities need to be divided or segregated among different 

people to reduce the risk of error or fraud. This should include separating the responsibilities for authorizing 

transactions, processing and recording them, reviewing the transactions, and handling any related assets. No one 

individual should control all key aspects of a transaction or event.”

Furthermore, the Standards state that, “Internal control should generally be designed to assure that ongoing 

monitoring occurs in the course of normal operations. It is performed continually and is ingrained in the agency’s 

operations. It includes regular management and supervisory activities, comparisons, reconciliations, and other 

actions people take in performing their duties.”

Because management has implemented a new general ledger system that requires electronic approval by 

someone other than the preparer before journal entries are posted, the recommendation we made in FY 2007 is 

considered closed. In addition, the recommendations we made in FY 2006 through FY 2009 related to manual 

controls were closed because of the change in the control environment resulting from the new general ledger 

system implementation.

To address the issues identified during FY 2010, we recommend that the Chief Financial Officer (a) evaluate the 

system errors that are preventing certain journal entries from being routed to the approver, and develop and 

implement appropriate corrective action; (b) enhance policies and procedures and provide related training to 

address the minimum documentation requirements needed to sufficiently support journal entries; and (c) develop 

monitoring controls to ensure that supervisors or individuals other than the preparer are performing adequate 

reviews of journal entries and related documentation before the entries are posted to ensure they are properly 

supported. 

Management’s Response: Management generally concurs with the findings and recommendations noted above

and has initiated appropriate corrective actions to address these recommendations. We have revised our policies 
Financial Section

Material Weaknesses

Exhibit I

50 United States Department of Labor

covering the preparation and approval of journal entries and the required supporting documentation. We have 

also provided training to staff preparing journal entries. 

Management does not agree that journal entries directly uploaded by the OCFO SSP were not prepared, properly 

reviewed, and approved by authorized personnel and/or DOL supervisors prior to posting in NCFMS. 

Management considers vendor responsibilities with regard to manual JVs to include the upload and transfer of 

JVs to the general ledger as part of the SSP services provided. Systematic controls inherent to the NCFMS 

system are designed to ensure management review and approval of all data changes to journal vouchers prior to 

posting.

Auditor Response: Management has provided a corrective action plan to address our recommendations. FY 

2011 audit procedures will determine whether these recommendations have been adequately addressed and can 

be considered closed.

4. Lack of Adequate Controls over Access to Key Financial and Support Systems

In FY 2006 through FY 2009, we reported a significant deficiency relating to the lack of adequate controls over 

access to key financial and support systems.

We recommended that the Chief Information Officer (a) coordinate efforts among the DOL agencies to develop 

and/or enforce procedures and controls to address access control weaknesses in current financial management 

systems; (b) monitor the agencies’ progress to ensure that procedures and controls are appropriately implemented 

and maintained; and (c) ensure that sufficient resources are available to develop, implement, and monitor the 

procedures and controls that address control weaknesses.

In FY 2010, DOL agencies were able to complete corrective action to address certain previously-identified 

control weaknesses. However, the results of our FY 2010 testing of DOL’s information technology (IT) systems 

indicated that access control weaknesses continued to be systemic across various DOL agencies. In our testing, 

we identified new access control weaknesses in addition to access control weaknesses that were reported in prior 

years. 

We have classified the weaknesses identified into the following three categories: account management, system 

access settings, and system audit log reviews. The first two categories summarize those weaknesses identified 

related to controls that are designed to help prevent unauthorized access to IT systems. The specific weaknesses 

identified in these two categories were as follows: 

Account Management 

• Account management controls were not performed, evidenced by incomplete or missing access requests, 

non-disclosure agreements, modification forms, and termination forms;

• Certain user accounts were granted more privileges than what was requested on their access request 

forms;

• User accounts were not timely removed for separated users. Certain separated users had active system 

accounts, and in some cases, separated users accessed systems after their separation dates;

• Certain system account access was not properly restricted to those with a need-to-know;

• Periodic user account reviews or re-certifications were not appropriately performed;

• Procedures requiring periodic review of data center access were not updated;

• Generic accounts existed on a system without a proper business justification for approximately half of 

the fiscal year;

• Multiple user accounts existed for the same user; and
Independent Auditors’ Report

Material Weaknesses

Exhibit I

FY 2010 Agency Financial Report 51

• Incidents were not timely reported.

System Access Settings 

• Unnecessary services were not disabled;

• Servers were not configured to the most appropriate settings;

• Inactive accounts were not disabled in a timely manner; and

• Password settings and remote session timeouts did not comply with the Office of the Chief Information 

Officer Computer Security Handbook.

The account management access control weaknesses increase the risk that current employees, separated 

employees, and/or contractors may obtain unauthorized or inappropriate access to financial systems and/or data. 

Such access could lead to unauthorized activities and/or inappropriate disclosures of sensitive data. Additionally, 

system access setting weaknesses may be exploited, in either a singular fashion or in combination, by a malicious 

user, which may affect the confidentiality, integrity, and/or availability of DOL systems and data. 

The system audit logs review category represents controls designed to detect unauthorized access to IT systems. 

Although DOL has certain detective controls in place to mitigate the aforementioned risks, we also identified 

certain weaknesses in those controls, as follows:

System Audit Logs Review 

• Certain system administrator activities were not properly logged;

• Audit logs monitoring user and administrator activity, changes to security profiles, remote access logs, 

access to sensitive directories, and failed login attempts were not reviewed, or documentation of audit 

log reviews was not maintained;

• Audit logs monitoring firewall and Intrusion Detection System activity were not reviewed; and

• Application-level audit logs (e.g., high risk transactions) were not proactively reviewed.

The lack of system audit log reviews may allow for unauthorized or inappropriate activities to go undetected by 

management. Collectively, the aforementioned weaknesses pose a significant risk to the integrity of DOL’s data, 

which could ultimately impact its ability to accurately and timely perform its financial reporting duties. The 

specific nature of these weaknesses, their causes, and the systems impacted by them has been communicated 

separately to management.

Additionally, during the second quarter of FY 2010, DOL implemented a new general ledger system, which 

significantly changed its control environment and led to a deterioration of manual compensating controls that had 

historically mitigated certain access control weaknesses. As a result, we consider the recurring prior year access 

control weaknesses coupled with new access control weaknesses identified in our FY 2010 testing of DOL’s IT 

systems a material weakness in the aggregate.

The identified IT control weaknesses were a result of systemic issues in the implementation and monitoring of 

Departmental procedures and controls. DOL agencies have not invested the necessary level of effort and 

resources to ensure that IT policies and procedures are operating effectively.
Financial Section

Material Weaknesses

Exhibit I

52 United States Department of Labor

To address the issues noted above, the Chief Information Officer should (a) coordinate efforts among the DOL 

agencies to develop procedures and controls to address access control weaknesses in current financial 

management systems; (b) monitor the agencies’ progress to ensure that procedures and controls are appropriately 

implemented and maintained; and (c) ensure that sufficient resources are available to develop, implement, and 

monitor the procedures and controls that address access control weaknesses.

Management’s Response: The Office of the Assistant Secretary for Administration and Management (OASAM) 

does not concur with the aggregated material weakness regarding lack of adequate controls over access to key 

financial and support systems. DOL management asserts DOL policies, procedures, and standards collectively 

provide compound safeguards and redundant security measures to ensure the integrity of DOL financial systems. 

The findings, as presented, do not adequately represent the operating environments of the systems audited in a 

holistic manner. The financial systems are physically and logically separated with appropriate supporting 

boundary controls. The segregated environments that host DOL financial applications provide supplemental 

controls aligned to the security best practice concept of defense in depth. The layers of security safeguards 

required to be overcome to successfully exploit access control weaknesses identified in the report suggests that 

the report does not accurately reflect the risk associated with the identified vulnerabilities. 

The diversity and inconsistent distribution of the findings across systems and fiscal years does not support a 

Department-wide systemic access control deficiency, but rather system and agency specific access control 

weaknesses. In FY 2010 64% of the financial system audit findings related to only two agencies and 33% of the 

total were attributed to two individual systems in separate agencies. This distribution of control weakness 

finding supports the need for a focused effort within the offending agencies and systems; however, this does not 

substantiate a Department-wide material weakness. 

A Department-wide comprehensive risk strategy was established to address identified conditions associated with 

the FY 2009 audit findings, and the following milestones were achieved in FY 2010:

• Developed FY 2010 Agency Core Profiles to establish a baseline for overall compliance, including 

access control and configuration management elements; 

• Implemented an Enterprise Risk Management Compliance Program (RMCP) to measure agency 

compliance with security control requirements and Plan of Action and Milestone (POAM) resolution and 

issued Agency Dashboards in March 2011; and

• Successfully resolved of the highest priority FY 2009 configuration management findings for the timely 

application of patches and access restrictions to sensitive files, directories and software. 

Management remains committed to safeguarding DOL financial systems. In FY 2011, Management will 

continue to deploy policies, procedures, and automated tools aimed at strengthening providing continuous 

monitoring of the overall security posture of DOL’s computer security program.

Auditor Response: The details of our FY 2010 IT findings and recommendations were provided to DOL 

management through the established Notification of Findings and Recommendations process. Although we did 

not identify any individual finding as a material weakness, we evaluated the combination of certain findings, in 

accordance with auditing standards generally accepted in the United States of America, to conclude that a 

material weakness does exist, taking into consideration that certain findings, when assessed in aggregate, 

identified deficiencies in both detective and preventive access controls related to one or more financial systems. 

Although management stated that they do not concur with our recommendations, they plan on taking steps to 

address them. FY 2011 audit procedures will determine whether these recommendations have been adequately 

addressed and can be considered closed.
Independent Auditors’ Report

Significant Deficiencies

Exhibit II

FY 2010 Agency Financial Report 53

5. Weakness Noted over Payroll Accounting

During fiscal years (FY) 2006 through 2010, the U.S. Department of Labor (DOL) used the U.S. Department of 

Agriculture’s (USDA) Office of Chief Financial Officer (OCFO)/National Finance Center (NFC) to process its 

payroll. For each pay period, DOL submitted to the NFC payroll information that included all DOL employees 

for the period, along with their hours worked, leave used, and other payroll-related information for the period. 

The NFC processed the payroll for DOL each period and made available for download a Detail Pay and Deduct 

Register report for each DOL Human Resources office. 

In FY 2006, we noted that DOL did not utilize the Detail Pay and Deduct Register reports to perform reviews or 

reconciliations of data processed by the NFC, and no other controls were in place during the year to ensure that 

the information that was submitted to NFC via Time and Attendance records was reconciled to what was shown 

as paid in the Detail Pay and Deduct Register. 

We recommended that management develop and implement policies and procedures to reconcile payroll 

information provided to the NFC to the payroll information processed by the NFC each pay period. These 

reconciliations should be documented, reviewed, approved by an appropriate supervisor, and maintained. 

As part of DOL’s corrective action plan for FY 2007, the OCFO’s PeoplePower Task Force created a Time and 

Attendance Reconciliation Report, and the DOL OCFO issued policies and procedures that stated that each DOL 

Human Resources office should review the Time and Attendance Reconciliation Reports each pay period and 

research and resolve differences identified. No offices that we tested in FY 2007 complied with the new OCFO 

procedures, but two offices that we tested performed their own reconciliation procedures. 

During FY 2008, the OCFO issued revised policies and procedures dated October 23, 2007, requiring a review of 

the Time and Attendance Reconciliation Reports, and implemented these policies and procedures. The OCFO 

also performed monitoring department-wide to ensure that the reviews were completed, documented, and 

approved by an appropriate supervisor, and maintained. However, we noted that the reconciliation tested from 

the Atlanta processing center did not contain a signature to validate the review. In addition, the Time and 

Attendance Reconciliation Reports do not contain a space for the date of the review; therefore, the timeliness of 

the reconciliations and certifications was not verifiable. Furthermore, the policies and procedures issued and the 

related reviews and audits reconciled and certified time and attendance records only. 

In FY 2009, DOL issued revised policies and procedures with an effective date of July 24, 2009, to provide 

guidance on the need for agencies to review payroll-related items other than time and attendance records. In 

addition to the revised policies issued, OCFO management represented that they also implemented a procedure to 

monitor the completion of the reviews of payroll-related items other than time and attendance. Since the revised

policies and procedures were not effective until the last quarter of FY 2009, our testwork focused on the time and 

attendance reconciliation policies that were effective for the first three quarters (i.e., the majority) of FY 2009, 

and we did not test the revised procedures implemented in July 2009. Our test results for the first three quarters 

indicated that insufficient evidence existed to determine that the preparation and review of payroll-related items, 

including time and attendance, were completed. 

In FY 2010, we tested the revised policies and procedures issued by DOL in July 2009. We selected a sample of 

25 reviews of payroll-related items from various agencies for the period of October 1, 2009, to June 30, 2010. 

Although we eventually received all 25 agency reviews selected, they were not provided timely, and DOL did 

not respond to our follow-up questions regarding the information submitted to us. For the 25 Payroll/Time and 

Attendance Reconciliation Reports tested, we identified the following exceptions: 
Financial Section

Significant Deficiencies

Exhibit II

54 United States Department of Labor

• 11 instances where HR offices failed to provide sufficient documentation to support that errors were 

adequately researched and corrective actions were initiated; 

• 14 instances where HR officials did not review the Payroll/Time and Attendance Reconciliation Reports 

and investigate issues timely; and 

• 9 instances where supervisor and HR certifier review and approval of the Payroll/Time & Attendance 

Reconciliation Certification & Review form were not documented.

As a result, we noted insufficient evidence existed to determine that the preparation and review of payroll-related 

items, including time and attendance and gross pay, were completed properly and timely and identified issues 

were resolved. The OCFO policy and procedures issued in July 2009, requiring the responsible HR official to 

review the Payroll/Time and Attendance Reconciliation Reports and investigate issues identified, were not 

adequately enforced by the HR officials’ supervisors.

We also noted that the OCFO monitoring control for the Payroll/Time and Attendance Reconciliation Reports

was not routinely performed and was not operating effectively. The OCFO’s failure to adequately monitor 

compliance with the July 2009 policy and procedures was partially attributed to the decentralized HR 

organization within DOL. As a result of the organizational structure, the OCFO had difficulty obtaining the 

needed documentation to monitor that the Payroll/Time and Attendance Reconciliation Reports were being 

properly completed, in a timely fashion, and adequately reviewed. 

Although the Payroll/Time and Attendance Reconciliation Reports had been updated to include hourly pay and 

total earnings, the reports continued to lack sufficient details, such as employee and employer withholdings, to 

arrive at an employee’s net pay and total benefits expense. These reports were not properly designed to contain 

the information needed to ensure that errors in all relevant payroll-related items were identified and resolved 

timely as the OCFO did not sufficiently consider all items that should have been addressed in the reconciliation. 

In addition, the last reconciliation of the payroll register provided by the NFC to the general ledger was 

completed as of December 31, 2009. OCFO management represented that they did not have adequate resources 

to resolve New Core Financial Management System (NCFMS) implementation issues and perform payroll 

reconciliations simultaneously. As a result, management has not reconciled the payroll register to the general 

ledger for the majority of FY 2010. 

The lack of compensating reconciliation controls around the NFC compensation outputs increases the risk that 

payroll-related line items may be misstated due to errors in payroll processing by the NFC. In addition, DOL’s 

failure to reconcile the NFC payroll registers to the general ledger since the implementation of NCFMS further 

increases the risk that a payroll-related misstatement would not be detected by management. 

Federal agencies that use external service providers, such as the NFC, should have controls in place to ensure the 

accuracy of processing outputs. As stated by the USDA Office of Inspector General (OIG) in its FY 2010 Report 

No. 11401-33-FM, “The relative effectiveness and significance of specific controls at NFC and their effect on the 

assessments of control risk at customer agencies are dependent on their interaction with the controls and other 

factors present at individual customer agencies.” 

Office of Management and Budget (OMB) Circular No. 123, Management’s Responsibility for Internal Control, 

states, “Application control should be designed to ensure that transactions are properly authorized and processed 

accurately and that the data is valid and complete. Controls should be established at an application’s interfaces to 

verify inputs and outputs, such as edit checks.” 

Additionally, per the Government Accountability Office’s (GAO) Standards for Internal Control in the Federal 

Government (the Standards), “Internal control should generally be designed to assure that ongoing monitoring 
Independent Auditors’ Report

Significant Deficiencies

Exhibit II

FY 2010 Agency Financial Report 55

occurs in the course of normal operations. It is performed continually and is ingrained in the agency’s operations. 

It includes regular management and supervisory activities, comparisons, reconciliations, and other actions people 

take in performing their duties.” 

To close the prior year recommendation and address the new control weakness identified during FY 2010, the 

Chief Financial Officer should ensure that (a) the Payroll/Time and Attendance Reconciliation Reports are 

properly designed to reflect the necessary payroll-related information to conduct an adequate reconciliation; and 

(b) proper monitoring is routinely completed by the OCFO to ensure that the July 2009 policy and procedures are 

implemented and complied with throughout DOL. 

We recommend that the Director of the Human Resource Center ensure that the OCFO July 2009 policy and 

procedures are properly and consistently implemented, by enforcing the requirements that all payroll-related

reconciliations are documented, reviewed, and approved by an appropriate supervisor, and maintained.

Management’s Response: Management concurs with the recommendations noted above and has initiated 

appropriate corrective actions to address these recommendations. 

Management understands that effective reconciliation controls, including timely preparation of proper 

reconciliations and resolution of differences, will enhance quarterly consolidated financial statements and 

minimize differences between DOL’s general ledger and the NFC-processed payroll data. Likewise, 

management recognizes the importance of accurate information when performing effective reviews of financial 

statements. OCFO management will work with the Director, Human Resource Center and the Office of 

Inspector General to design and implement internal audit procedures to ensure that revised payroll monitoring 

procedures are implemented and consistently applied agency-wide.

Auditor Response: Management has provided a corrective action plan to address our recommendations. FY 

2011 audit procedures will determine whether these recommendations have been adequately addressed and can 

be considered closed.

6. Untimely and Inaccurate Processing of Property, Plant, and Equipment (PP&E) Transactions

Because of the implementation of NCFMS, DOL had to revise its process for recording PP&E transactions in the 

general ledger. As of June 30, 2010, we noted that DOL’s revised process had not been implemented, which 

resulted in the untimely processing of certain PP&E transactions. Specifically, during our testwork over DOL’s 

PP&E balances as of June 30, 2010, we noted the following errors in both the general ledger and the related 

PP&E module:

• Untimely recording of construction-in-progress additions in the amount of $46.8 million;

• Untimely recording of building deletions in the amount of $9.2 million; and

• Untimely recording of transfers to the building account in the amount of $47.1 million.

During July 2010, the OCFO performed an analysis of current year additions and deletions related to the 

construction-in-progress and buildings asset categories, resulting in correcting adjustments being recorded in the 

general ledger via journal entry. However, as of August 31, 2010, an analysis of current year additions and 

deletions to the remaining PP&E asset categories (i.e., other structures and facilities, land, leasehold 

improvements, internal use software, software in development, and equipment) had yet to be performed. As a 

result, certain other additions and deletions may have been omitted from the PP&E module and the related 

general ledger accounts.
Financial Section

Significant Deficiencies

Exhibit II

56 United States Department of Labor

In addition to the issues noted above, we also noted inaccuracies in the calculation of accumulated depreciation 

within the PP&E module. Subsequent to the implementation of NCFMS, the OCFO performed an analysis of the 

accumulated depreciation balances calculated by the newly implemented PP&E module. As a result of this 

analysis, the OCFO determined that the system-calculated balances were overstated by $228.6 million. The 

OCFO elected not to record these balances in the general ledger, but instead utilized the December 31, 2009,

accumulated depreciation balances, which were converted from the prior general ledger for interim financial 

reporting purposes. At year-end, DOL posted a manual adjustment to both the accumulated depreciation and 

current year depreciation expense accounts to record current year activity.

The above misstatements resulted in the net book value of PP&E recorded in the NCFMS general ledger and 

related PP&E module initially being understated by $37.7 million and $266.3 million, respectively. Furthermore, 

the continued inability of DOL to timely and accurately record PP&E additions and deletions, and also to timely 

and accurately calculate accumulated depreciation and depreciation expense, increases the likelihood that PP&E 

will continue to be misstated going forward.

As stated above, DOL implemented a new general ledger system in January 2010. The above issues occurred as 

a result of DOL’s failure to dedicate the resources necessary to implement a formalized process for identifying 

and recording PP&E additions and deletions in NCFMS. Additionally, as of June 30, 2010, the PP&E module

within NCFMS was not configured to accurately calculate either accumulated depreciation balances or current 

year depreciation expense amounts.

Statement of Federal Financial Accounting Standards (SFFAS) No. 6, Accounting for Property, Plant, and 

Equipment, paragraph 34 states that, “PP&E shall be recognized when title passes to the acquiring entity or when 

the PP&E is delivered to the entity or to an agent of the entity. In the case of constructed PP&E, the PP&E shall 

be recorded as construction work in process until it is placed in service, at which time the balance shall be 

transferred to general PP&E.” In addition, paragraph 36 states, “Depreciation expense shall be accumulated in a 

contra asset account—accumulated depreciation.”

The Standards state that, “Transactions should be promptly recorded to maintain their relevance and value to

management in controlling operations and making decisions. This applies to the entire process or life cycle of a 

transaction or event from the initiation and authorization through its final classification in summary records. In 

addition, control activities help to ensure that all transactions are completely and accurately recorded.”

OMB Circular No. A-123 states, “Transactions should be promptly recorded, properly classified, and accounted 

for in order to prepare timely accounts and reliable financial and other reports.” 

We recommend that the Chief Financial Officer (a) dedicate the appropriate resources to implement the 

documented process for identifying and recording PP&E additions and deletions in NCFMS to ensure that these 

transactions are accurately and timely recorded; and (b) configure NCFMS to accurately calculate both 

accumulated depreciation balances and current year depreciation expense amounts.

Management’s Response: Management agrees with the recommendation that the NCFMS needs to be 

configured to record PP&E additions, deletions and depreciation in a timely manner. However, the conditions 

noted above were not caused because the OCFO did not dedicate resources necessary to implement formalized 

processes. Formalized processes for identifying and recording PP&E additions and deletions, and calculating 

depreciation expense, were developed and documented in the NCFMS Acquire to Dispose and Build to Cost user 

manuals. The conditions noted occurred because the NCFMS PP&E subledgers were not properly configured or

working as intended.

As such the NCFMS subledgers and the related amounts noted by the auditor were not used for reporting 

purposes and transactions were recorded directly in the general ledger. OCFO implemented alternative 
Independent Auditors’ Report

Significant Deficiencies

Exhibit II

FY 2010 Agency Financial Report 57

procedures to ensure that PP&E transactions and depreciation expense from migration, on January 1, 2010, 

through September 30, 2010 were properly recorded in the general ledger. The alternative procedures applied 

included:

Construction in Progress

• Determined the status of each construction in progress (CIP) project; 

:

• Analyzed the recorded expenses according to project status and compiled the costs that needed to be 

transferred to either CIP or PP&E in use;

• Analyzed the costs previously recorded as CIP and determined those costs that needed to be transferred 

to either PP&E in use or written-off; 

• Created subsidiary ledgers to provide an audit trail of balances and transactions; and

• Recorded applicable costs in CIP and transferred the accumulated costs of completed projects to PP&E.

• Obtained the list of disposals of land and buildings and compiled the costs of the retired assets by 

inventory number;

PP&E:

• Obtained the data files of DOL property under IOUE custody, compiled the costs of additions and 

dispositions of such property and calculated depreciation expense;

• Analyzed the recorded balance of equipment, compiled the costs of additions and dispositions of 

equipment and calculated depreciation expense for equipment;

• Calculated depreciation expense for all other PP&E;

• Prepared supporting work papers to provide an audit trail of balances and transactions; and

• Record additions, deletions and depreciation expense.

• Analyzed the status of software projects in development for EBSA, ETA and MSHA (other agencies do 

not have major software projects);

Software

• Analyzed the recorded expenses according to the completion status of the projects and compiled the 

costs that needed to be transferred to either software in development or software in use;

• Calculated the DOL labor and overhead costs associated with the software projects in development;

• Calculated depreciation expense for software in use including for those projects that became operational;

• Prepared supporting work papers to provide an audit trail of balances and transactions; and

• Recorded additions, deletions and depreciation expense.

Based on the above procedures, we believe that PP&E balances and depreciation expense are properly stated as 

of September 30, 2010, and for the year then ended. 

As noted above, the OCFO agrees with the audit recommendation and will work to ensure that the NCFMS 

PP&E subledgers are properly configured so that PP&E transactions (additions, deletions and depreciation 

expense) are properly and timely recorded in the general ledger in FY 2011. 

Auditor Response: Management has provided a corrective action plan to address our recommendations. FY 

2011 audit procedures will determine whether these recommendations have been adequately addressed and can 

be considered closed.
Financial Section

Compliance and Other Matters

Exhibit III

58 United States Department of Labor

1. Federal Managers’ Financial Integrity Act of 1982 (FMFIA)

FMFIA requires that agencies establish internal controls and financial systems that provide reasonable assurance that 

the integrity of Federal programs and operations is protected. It requires that the head of the agency provide an 

annual assurance statement about whether the agency has met this requirement.

The U.S. Department of Labor’s (DOL) FY 2010 FMFIA assessment process was not in full compliance with 

FMFIA. Specifically, we noted that DOL was unable to prepare and provide a complete draft of the fiscal year (FY)

2010 FMFIA assurance statement in a timely manner. Furthermore, DOL did not complete and submit the results of 

its FMFIA assessment prior to its receipt of the draft FY 2010 internal control report in October 2010. See Material 

Weakness No. 1 in Exhibit I for further information.

FMFIA paragraph 3 states, “...The head of each executive agency shall, on the basis of an evaluation conducted in 

accordance with guidelines prescribed under paragraph (2) of this subsection, prepare a statement – that the agency’s 

systems of internal accounting and administrative control fully comply with the requirements of paragraph (1)...” In 

addition, per Office of Management and Budget (OMB) Circular No. A-123, Section IV.A, “The agency head's 

assessment of internal control can be performed using a variety of information sources. Management has primary 

responsibility for assessing and monitoring controls, and should use other sources as a supplement to -- not a 

replacement for -- its own judgment.”

We recommend that DOL follow the recommendation provided in Material Weakness No. 1, in Exhibit I, and 

improve its process to ensure compliance with the requirements of FMFIA in FY 2011.

2. Federal Financial Management Improvement Act of 1996 (FFMIA)

Under section 803(a) of FFMIA, DOL’s financial management systems are required to substantially comply with (1) 

Federal financial management systems requirements, (2) applicable Federal accounting standards, and (3) the United 

States Government Standard General Ledger (USSGL) at the transaction level. DOL represented that in accordance 

with the provisions and requirements of FFMIA, the Secretary of Labor determined that DOL’s financial 

management systems were not in substantial compliance with FFMIA as of September 30, 2010. 

As a result of FY 2010 testing, we concluded that DOL did not substantially comply with the requirements of section 

803(a) of FFMIA. Specifically, we noted the following:

• DOL was unable to produce auditable financial statements by the OMB reporting deadline of November 15, 

2010 based on data from its financial accounting and reporting system, and numerous financial reports were not 

available to perform analyses or complete decision making. See Material Weakness No. 1 in Exhibit I for further 

information. 

• Numerous information technology (IT) general and application control weaknesses related to computer security 

were identified as part of the IT testing in FY 2010. These weaknesses impact the IT environments and systems 

in several large DOL agencies. See Material Weakness No. 4 in Exhibit I for further information.

• Several material transactions, such as nonexpenditure transfers, appropriations used, appropriated receipts, 

unexpended appropriations, and the change in actuarial liability, were not recorded in accordance with the 

USSGL. See Material Weakness Nos. 1, 2 and 3 in Exhibit 1. 

• Certain budgetary and proprietary accounts were not in balance as of September 30, 2010. See Material 

Weakness No. 2 in Exhibit 1. 
Independent Auditors’ Report

Compliance and Other Matters

Exhibit III

FY 2010 Agency Financial Report 59

We recommend that DOL follow the recommendations provided in Material Weakness Nos. 1, 2, 3 and 4 in Exhibit 

I, and improve its processes to ensure compliance with FFMIA section 803(a) requirements in FY 2011.

 

Annual Financial Statements 

 

Principal Financial Statements and Notes
Financial Section 

PRINCIPAL FINANCIAL STATEMENTS 

64 United States Department of Labor 

Principal Financial Statements Included in This Report 

The principal financial statements included in this report have been prepared in accordance with the requirements 

of the Chief Financial Officers Act of 1990 (P.L. 101-576), the Government Management Reform Act of 1994 and 

Office of Management and Budget’s (OMB) Circular No. A-136, “Financial Reporting Requirements.” The 

responsibility for the integrity of the financial information included in these statements rests with management of 

the U.S. Department of Labor (DOL). The audit of DOL’s principal financial statements was performed by KPMG LLP. 

The auditors’ report accompanies the principal statements.

The Department’s principal financial statements for fiscal years (FY) 2010 and 2009 consist of the following: 

• The Consolidated Balance Sheet, which presents as of September 30, 2010 and 2009 those resources owned or 

managed by DOL that are available to provide future economic benefits (assets); amounts owed by DOL that will 

require payments from those resources or future resources (liabilities); and residual amounts retained by DOL, 

comprising the difference (net position). 

• The Consolidated Statement of Net Cost, which presents the net cost of DOL operations for the years ended 

September 30, 2010 and 2009. DOL’s net cost of operations includes the gross costs incurred by DOL less any 

exchange revenue earned from DOL activities. Due to the complexity of DOL’s operations, the classification of 

gross cost and exchange revenues by major program and suborganization is presented in Note 15 to the 

consolidated financial statements. 

• The Consolidated Statement of Changes in Net Position, which presents the change in DOL’s net position 

resulting from the net cost of DOL operations, budgetary financing sources other than exchange revenues, and 

other financing sources for the years ended September 30, 2010 and 2009. 

• The Combined Statement of Budgetary Resources, which presents the budgetary resources available to DOL 

during FY 2010 and 2009, the status of these resources at September 30, 2010 and 2009, the change in 

obligated balance during FY 2010 and 2009, and net outlays of budgetary resources for the years ended 

September 30, 2010 and 2009. 

• The Statement of Social Insurance, which presents the net present value of projected cash inflows and cash 

outflows of the Black Lung Disability Trust Fund as of September 30, 2010, 2009, 2008, 2007, and 2006.
Annual Financial Statements 

CONSOLIDATED BALANCE SHEET 

As of September 30, 2010 and 2009 

(Dollars in Thousands) 

FY 2010 Agency Financial Report 65 

2010 2009

ASSETS

Intra-governmental

Funds with U.S. Treasury (Notes 1-C and 2) 12,618,146 $ 14,406,751 $ 

Investments (Notes 1-D and 3) 20,111,346 19,281,093 

Accounts receivable (Notes 1-E and 4) 5,882,371 5,467,497 

Total intra-governmental 39,985,594 37,781,610 

Accounts receivable, net of allowance (Notes 1-E and 4) 2,011,881 1,353,841 

Property, plant and equipment, net

 of accumulated depreciation (Notes 1-F and 5) 1,174,713 1,154,240 

Other

Advances (Notes 1-G and 6) 1,691,098 1,872,192 

Total assets $ 44,184,773 42,840,396 $ 

LIABILITIES AND NET POSITION

Liabilities (Note 1-I)

Intra-governmental

Accounts payable $ 17,983 11,965 $ 

Debt (Notes 1-J and 8) 14,351,967 40,400,725 

Other liabilities (Note 9) 222,511 101,424 

Total intra-governmental 14,471,374 40,635,201 

Accounts payable 1,346,997 1,466,974 

Accrued benefits (Notes 1-K and 10) 5,284,543 4,627,250 

Future workers' compensation benefits (Notes 1-L and 11) 2,075,547 889,259 

Other

Energy employees occupational illness

 compensation benefits (Note 1-M) 12,114,480 8,063,563 

Accrued leave (Note 1-N) 107,311 116,505 

Other liabilities (Note 9) 155,209 150,442 

Total liabilities 29,656,196 61,848,459 

Contingencies (Note 13)

Net position (Note 1-R)

Unexpended appropriations - other funds 10,539,272 10,825,237 

Cumulative results of operations

Earmarked funds (Note 21) 4,562,666 (23,762,133) 

Other funds (859,326) (5,785,202) 

Total net position 14,528,577 (19,008,063) 

Total liabilities and net position $ 44,184,773 42,840,396 $ 

The accompanying notes are an integral part of these statements. 
Financial Section 

CONSOLIDATED STATEMENT OF NET COST 

For the Years Ended September 30, 2010 and 2009 

(Dollars in Thousands) 

66 United States Department of Labor 

2010 2009

NET COST OF OPERATIONS (Notes 1-S and 15)

CROSSCUTTING PROGRAMS

Income maintenance

Gross cost $ 133,351,382 173,153,232 $ 

Less earned revenue (3,780,083) (4,302,214) 

Net program cost 168,851,018 129,571,299

Employment and training

Gross cost 7,205,646 8,420,173 

Less earned revenue (11,439) (11,262) 

Net program cost 7,194,207 8,408,911 

Labor, employment and pension standards

Gross cost 720,836 779,994 

Less earned revenue (8,872) (13,517) 

Net program cost 707,319 771,122 

Worker safety and health

Gross cost 943,808 1,020,139 

Less earned revenue (6,025) (2,750) 

Net program cost 941,058 1,014,114 

OTHER PROGRAMS

Statistics

Gross cost 629,399 694,918 

Less earned revenue (8,321) (13,634) 

Net program cost 621,078 681,284 

COSTS NOT ASSIGNED TO PROGRAMS

Gross cost 96,777 96,580 

Less earned revenue not attributed to programs (9,453) (13,247) 

Net cost not assigned to programs 87,127 83,530 

Net cost of operations $ 179,813,576 $ 139,118,491

The accompanying notes are an integral part of these statements. 
Annual Financial Statements 

CONSOLIDATED STATEMENT OF CHANGES IN NET POSITION 

For the Years Ended September 30, 2010 and 2009 

(Dollars in Thousands) 

FY 2010 Agency Financial Report 67 

Consolidated Consolidated Consolidated Consolidated

Earmarked All Other Consolidated Earmarked All Other Consolidated

Funds Funds Total Funds Funds Total

Cumulative results

 of operations, beginning $ (859,326) 4,562,666 $ 3,703,340 $ 62,052,699 $ (2,908,108) $ 59,144,591 $ 

Adjustments

Change in accounting principle

 (Note 1-B) - - - - (30,268) (30,268)

Beginning balances, as adjusted 4,562,666 (859,326) 3,703,340 62,052,699 (2,938,376) 59,114,323 

Budgetary financing sources

 (Note 1-T)

Appropriations used 99,719,400 - 99,719,400 42,689,532 - 42,689,532 

Non-exchange revenue (Note 16)

Employer taxes 41,060,101 41,060,101 - 35,954,378 35,954,378 - 

Interest 778,939 10 778,949 2,059,807 187 2,059,994 

Assessments 8 - 8 779 - 779 

Reimbursement of 

 unemployment benefits 4,721,275 3,997 4,725,272 2,763,817 - 2,763,817

Total non-exchange revenue 46,560,315 4,015 46,564,330 40,778,002 966 40,778,968 

Transfers without 

 reimbursement (Note 17) 70,525,944 (70,322,150) 203,794 18,514,212 (18,414,660) 99,552 

Other financing sources

 (Note 1-U)

Imputed financing from 

 costs absorbed by others 214 172,840 173,054 170 136,483 136,653 

Transfers without 

 reimbursement (Note 17) 3,507 - 3,507 2,803 - 2,803 

Other (52,950) (48,234) (101,184) - - - 

Total financing sources 117,033,523 29,529,378 146,562,901 59,292,384 24,415,124 83,707,508 

Net cost of operations (145,358,322) (34,455,254) (179,813,576) (116,782,417) (139,118,491) (22,336,074) 

Net change (28,324,799) (4,925,876) (33,250,675) (57,490,033) (55,410,983) 2,079,050 

Cumulative results

 of operations, ending (5,785,202) (23,762,133) (29,547,335) 4,562,666 3,703,340 (859,326) 

Unexpended appropriations,

 beginning 10,825,237 - 10,825,237 8,169,166 - 8,169,166 

Budgetary financing sources

 (Note 1-T)

Appropriations received

 (Note 18-F) 101,266,852 - 101,266,852 35,525,352 - 35,525,352 

Appropriations transferred (214,474) - (214,474) 10,466,238 - 10,466,238 

Appropriations not available (1,618,943) - (1,618,943) (645,987) - (645,987) 

Appropriations used - (99,719,400) (99,719,400) (42,689,532) - (42,689,532) 

Subtotal - (285,965) (285,965) 2,656,071 - 2,656,071 

Unexpended appropriations,

 ending - 10,539,272 10,539,272 10,825,237 - 10,825,237 

Net position $ 4,754,070 (23,762,133) $ (19,008,063) $ 4,562,666 $ 9,965,911 $ 14,528,577 $ 

2010 2009

The accompanying notes are an integral part of these statements.
Financial Section 

COMBINED STATEMENT OF BUDGETARY RESOURCES 

For the Years Ended September 30, 2010 and 2009 

(Dollars in Thousands) 

68 United States Department of Labor 

2010 2009

BUDGETARY RESOURCES

Unobligated balance, brought forward, October 1 4,124,635 $ 4,157,428 $ 

Recoveries of prior year unpaid obligations 162,552 262,069 

Budget authority

Appropriations received (Note 18-F) 227,533,225 167,463,706 

Borrowing authority 14,445,717 29,110,000 

Spending authority from offsetting collections

Earned

Collected 1,860,954 2,973,698 

Change in receivables from Federal sources (20,973) 5,136 

Change in unfilled customer orders

Advance received (23,131) 33,299 

Without advance from Federal sources (822) -

Expenditure transfers from trust funds 5,070,175 5,348,330 

Total budget authority 189,100,712 264,698,602 

Nonexpenditure transfers, net (1,703) (6,382) 

Temporarily not available pursuant to Public Law (38,626) (35,130) 

Permanently not available

Redemption of debt (10,483,557) (3,242,445) 

All other (1,080,459) (1,730,312) 

Total budgetary resources $ 181,919,360 263,968,024 $ 

STATUS OF BUDGETARY RESOURCES

Obligations incurred (Note 18-A)

Direct $ 174,719,690 256,587,422 $ 

Reimbursable 3,075,035 3,189,059 

Total obligations incurred 177,794,725 259,776,481 

Unobligated balances available

Apportioned 3,232,633 3,067,897 

Exempt from apportionment 386,996 301,633 

Total unobligated balances available 3,454,893 3,534,266 

Unobligated balances not available 736,650 590,369 

Total status of budgetary resources $ 181,919,360 263,968,024 $ 

CHANGE IN OBLIGATED BALANCE

Obligated balance, net 

Unpaid obligations, brought forward, October 1 18,216,935 $ 9,363,199 $ 

Less uncollected customer payments from Federal sources, 

 brought forward, October 1 (1,183,351) (2,331,775) 

Total unpaid obligated balance, net 15,885,160 8,179,848 

Obligations incurred, net 177,794,725 259,776,481 

Less gross outlays (168,678,920) (259,382,936) 

Other 150 -

Less recoveries of prior year unpaid obligations, actual (162,552) (262,069) 

Change in uncollected customer payments from Federal sources 420,236 (1,148,424) 

Obligated balance, net, end of period

Unpaid obligations 18,216,935 18,448,078 

Less uncollected customer payments from Federal sources (1,911,539) (2,331,775) 

Total unpaid obligated balance, net, end of period 16,536,539 $ 15,885,160 $ 

NET OUTLAYS

Gross outlays $ 168,678,920 259,382,936 $ 

Less offsetting collections (6,078,853) (8,475,613) 

Less distributed offsetting receipts (76,620,902) (24,625,433) 

Net outlays $ 137,974,634 174,286,421 $ 

The accompanying notes are an integral part of these statements. 
Annual Financial Statements 

STATEMENT OF SOCIAL INSURANCE 

As of September 30, 2010, 2009, 2008, 2007, and 2006 

(Dollars in Thousands) 

FY 2010 Agency Financial Report 69 

2010 2009 2008 2007 2006

BLACK LUNG DISABILITY 

 BENEFIT PROGRAM (Note 1-W)

Actuarial present value of future benefit

 payments during the projection

 period to disabled coal miners

 and dependent survivors 2,125,231 $ 2,170,943 $ 2,139,810 $ 2,450,064 $ 2,722,801 $ 

Present value of estimated future

 administrative costs during 

 the projection period 881,311 984,996 827,437 848,218 831,439 

Actuarial present value of future benefit

 payments and present value of estimated 

 administrative costs during the projection period 3,006,542 3,155,939 2,967,247 3,281,503 3,571,019 

Less the present value of estimated future

 excise tax income during 

 the projection period 8,457,022 8,876,813 8,009,265 7,957,821 7,897,423 

Excess of present value of estimated future

 excise tax income over actuarial present value of 

 future benefit payments and present value of 

 estimated administrative costs during

 the projection period 5,450,480 $ $ 5,720,874 $ 5,042,018 $ 4,615,920 $ 4,386,802

 

Trust fund net position deficit at start 

 of projection period (Note 21) (6,238,612) $ $ (6,320,321) $ (10,439,186) $ (10,027,701) $ (9,604,743)

For the Projection Period Ending September 30, 2040 (Note 1W)

The accompanying notes are an integral part of these statements. 
Financial Section 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

70 United States Department of Labor 

NOTE 1 - SUMMARY OF SIGNIFICANT ACCOUNTING POLICIES 

A. Reporting Entity 

The U.S. Department of Labor (DOL or the Department), a cabinet level agency of the Executive Branch of the United 

States Government, was established in 1913, to promote the welfare of the wage earners of the United States. 

Today the Department’s mission remains the same: to foster, promote and develop the welfare of the job seekers, 

wage earners and retirees of the United States; improve working conditions, advance opportunities for profitable 

employment; and assure work related benefits and rights. 

DOL accomplishes this mission through the execution of its congressionally approved budget, operating in five major 

Federal program areas, under four major budget functions: (i) education, training, employment, and social services; 

(ii) health (occupational health and safety); (iii) income security; and (iv) national defense. DOL is organized into 

major program agencies, which administer the various statutes and programs for which the Department is 

responsible. DOL’s major program agencies and the major programs in which they operate, are shown below. 

1. Major program agencies 

• Employment and Training Administration (ETA) 

• Employment Standards Administration (ESA) 

• Office of Job Corps 

• Occupational Safety and Health Administration (OSHA) 

• Bureau of Labor Statistics (BLS) 

• Mine Safety and Health Administration (MSHA) 

• Employee Benefits Security Administration (EBSA) 

• Veterans’ Employment and Training Services (VETS) 

• Departmental Management 

- Office of the Secretary - Office of the Deputy Secretary

- Office of the Assistant Secretary for ‐ Office of Inspector General 

Administration and Management ‐ Office of the Solicitor 

- Office of the Assistant Secretary for Policy ‐ Office of Public Affairs 

- Women’s Bureau ‐ Office of the Chief Financial Officer 

- Bureau of International Labor Affairs ‐ Office of Disability Employment Policy 

In FY 2010, DOL dissolved ESA and established its four component offices/divisions, the Office of Federal 

Contract Compliance Programs, the Office of Labor‐Management Standards, the Office of Workers’ 

Compensation Programs, and the Wage and Hour Division, as stand-alone agencies reporting directly to the 

Office of the Secretary. Once these four component agencies were reorganized, their funding, previously 

requested under the ESA appropriation, would be requested under separate appropriations for each 

component agency. This reorganization was reflected in DOL’s FY 2011 budget. In FY 2010, funding for 

these component agencies occurred under the ESA appropriation; and consequently, references to ESA are 

retained throughout this report. 

The Consolidated Appropriations Act of 2010 transferred funding for the Office of Job Corps and the Job 

Corps program from Departmental Management to a separate appropriation account under ETA, to better 

coordinate management of the Job Corps program with other employment and training programs managed 

by ETA. However, the Office of Job Corps continues to be reported as a separate major program agency in 

Note 15.
Annual Financial Statements 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

FY 2010 Agency Financial Report 71 

NOTE 1 - SUMMARY OF SIGNIFICANT ACCOUNTING POLICIES - Continued 

A. Reporting Entity - Continued 

1. Major program agencies (continued) 

The Pension Benefit Guaranty Corporation (PBGC), wholly owned by the Federal government under the 

chairmanship of the Secretary of Labor, has been designated by OMB as a separate reporting entity for 

financial statement purposes and has been excluded from these financial statements. 

2. Major programs 

• Income maintenance 

• Employment and training 

• Labor, employment, and pension standards 

• Worker safety and health 

• Statistics 

Note 15 presents earned revenues and expenses by major program agency and by major program. 

3. Fund accounting structure 

DOL’s financial activities are accounted for by Federal account symbol, using individual funds and fund 

accounts within distinct fund types to report to the U.S. Department of the Treasury’s (Treasury), Financial 

Management Services and to OMB. For financial statement purposes, DOL funds are further classified as 

earmarked funds, fiduciary funds and all other funds. DOL’s earmarked funds, fiduciary funds and all other 

funds are discussed below: 

 

Earmarked funds 

Earmarked funds are financed by specifically identified revenues, 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. DOL’s earmarked funds are shown below: 

The Unemployment Trust Fund was established under the authority of Section 904 of the Social Security Act 

of 1935, as amended, to receive, hold, invest, and disburse monies collected under the Federal 

Unemployment Tax Act, as well as state unemployment taxes collected by the states and transferred to the 

Fund, and unemployment taxes collected by the Railroad Retirement Board and transferred to the Fund. 

The Black Lung Disability Trust Fund was established under Part C of the Black Lung Benefits Revenue Act, to 

provide compensation and medical benefits to coal miners who suffer disability due to pneumoconiosis 

(Black Lung disease), and compensation benefits to their dependent survivors for claims filed subsequent to 

June 30, 1973. Claims filed from the origination of the program until June 30, 1973 are paid by the Special 

Benefits for Disabled Coal Miners fund. (See Note 1.A.3 – All other funds.) 
Financial Section 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

72 United States Department of Labor 

NOTE 1 - SUMMARY OF SIGNIFICANT ACCOUNTING POLICIES - Continued 

A. Reporting Entity - Continued 

3. Fund accounting structure - continued 

Earmarked funds - continued 

The Gifts and Bequests Fund uses miscellaneous funds received by gift or bequest to support various 

activities of the Secretary of Labor. 

The Panama Canal Commission Compensation Fund was established to provide for the accumulation of 

funds provided by the Commission to pay the workers compensation obligations of the Panama Canal 

Commission under the Federal Employees’ Compensation Act . 

H-1B Funds provide demonstration grants to regional and local entities to provide technical skills training to 

unemployed and incumbent workers. The funds are supported by fees paid by employers applying for 

foreign workers under the H-1B temporary alien labor certification program authorized by the American 

Competitiveness and Workforce Improvement Act of 1998. 

Fiduciary funds 

Fiduciary funds are used to account for DOL’s fiduciary activities, which involve the collection or receipt and 

subsequent disposition of cash or other assets in which non-Federal entities have an ownership interest 

that the Department must uphold. Fiduciary assets are not assets of DOL or the Federal Government, and 

accordingly, are not recognized on the Department’s balance sheet. The fiduciary assets held by DOL and 

the fiduciary activities related to these assets are disclosed in Note 22 to these financial statements. DOL’s 

fiduciary funds are discussed below.

 The Wage and Hour and Public Contracts Restitution Fund, a deposit fund established by the Fair Labor 

Standards Amendments of 1949, receives deposits from employers assessed by the Department for unpaid 

minimum wages or unpaid overtime compensation owed to employees as a result of labor law violations, 

and pays these wages directly to the affected employees. 

 The Longshore and Harbor Workers’ Compensation Act Trust Fund, established under the authority of the 

Longshore and Harbor Workers’ Compensation Act, provides medical benefits, compensation for lost wages, 

and rehabilitation services for job-related injuries and diseases or death to private sector workers in certain 

maritime and related employment. The Act authorizes the Department to assess insurance carriers on 

behalf of these beneficiaries. 

 The District of Columbia Workmen’s Compensation Act Trust Fund, established under the authority District 

of Columbia Workmen’s Compensation Act, provides compensation and medical payments to District of 

Columbia employees for work-related injuries or death which occurred prior to July 26, 1982. The Act 

authorizes the Department to assess insurance carriers on behalf of these beneficiaries. 
Annual Financial Statements 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

FY 2010 Agency Financial Report 73 

NOTE 1 - SUMMARY OF SIGNIFICANT ACCOUNTING POLICIES - Continued

A. Reporting Entity - Continued 

3. Fund accounting structure - continued 

All other funds 

Salaries and Expenses include appropriated funds which are used to carry out the missions and functions of 

the Department, except where specifically provided for from other Departmental funds. 

Training and Employment Services provides for a flexible, decentralized system of Federal and local 

programs of training and other services for the economically disadvantaged designed to lead to permanent 

gains in employment, through grants to states and Federal programs such as Job Corps, authorized by the 

Workforce Investment Act and the Job Training Partnership Act. 

The Office of Job Corps supports the administration and management of the Job Corps program, which 

helps at-risk youth who need and can benefit from intensive education and training services to become 

more employable, responsible, and productive citizens. The Consolidated Appropriations Act, 2008 

appropriated Job Corps funding directly to the Office of Job Corps in a separate appropriation account 

under a new Federal account symbol as a sub-organization of Departmental Management, Office of the 

Secretary. In FY 2009, under mandate by OMB, all outstanding Job Corps balances under prior year 

appropriations were transferred from ETA to the new appropriation account for the Office of Job Corps 

under Departmental Management. The Consolidated Appropriations Act of 2010 transferred funding for 

the Job Corps program from Departmental Management back to ETA. Funding for the Job Corps program in 

FY 2010 is recorded in a separate appropriation account for the Office of Job Corps under ETA. 

Welfare to Work Jobs provides funding for the activities of the Welfare-to-Work Grants program established 

by the Balanced Budget Act of 1997. The program provides formula grants to States and Federally 

administered competitive grants to other eligible entities to assist welfare recipients in securing lasting 

unsubsidized employment. 

State Unemployment Insurance and Employment Service Operations includes grants to states for 

administering the Unemployment Compensation and Employment Service programs. Unemployment 

Compensation Program provides administrative grants to state agencies which pay unemployment benefits 

to eligible individuals and collect state unemployment taxes from employers. The Employment Service 

Program is a nationwide system providing no-fee employment services to individuals seeking employment 

and to employers seeking workers. Employment Service activities are financed by allotments to states 

distributed under a demographically based funding formula established under the Wagner-Peyser Act, as 

amended. 

Payments to the Unemployment Trust Fund was initiated as a result of amendments to the Emergency 

Unemployment Compensation (EUC) law, which provided general fund financing to the Unemployment 

Trust Fund to pay emergency unemployment benefits and the related administrative costs. This account is 

also used to make general fund reimbursements for benefits and administrative costs incurred under the 

new Emergency Unemployment Compensation program, first enacted in Public Law 110-252, and 

subsequently expanded and extended. Funds are transferred from the account to a receipt account in the 

Unemployment Trust Fund, for transfer to the Trust Fund’s Employment Security Administration Account 

for administrative costs or the Extended Unemployment Compensation Account for benefit costs. 
Financial Section 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

74 United States Department of Labor 

NOTE 1 - SUMMARY OF SIGNIFICANT ACCOUNTING POLICIES - Continued

A. Reporting Entity - Continued 

3. Fund accounting structure - continued 

All other funds - continued 

Advances to the Unemployment Trust Fund and Other Funds provides advances to other accounts within 

the Unemployment Trust Fund to pay unemployment compensation whenever the balances in these 

accounts prove insufficient or whenever reimbursements to certain accounts, as allowed by law, are to be 

made. This account also makes advances to the Federal Unemployment and Benefits Allowances account to 

pay the cost of benefits and services under the Trade Adjustment Assistance for Workers program; and 

provides loans to the Black Lung Disability Trust Fund to make disability payments whenever the fund 

balance proves insufficient. 

Federal Unemployment Benefits and Allowances provides for payment of benefits, training, job search, and 

relocation allowances as authorized by the Trade Act of 1974. 

Community Service Employment for Older Americans provides part time work experience in community 

service activities to unemployed, low income persons aged 55 and over.

The Federal Employees’ Compensation Act Special Benefit Fund provides wage replacement benefits and 

payment for medical services to covered Federal civilian employees injured on the job, Federal employees 

and certain other workers who have incurred a work-related illness or injury, and survivors of employees 

whose death is attributable to a job-related injury. The Fund also provides for vocational rehabilitation of 

injured employees to facilitate their return to work. Under extensions of FECA, benefits are also paid to 

certain groups such as people related to War Hazards, non-Federal law enforcement officers, Job Corps 

enrollees, and certain Federally-supported volunteers. Section 10(h) of the amended Longshore and 

Harbor Workers’ Compensation Act authorized payments from the Special Benefit fund for 50 % of the 

annual increase in benefits for compensation and related benefits for certain pre-1972 Longshore cases.

The Energy Employees Occupational Illness Compensation Fund was established to adjudicate, administer, 

and pay claims for benefits under the Energy Employees Occupational Illness Compensation Program Act of 

2000. The Act authorizes lump sum payments and the reimbursement of medical expenses to employees of 

the Department of Energy (DOE) or of private companies under contract with DOE, who suffer from 

specified diseases as a result of their work in the nuclear weapons industry. The Act also authorizes 

compensation to the survivors of these employees under certain circumstances. The Act was amended by 

the Ronald Reagan National Defense Authorization Act of 2005 to provide coverage to additional claimants. 

Special Benefits for Disabled Coal Miners was established under the Federal Mine Safety and Health Act to 

pay benefits to coal miners disabled from pneumoconiosis and to their widows and certain other 

dependents. Part B of the Act assigned processing of claims filed from the origination of the program until 

June 30, 1973 to the Social Security Administration. Part B claims processing and payment operations were 

transferred to DOL effective October 1, 2003. 

Federal Additional Unemployment Compensation was established under the American Recovery and 

Reinvestment Act of 2009 (Recovery Act) to provide a $25 weekly supplement to the unemployment 

compensation of eligible claimants. 
Annual Financial Statements 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

FY 2010 Agency Financial Report 75 

NOTE 1 - SUMMARY OF SIGNIFICANT ACCOUNTING POLICIES - Continued

A. Reporting Entity - Continued 

3. Fund accounting structure - continued 

All other funds - continued 

 DOL played a key role in the implementation of the Recovery Act, enacted in February 2009. Departmental 

efforts included the provision of worker job training; the payment of extended and expanded 

unemployment benefits to help ease the burden of the recession on workers and employers; and the 

education and assistance of workers and employers regarding expanded access to continued health 

benefits. These efforts were funded under additional Federal account symbols established within existing 

DOL programs, including Training and Employment Services, Office of Job Corps, State Unemployment 

Insurance and Employment Service Operations, and Payments to the Unemployment Trust Fund. 

The Working Capital Fund maintains and operates a program of centralized services in the national office 

and the field. The Fund is paid in advance by the agencies, bureaus, and offices for which centralized 

services are provided, at rates which return the full cost of operations. 

Miscellaneous receipt accounts hold non-entity receipts and accounts receivable from DOL activities which 

by law cannot be deposited into funds under DOL control. The U.S. Department of the Treasury (Treasury) 

automatically transfers all cash balances in these receipt accounts to the general fund of the Treasury at the 

end of each fiscal year. 

Clearing accounts hold monies that belong to DOL, but for which a specific receipt account has not been 

determined. 

Deposit funds account for monies held temporarily by DOL until ownership is determined, or monies held 

by DOL as an agent for others. 

4. Inter-departmental relationships 

DOL and Treasury are jointly responsible for the operations of the Unemployment Trust Fund and the Black 

Lung Disability Trust Fund. DOL is responsible for the administrative oversight and policy direction of the 

programs financed by these trust funds. Treasury acts as custodian over monies deposited into the funds 

and also invests amounts in excess of disbursing requirements in Treasury securities on behalf of DOL. DOL 

consolidates the financial results of the Unemployment Trust Fund and the Black Lung Disability Trust Fund 

into these financial statements. 
Financial Section 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

76 United States Department of Labor 

NOTE 1 - SUMMARY OF SIGNIFICANT ACCOUNTING POLICIES - Continued

B. Basis of Accounting and Presentation 

These consolidated financial statements present the financial position, net cost of operations, changes in net 

position and budgetary resources of the U.S. Department of Labor, and estimated and actuarial projections for 

the Department’s Black Lung social insurance program, in accordance with U.S. generally accepted accounting 

principles and the form and content requirements of OMB Circular No. A 136, “Financial Reporting 

Requirements.” Except as described in the following paragraphs, they have been prepared from the books and 

records of DOL, and include the accounts of all funds under the control of the DOL reporting entity. All interfund balances and transactions have been eliminated, except in the Statement of Budgetary Resources, which is 

presented on a combined basis, as required by OMB Circular No. A-136. 

DOL is a party to allocation transfers with other Federal agencies as both a transferring (parent) entity and a 

receiving (child) entity. Allocation transfers are legal delegations by one department of its authority to obligate 

budget authority and outlay funds to another department. A separate fund account (allocation account) is 

created in the U.S. Treasury as a subset of the parent fund account to track and report allocation transfers. All 

allocation transfers of balances are credited to this account, and subsequent obligations and outlays incurred 

by the child entity on behalf of the parent entity are charged to this allocation account. OMB Circular No. A-136 

requires the parent to report all budgetary and proprietary activity in its financial statements. DOL (parent 

entity) allocates appropriations to the Department of Agriculture and the Department of Interior (child entities) 

to provide funds for youth training programs. Accordingly, all activity for these allocation accounts is included in 

the DOL financial statements. DOL (child entity) receives allocated appropriations from the Environmental 

Protection Agency, the State Department and the Agency for International Development (parent entities). 

Accordingly, all activity for these allocation accounts is excluded from the DOL financial statements and 

reported by the parent agencies. 

Effective for FY 2009, SFFAS 31, "Accounting for Fiduciary Activities” removed fiduciary assets and related 

activities from the proprietary financial statements. The effect on beginning cumulative results of operations in 

FY 2009 of this change in accounting principle is reflected on the Consolidated Statement of Changes in Net 

Position for FY 2009. 

U.S. generally accepted accounting principles encompass both accrual and budgetary transactions. Under 

accrual accounting, revenues are recognized when earned, and expenses are recognized when a liability is 

incurred. Budgetary accounting facilitates compliance with legal constraints on, and controls over, the use of 

federal funds. These consolidated financial statements are different from the financial reports, also prepared by 

DOL pursuant to OMB directives, used to monitor DOL’s use of budgetary resources. 

Throughout these financial statements, assets, liabilities, earned revenue, and costs have been classified 

according to the type of entity with whom the transactions were made. Intra-governmental assets and liabilities 

are those from or to other federal entities. Intra-governmental earned revenue represents collections or 

accruals of revenue from other federal entities, and intra-governmental costs are payments or accruals to other 

federal entities. 
Annual Financial Statements 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

FY 2010 Agency Financial Report 77 

NOTE 1 - SUMMARY OF SIGNIFICANT ACCOUNTING POLICIES - Continued

C. Funds with U.S. Treasury 

DOL’s cash receipts and disbursements are processed by the U.S. Treasury. Funds with U.S. Treasury represent 

obligated and unobligated balances available to finance allowable expenditures and restricted balances, including 

amounts related to expired authority and amounts not available for use by DOL. (See Note 2) 

D. Investments 

The Federal Government does not set aside assets to pay future benefits or other expenditures associated with 

DOL’s earmarked funds. The cash receipts collected from the public for earmarked funds are deposited in the U.S. 

Treasury, which uses the cash for general Government purposes. Interest earning Treasury securities are issued to 

DOL’s earmarked funds as evidence of the receipts. These Treasury securities are assets to DOL and liabilities to the 

U.S. Treasury. Because DOL and the U.S. Treasury are both parts of the Government, these assets and liabilities 

offset each other from the standpoint of the Government as a whole. For this reason, they do not represent an 

asset or a liability in the U.S. Government-wide financial statements. Treasury securities provide DOL with 

authority to draw upon the U.S. Treasury to make future benefit payments or other expenditures. When DOL 

requires redemption of these securities to make expenditures, the Government finances those expenditures out of 

accumulated cash balances, by raising taxes or other receipts, by borrowing from the public or repaying less debt, 

or by curtailing other expenditures, just as the Government finances all other expenditures. 

Balances held in the Unemployment Trust Fund are invested in non-marketable, special issue Treasury securities 

(certificates of indebtedness and bonds) available for purchase exclusively by Federal government agencies and 

trust funds. Special issues are purchased and redeemed at face value (cost), which is equivalent to their net 

carrying value on the Consolidated Balance Sheet. Interest rates and maturity dates vary. 

Balances held in the Panama Canal Commission Compensation Fund are invested in marketable Treasury securities. 

These investments are stated at amortized costs that equal their net carrying value on the Consolidated Balance 

Sheet. Discounts and premiums are amortized using the effective interest method. Interest rates and maturity 

dates vary. Management expects to hold these marketable securities until maturity; therefore, no provision is 

made in the financial statements for unrealized gains or losses. 

Balances held in the Energy Employees Occupational Illness Compensation Fund are invested in non-marketable 

Treasury one day certificates. (See Note 3.) 
Financial Section 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

78 United States Department of Labor 

NOTE 1 - SUMMARY OF SIGNIFICANT ACCOUNTING POLICIES - Continued

E. Accounts Receivable, Net of Allowance 

Accounts receivable consists of intra-governmental amounts due to DOL, as well as amounts due from the public. 

1. Intra-governmental accounts receivable 

The Federal Employees Compensation (FEC) account within the Unemployment Trust Fund provides 

unemployment insurance to eligible Federal workers (UCFE) and ex-service members (UCX). DOL recognizes 

as accounts receivable amounts due from other Federal agencies for unreimbursed UCFE and UCX benefits. 

DOL’s Federal Employees’ Compensation Act (FECA) Special Benefit Fund provides workers’ compensation 

benefits to eligible Federal workers on behalf of other Federal agencies. DOL recognizes as accounts 

receivable amounts due from other Federal agencies to the Special Benefit Fund for unreimbursed FECA 

benefits. 

DOL also has receivables from other Federal agencies for work performed on their behalf under various 

reimbursable agreements. 

2.Accounts receivable due from the public 

DOL recognizes as accounts receivable State unemployment taxes due from covered employers and 

reimbursements of benefits paid on behalf of reimbursable employers. Also recognized as accounts 

receivable are benefit overpayments made by DOL to individuals not entitled to receive the benefit. 

DOL recognizes as accounts receivable amounts due from the public for fines and penalties levied against 

employers by OSHA, MSHA, ESA, and EBSA; and for amounts due from grantees and contractors for grant 

and contract costs disallowed by ETA. 

3.Allowance for doubtful accounts 

Accounts receivable due from the public are stated net of an allowance for uncollectible accounts. The 

allowance is estimated based on an aging of account balances, past collection experience, and an analysis of 

outstanding accounts at year-end. Intra-governmental accounts receivable are considered fully collectible. 

(See Note 4) 

F. Property, Plant and Equipment, Net of Accumulated Depreciation 

The majority of DOL’s property, plant and equipment (PP&E) is general purpose PP&E held by Job Corps centers 

owned and operated by DOL through a network of contractors. Internal use software is considered general purpose 

PP&E. 
Annual Financial Statements 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

FY 2010 Agency Financial Report 79 

NOTE 1 - SUMMARY OF SIGNIFICANT ACCOUNTING POLICIES - Continued

F. Property, Plant and Equipment, Net of Accumulated Depreciation - Continued 

DOL’s capitalization thresholds are displayed in the following table. 

PP&E purchases and additions are stated at cost. Normal repairs and maintenance are charged to expense as 

incurred. PP&E are depreciated over their estimated useful lives using the straight-line method of depreciation. 

Job Corps center construction costs are capitalized as construction-in-progress until completed. Upon completion 

they are reclassified as structures or facilities and depreciated over their estimated useful lives. Leasehold 

improvements made at Job Corps centers and DOL facilities leased from the General Services Administration are 

recorded at cost and amortized over the remaining life of the lease or the useful life of the improvements, 

whichever is shorter, using the straight-line method of amortization. DOL operating leases have one year terms with 

multiple option years. The leases are cancelable by the government upon appropriate notice as specified in the 

lease agreements. Historically, these leases have not been canceled, and DOL has no intention to cancel these 

leases in the near term. 

Internal use software development costs are capitalized as software development in progress until the development 

stage has been completed and successfully tested. Upon completion and testing, software development-in-progress 

costs are reclassified as internal use software and amortized over their estimated useful lives. 

The table below shows the major classes of DOL’s depreciable PP&E, and the depreciation periods used for each 

major classification. (See Note 5) 

 Years 

Structures, facilities and improvements 20 - 50 

Furniture and equipment 2 - 36 

Internal use software 2 - 15 

G. Advances 

DOL advances consist primarily of payments made to State employment security agencies (SESAs) and to grantees 

and contractors to provide for future DOL program expenditures. These advance payments are recorded by DOL as 

an asset, which is reduced when actual expenditures or the accrual of estimated unreported expenditures are 

recorded by DOL. (See Note 6) 

H. Non-entity Assets 

Assets held by DOL which are not available to DOL for obligation are considered non-entity assets. DOL holds nonentity assets for the Railroad Retirement Board and for transfer to the U.S. Treasury. (See Note 7) 

Property classification Prior to FY 1996 FY 1996 through 

FY 2001 

FY 2002 and 

thereafter 

Useful life 

Equipment – WCF > $5,000 > $5,000 >= $50,000 >= 2 years 

Equipment – Non WCF > $5,000 > $25,000 >= $50,000 >= 2 years 

Real Property Purchases or Improvements > $5,000 > $25,000 > $500,000 >= 2 years 

Leasehold Improvements > $5,000 > $25,000 > $500,000 >= 2 years 

Internal Use Software – WCF > $5,000 > $5,000 > $300,000 >= 2 years 

Internal Use Software – Non WCF > $5,000 > $300,000 > $300,000 >= 2 years 
Financial Section 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

80 United States Department of Labor 

NOTE 1 - SUMMARY OF SIGNIFICANT ACCOUNTING POLICIES - Continued

I. Liabilities 

Liabilities represent probable amounts to be paid by DOL as a result of past transactions, and are recognized when 

incurred, regardless of whether there are budgetary resources available to pay them. However, the liquidation of 

these liabilities will consume budgetary resources and cannot be made until available resources have been 

obligated. For financial reporting purposes, DOL’s liabilities are classified as covered or not covered by budgetary 

resources. 

Liabilities are classified as covered by budgetary resources if budgetary resources are available to pay them. 

Liabilities are also considered covered by budgetary resources if they are to be funded by permanent indefinite 

appropriations, which have been enacted and signed into law and are available for use as of the balance sheet date, 

provided that the resources may be apportioned by OMB without further action by the Congress and without a 

contingency having to be met first. Liabilities are classified as not covered by budgetary resources if budgetary 

resources are not available. These classifications differ from budgetary reporting, which categorizes liabilities as 

obligated, consuming budgetary resources, or unobligated, not consuming budgetary resources. Unobligated 

liabilities include those covered liabilities for which available budgetary resources have not been obligated, as well 

as liabilities not covered for which budgetary resources are not available to pay them. (See Note 12) 

J. Debt 

DOL’s debt consisted of the following: 

1.Black Lung Disability Trust Fund borrowings from U.S. Treasury 

The Energy Improvement and Extension Act of 2008 (P.L. 110-343, section 113), enacted October 3, 2008, 

authorized restructuring of the Black Lung Disability Trust Fund (BLDTF) debt by the repayment at market value 

the fund’s outstanding repayable Advances from U.S. Treasury, using the proceeds from borrowings from 

Treasury’s Bureau of Public Debt and a one-time appropriation. In FY 2009, the BLDTF borrowed from Treasury 

$6.496 billion and received a one time appropriation of $6.498 billion; total proceeds from the transactions 

were $12.994 billion, an amount equal to the market value of the outstanding repayable Advances from U.S. 

Treasury at refinancing. The corresponding carrying value of the outstanding advances, including accrued 

interest, was $10.498 billion. The BLDTF recognized a loss of $2.496 billion for the difference between the 

market value as determined by Treasury and the carrying value of the outstanding repayable Advances from 

U.S. Treasury in FY 2009. BLDTF borrowings from Treasury’s Bureau of Public Debt were structured into 32 

discounted instruments with sequential annual September 30th maturities over the 32-year period 2009 

through 2040, bearing interest rates ranging from 1.412% to 4.556%. Interest on each instrument accrues until 

its September 30th maturity date or the instrument’s prepayment, whichever occurs first. In the event that the 

BLDTF cannot repay a discounted instrument when it matures, or make benefit payments or other authorized 

expenditures, the Act authorizes the issuance of one-year discounted instruments to finance these activities. 

There were no additional borrowings in FY 2009. The BLDTF issued additional debt on September 30, 2010 (due 

September 30, 2011) bearing an interest rate of 0.267%. (See Note 8.) 
Annual Financial Statements 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

FY 2010 Agency Financial Report 81 

NOTE 1 - SUMMARY OF SIGNIFICANT ACCOUNTING POLICIES - Continued 

J. Debt - Continued 

2. Unemployment Trust Fund Advances from U.S. Treasury 

Unemployment Trust Fund advances from U.S. Treasury outstanding as of September 30, 2010 and 2009 

represent borrowings from the General Fund of the U.S. Treasury pursuant to the authority of section 1203 

of the Social Security Act (42 USC 1323) and appropriated through P.L. 111-8 (123 Stat. 754), P.L. 111-46 

(123 Stat. 1970), and P.L. 111-117 (123 Stat. 3230) to pay unemployment benefits, when amounts in the 

Unemployment Trust Fund are insufficient to fund these benefits. These repayable advances bear interest 

rates of 3.25% and 3.375% and were computed as the average interest rate, as of the end of the calendar 

month preceding the issuance date of the advance, for all interest bearing obligations of the United States 

then forming the public debt, to the nearest lower one-eighth of 1 %. Interest on the repayable advances is 

due on September 30th of each year. Advances will be repaid by transfers from the Unemployment Trust 

Fund to the General Fund of the Treasury when the Secretary of the Treasury, in consultation with the 

Secretary of Labor, has determined that the balances in the Unemployment Trust Fund allow repayment. 

(See Note 8.)

K. Accrued Benefits 

The financial statements include a liability for unemployment, workers’ compensation, and disability benefits due 

and payable from various DOL funds, as discussed below. (See Note 10.) 

1. Unemployment benefits payable 

The Unemployment Trust Fund provides benefits to unemployed workers who meet State and Federal 

eligibility requirements. Regular and extended unemployment benefits are paid from State accounts within 

the Unemployment Trust Fund, financed primarily by a State unemployment tax on employer payrolls. Fifty 

percent of the cost of extended unemployment benefits is paid from the Extended Unemployment 

Compensation Account (EUCA) within the Unemployment Trust Fund, financed by a Federal unemployment 

tax on employer payrolls. The Recovery Act provided for a 100% Federal funding of extended benefits 

through December 2009. This 100% Federal funding provision has been extended several times until 

January 4, 2012. 

Emergency unemployment compensation benefits, first authorized by the Supplemental Appropriations Act 

of 2008, and financed by Federal unemployment taxes paid from EUCA, were extended by the Recovery Act 

through December 2009, and funded entirely from Treasury General Fund revenues, which the Recovery Act 

appropriated. Emergency unemployment compensation benefits have been extended several times until 

January 3, 2012. 

The Recovery Act also provided for Federal Additional Unemployment Compensation (FAUC), a $25 weekly 

supplement entirely funded from Treasury General Fund revenues, payable through December 2009 to 

individuals who are entitled under state law to otherwise receive any type of unemployment compensation. 

FAUC benefits were extended three times after the expiration of the Recovery Act in May 2010, with phase 

out through December 2010. 

 
Financial Section 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

82 United States Department of Labor 

NOTE 1 - SUMMARY OF SIGNIFICANT ACCOUNTING POLICIES – Continued 

K. Accrued Benefits - Continued 

1. Unemployment benefits payable – (continued) 

 

Unemployment benefits to unemployed Federal workers are paid from the Federal Employment 

Compensation Account within the Unemployment Trust Fund, which is then reimbursed by the responsible 

Federal agency. 

A liability is recognized for unpaid unemployment benefits applicable to the current period and for benefits 

paid by states that have not been reimbursed by the fund. DOL also recognizes a liability for Federal 

employees’ unemployment benefits to the extent of unpaid benefits for existing claims filed during the 

current period, payable in the subsequent period, to the extent reimbursed by other Federal entities. 

2. Federal employees disability and 10(h) benefits payable 

The Federal Employees’ Compensation Act Special Benefit Fund provides income and medical cost 

protection to covered Federal civilian employees injured on the job, employees who have incurred a workrelated occupational disease and beneficiaries of employees whose death is attributable to a job-related 

injury or occupational disease. The fund is reimbursed by other Federal agencies for the FECA benefit 

payments made on behalf of their workers. The fund assumes the liability for unreimbursed (nonchargeable) FECA benefits. The fund also provides 50% of the annual cost-of-living adjustments for pre1972 compensation cases under the authority of Section 10(h) of the Longshore and Harbor Workers’ 

Compensation Act and the District of Columbia Workmen’s Compensation Act. A liability for FECA benefits 

payable by the Special Benefit Fund to the employees of DOL and other Federal agencies and for 10(h) 

benefits is accrued to the extent of unpaid benefits applicable to the current period. 

3. Black lung disability benefits payable 

The Black Lung Disability Trust Fund and Special Benefits for Disabled Coal Miners provide compensation 

and medical benefits for eligible coal miners who are disabled due to pneumoconiosis (black lung disease). 

DOL recognizes a liability for disability benefits to the extent of unpaid benefits applicable to the current 

period. 

4. Energy employees occupational illness compensation benefits payable 

The Energy Employees Occupational Illness Compensation Fund provides benefits to eligible current or 

former employees of the Department of Energy (DOE) and its contractors suffering from designated illnesses 

incurred as a result of their work with DOE. Benefits are also paid to certain survivors of those employees 

and contractors, as well as to certain beneficiaries of the Radiation Exposure Compensation Act (RECA). DOL 

recognizes a liability for disability benefits to the extent of unpaid benefits applicable to the current period.
Annual Financial Statements 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

FY 2010 Agency Financial Report 83 

NOTE 1 - SUMMARY OF SIGNIFICANT ACCOUNTING POLICIES – Continued 

L. Future Workers’ Compensation Benefits 

The financial statements include an actuarial liability for future workers’ compensation benefits payable by DOL to 

its employees, to employees of the Panama Canal Commission and to enrollees of the Job Corps, as well as benefits 

not chargeable to other Federal agencies, which must be paid by DOL’s Federal Employees’ Compensation Act 

Special Benefit Fund. The liability includes the expected payments for death, disability, medical, and miscellaneous 

costs for approved compensation cases, as well as a component for incurred but not reported claims. The liability is 

determined using historical benefit payment patterns related to injury years to predict the ultimate payments. 

The actuarial methodology provides for the effects of inflation and adjusts historical payments to current year 

constant dollars by applying wage inflation factors (cost of living adjustments or COLAs) and medical inflation factors 

(consumer price index-medical or CPIMs) to the calculation of projected benefits. The COLAs and CPIMs used in the 

projections for FY 2010 and FY 2009 were as follows: 

 COLA CPIM 

 FY 2010 2009 2010 2009 

 

2010 N/A 0.47% N/A 3.42% 

2011 2.23% 1.40% 3.45% 3.29% 

2012 1.13% 1.50% 3.43% 3.48% 

2013 1.70% 1.80% 3.64% 3.71% 

2014 1.90% 2.00% 3.66% 3.71% 

2015+ 1.93% 2.00% 3.73% 3.71% 

Projected annual payments were discounted to present value based on OMB’s interest rate assumptions for ten year 

Treasury notes. For 2010, interest rate assumptions were 3.653% in year one and 4.300% in year two and 

thereafter. For 2009, interest rate assumptions were 4.223% in year one and 4.715% in year two and thereafter. 

(See Note 11.) 

M. Energy Employees Occupational Illness Compensation Benefits 

The Energy Employees Occupational Illness Compensation Fund, established under the authority of the Energy 

Employees Occupational Illness Compensation Program Act of 2000 (EEOICPA), provides benefits to eligible current 

or former employees of DOE and its contractors, or to certain survivors of those employees and contractors, as well 

as benefits to certain beneficiaries of RECA. DOL is responsible for adjudicating and administering claims filed under 

the EEOICPA. Effective July 31, 2001, compensation of $150,000 and payment of medical expenses from the date a 

claim is filed are available to covered individuals suffering from designated illnesses incurred as a result of their work 

with DOE. Prior to October 2004, compensation of $50,000 and payment of medical expenses from the date a claim 

is filed are available to individuals eligible for compensation under RECA. As a result of the October 2004 changes, 

new RECA cases are paid the full $150,000 under EEOICPA. 

The Ronald Reagan National Defense Authorization Act of 2005 amended EEOICPA to include Subtitle E – 

Contractor Employee Compensation. This amendment replaces Part D of the EEOICPA, which provided assistance 

from DOE in obtaining state workers’ compensation benefits. The amended program grants workers’ 

compensation benefits to covered employees and their families for illness and death arising from exposure to toxic 
Financial Section 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

84 United States Department of Labor 

NOTE 1 - SUMMARY OF SIGNIFICANT ACCOUNTING POLICIES – Continued 

M. Energy Employees Occupational Illness Compensation Benefits - Continued 

substances at a DOE facility. The amendment also makes it possible for uranium workers as defined under Section 

5 of RECA to receive compensation under Part E for illnesses due to toxic substance exposure at a uranium mine or 

mill covered under that Act. These claims were formerly paid by the Department of Justice (DOJ). 

DOL has recognized a $12.114 billion and $8.064 billion actuarial liability for estimated future benefits payable by 

DOL at September 30, 2010 and 2009, respectively, to eligible individuals under the EEOICPA. At September 30, 

2010 the undiscounted liability is $19.805 billion discounted to a present value liability of $12.114 billion based on 

an interest rate of 4.30% projected over a 51 year period. The present value liability increased significantly at 

September 30, 2010 due to increased cancer Special Exposure Cohort (SEC) claims, higher medical costs and a lower 

discount rate. At September 30, 2009, the undiscounted liability is $12.759 billion discounted to a present value 

liability of $8.064 billion based on an interest rate 4.715% projected over a 52 year period. The estimated liability 

includes the expected lump sum and estimated medical payments for approved compensation cases and cases filed 

pending approval, as well as claims incurred but not yet filed. The actuarial projection methodology provided an 

estimate of the ultimate number of reported cases as a result of estimating future claims from the historical 

patterns of reported claims and subsequent claim approval rates. Medical payments were derived by estimating an 

average benefit award per living employee claimant. 

N. Accrued Leave 

A liability for annual and compensatory leave is accrued as leave is earned and paid when leave is taken. The 

balance of leave earned but not taken will be paid from future funding sources. Sick leave and other types of nonvested leave are expensed as taken. 

O. Employee Health and Life Insurance Benefits 

DOL employees are eligible to participate in the contributory Federal Employees Health Benefit Program (FEHBP) 

and the Federal Employees Group Life Insurance Program (FEGLIP). DOL matches the employee contributions to 

each program to pay for current benefits. During 2010, DOL’s contributions to the FEHBP and FEGLIP were $91.3 

million and $2.3 million, respectively. During 2009, DOL’s contributions to the FEHBP and FEGLIP were $82.5 million 

and $2.2 million, respectively. These contributions are recognized as current operating expenses. 

P. Other Retirement Benefits 

DOL employees eligible to participate in the FEHBP and the FEGLIP may continue to participate in these programs 

after their retirement. DOL recognizes a current operating expense for the future cost of these other retirement 

benefits (ORB) at the time the employee’s services are rendered. This ORB expense must be financed by OPM. 

Using cost factors supplied by OPM, DOL recorded ORB imputed costs and imputed financing sources of $107.8 

million in 2010 and $97.5 million in 2009.
Annual Financial Statements 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

FY 2010 Agency Financial Report 85 

NOTE 1 - SUMMARY OF SIGNIFICANT ACCOUNTING POLICIES - Continued 

Q. Employee Pension Benefits 

DOL employees participate in either the Civil Service Retirement System (CSRS) or the Federal Employees’ 

Retirement System (FERS). For employees participating in CSRS, 7.0% of their gross earnings is withheld and 

transferred to the Civil Service Retirement and Disability Fund. DOL contributes an additional 7.0% of the employee 

gross earnings to the Civil Service Retirement and Disability Fund. For employees participating in FERS, DOL 

withholds 0.8% of gross earnings and makes an 11.2% employer contribution. This total is transferred to the Federal 

Employees’ Retirement Fund. The CSRS and FERS retirement funds are administered by the OPM. DOL 

contributions to the CSRS and FERS are recognized as current operating expenses. FERS participants are also 

covered under the Federal Insurance Contribution Act (FICA) and are subject to withholdings. DOL makes matching 

FICA contributions, recognized as operating expenses. DOL’s matching contributions were $86.7 million in 2010 and 

$78.5 million in 2009. 

The Thrift Savings Plan (TSP) is a defined contribution retirement savings and investment plan for employees 

covered by either CSRS or FERS. CSRS participants may contribute up to $16,500 of their gross pay to the TSP during 

calendar years 2010 and 2009, but there is no departmental matching contribution. FERS participants may 

contribute up to $16,500 of their gross pay to the TSP during calendar years 2010 and 2009. CSRS and FERS 

participants aged 50 years or older may also contribute an additional $5,500 each calendar year in “catch-up” 

contributions during calendar years 2010 and 2009, but there is no departmental matching on “catch-up” 

contributions. For employees covered under FERS, DOL contributes 1% of the employees’ gross pay to the TSP. DOL 

also matches employees’ contributions dollar-for-dollar on the first 3% of pay contributed each pay period and 50 

cents on the dollar for the next 2% of pay contributed. DOL contributions to the TSP are recognized as current 

operating expenses. Employee and employer contributions to the TSP are transferred to the Federal Retirement 

Thrift Investment Board. 

DOL recognizes the full cost of providing future CSRS and FERS pension benefits to covered employees at the time 

the employees’ services are rendered. The pension expense recognized in the financial statements equals the 

service cost for covered DOL employees, less amounts contributed by these employees. Service cost represents the 

actuarial present value of benefits attributed to services rendered by covered employees during the accounting 

period. 

The measurement of service cost requires the use of actuarial cost methods to determine the percentage of the 

employees’ basic compensation sufficient to fund their projected pension benefit. These percentages (cost factors) 

are provided by OPM, and applied by DOL to the basic annual compensation of covered employees to arrive at the 

amount of total pension expense to be recognized in DOL’s financial statements. 

The excess of total pension expense over the amount contributed by the Department and by DOL’s employees 

represents the amount of pension expense which must be financed directly by OPM. DOL recognized an imputed 

cost and an imputed financing source equal to the excess amount. DOL does not recognize in its financial 

statements FERS or CSRS assets, accumulated plan benefits or unfunded liabilities, if any, applicable to its 

employees. (See Note 14.) 
Financial Section 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

86 United States Department of Labor 

NOTE 1 - SUMMARY OF SIGNIFICANT ACCOUNTING POLICIES - Continued 

R. Net Position 

DOL’s net position consists of the following: 

1.Unexpended appropriations 

Unexpended appropriations include the unobligated balances and undelivered orders of DOL’s appropriated 

funds. Unobligated balances associated with appropriations that expire at the end of the fiscal year remain 

available for obligation adjustments, but not new obligations, until those appropriations are closed, five 

years after the appropriations expire. Unexpired multi-year and no-year appropriations remain available to 

DOL for obligation in future periods. 

2.Cumulative results of operations 

Cumulative results of operations include the accumulated historical difference between expenses 

consuming budgetary resources and financing sources providing budgetary resources in DOL’s trust, 

revolving and special funds; liabilities not consuming budgetary resources net of assets not providing 

budgetary resources; and DOL’s net investment in capitalized assets. 

S. Net Cost of Operations 

1.Operating costs 

Full operating costs are comprised of all direct costs consumed by the program and those indirect costs 

which can be reasonably assigned or allocated to the program. Full costs are reduced by exchange (earned) 

revenues to arrive at net program cost. The full and net operating costs of DOL’s major programs are 

presented in the Consolidated Statement of Net Cost, and are also reported by sub-organization in Note 15 

to the financial statements. 

2. Earned revenue 

Earned revenues arise from exchange transactions which occur through the provision of goods and services 

for a price, and are deducted from the full cost of DOL’s major programs to arrive at net program cost. 

Earned revenues are recognized by DOL to the extent reimbursements are payable from other Federal 

agencies and from the public, as a result of costs incurred or services performed on their behalf. Major 

sources of DOL’s earned revenue include reimbursements to the Federal Employees’ Compensation Act 

Special Benefit Fund from Federal agencies for the costs of disability compensation and medical care 

provided to or accrued on behalf of their employees, and reimbursements to the Unemployment Trust Fund 

from Federal agencies for the cost of unemployment benefits provided to or accrued on behalf of their 

former employees. 
Annual Financial Statements 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

FY 2010 Agency Financial Report 87 

NOTE 1 - SUMMARY OF SIGNIFICANT ACCOUNTING POLICIES - Continued 

T. Budgetary Financing Sources 

Budgetary financing sources other than earned revenues provide funding for the Department’s net cost of 

operations and are reported on the Consolidated Statement of Changes in Net Position. These financing sources 

include appropriations received, less appropriations transferred and not available, non-exchange revenue, and 

transfers without reimbursement, as discussed below:

1. Appropriations received, appropriations transferred and appropriations not available 

DOL receives financing sources through congressional appropriations to support its operations. A financing 

source is recognized for these appropriated funds received, less appropriations transferred or not available 

through rescission or cancellation. 

2. Non-exchange revenue 

Non-exchange revenues arise primarily from the Federal government’s power to demand payments from 

the public. Non-exchange revenues are recognized by DOL on the Consolidated Statement of Changes in 

Net Position for the transfer of employer and excise taxes from the entities collecting these taxes and for 

interest from investments, as discussed below. (See Note 16) 

• Employer taxes 

Employer tax revenues are recognized on a modified cash basis, to the extent of cash transferred by the 

collecting entity to DOL, plus the change in inter-entity balances between the collecting entity and DOL. 

Inter-entity balances represent revenue received by the collecting entity, net amounts due to the collecting 

entity and adjustments made to previous transactions by the collecting entity which have not been 

transferred to DOL. 

Federal and state unemployment taxes represent non-exchange revenues collected from employers based 

on wages paid to employees in covered employment. Federal unemployment taxes are collected by the 

Internal Revenue Service and transferred to designated accounts within the Unemployment Trust Fund. 

State unemployment taxes are collected by each State and deposited in separate State accounts within the 

Unemployment Trust Fund. Federal unemployment taxes are used to pay the Federal share of extended 

unemployment benefits and to provide for Federal and State administrative expenses related to the 

operation of the unemployment insurance program. State unemployment taxes are restricted in their use 

to the payment of unemployment benefits. 

• Interest 

The Unemployment Trust Fund, the Panama Canal Commission Compensation Fund, and the Energy 

Employees Occupational Illness Compensation Fund receive interest on fund investments. The 

Unemployment Trust Fund receives interest from states that had accounts with loans payable to the Federal 

unemployment account at the end of the prior fiscal year. Interest is also earned on Federal funds in the 

possession of non-Federal entities. Interest is recognized as non-exchange revenue when earned. 
Financial Section 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

88 United States Department of Labor 

NOTE 1 - SUMMARY OF SIGNIFICANT ACCOUNTING POLICIES - Continued 

T. Budgetary Financing Sources - Continued 

2. Non-exchange revenue - continued 

• Assessments 

Assessments consist of penalties levied against employers by ESA for regulatory violations. Assessments 

are recognized as non-exchange revenues when earned. 

 

• Reimbursement of unemployment benefits 

The Unemployment Trust Fund receives reimbursements from state and local government entities and nonprofit organizations for the cost of unemployment benefits provided to or accrued on behalf of their 

employees. These reimbursements are recognized as non-exchange revenue when earned. 

3. Transfers without reimbursement 

Transfers recognized as budgetary financing sources by DOL include transfers from the Department of 

Homeland Security H-1B Nonimmigrant Petitioner Account to H-1B Funds in ETA and ESA. Also included are 

transfers from the Longshore and Harbor Workers’ Compensation Act Trust Fund for administrative costs 

and transfers from various DOL general fund unexpended appropriation accounts to the Working Capital 

Fund’s cumulative results of operations. There are also transfers between DOL entities, primarily for the 

administration of the unemployment insurance program and additional appropriations for extended 

unemployment benefits. (See Note 17) 

U. Other Financing Sources 

Other financing sources include items that do not represent budgetary resources. 

1. Imputed financing 

A financing source is imputed by DOL to provide for pension and other retirement benefit expenses 

recognized by DOL but financed by OPM. (See Notes 1-P and Q)

2. Transfers without reimbursement 

Transfers recognized as other financing sources by DOL include the transfers of property from the General 

Services Administration. (See Note 17) 
Annual Financial Statements 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

FY 2010 Agency Financial Report 89 

NOTE 1 - SUMMARY OF SIGNIFICANT ACCOUNTING POLICIES - Continued 

V. Custodial Activity 

DOL collects and transfers to the general fund of the U.S. Treasury custodial non-exchange revenues for penalties 

levied against employers by OSHA, MSHA, ESA, and EBSA for regulatory violations; for ETA disallowed grant costs 

assessed against canceled appropriations; and for FECA administrative costs assessed against government 

corporations in excess of amounts reserved to finance capital improvements in the Federal Employees’ 

Compensation Act Special Benefit Fund. These collections are not available to the agencies for obligation or 

expenditure. Penalties and other assessments are recognized as custodial revenues when collected or subject to 

collection. (See Notes 1-B and 20) 

W. Significant Assumptions Used in the Statement of Social Insurance 

The Black Lung Disability Benefit Program provides for compensation, medical and survivor benefits for eligible coal 

miners who are disabled due to pneumoconiosis (black lung disease) arising out of their coal mine employment. 

The Black Lung Disability Trust Fund (BLDTF) provides benefit payments to eligible coal miners disabled by 

pneumoconiosis when no responsible mine operator can be assigned the liability. 

Black lung disability benefit payments are funded by excise taxes from coal mine operators based on the sale of 

coal, as are the fund’s administrative costs. These taxes are collected by the Internal Revenue Service and 

transferred to the BLDTF, which was established under the authority of the Black Lung Benefits Revenue Act, and 

administered by the U.S. Department of the Treasury. Prior to October 3, 2008, the Black Lung Benefits Revenue 

Act provided for repayable advances to the BLDTF from the General Fund of the Treasury, in the event that BLDTF 

resources were not adequate to meet program obligations. 

P.L. 110-343, Division B--Energy Improvement and Extension Act of 2008, enacted on October 3, 2008, in section 

113, (1) allowed for the temporary increase in coal excise tax rates to continue an additional five years beyond the 

current statutory limit and (2) restructured the BLDTF debt by refinancing the outstanding high interest rate 

repayable advances with the proceeds from issuing low interest rate discounted debt instruments similar in form to 

zero-coupon bonds, plus a one-time appropriation. This Act also allowed that any debt issued by the BLDTF 

subsequent to the refinancing may be used to make benefit payments, other authorized expenditures, or to repay 

debt and interest from the initial refinancing. Debt issued by the BLDTF subsequent to the initial refinancing will 

have a maturity date of one year and bear interest at the Treasury 1-year rate. All debt issued by the BLDTF was 

effected as borrowing from the Bureau of Public Debt. (See Notes 1-J and 8) 
Financial Section 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

90 United States Department of Labor 

NOTE 1 - SUMMARY OF SIGNIFICANT ACCOUNTING POLICIES - Continued 

W. Significant Assumptions Used in the Statement of Social Insurance - Continued 

P.L. 111-148, Patient Protection and Affordable Care Act of 2010, enacted on March 23, 2010, in section 1556, 

amended the Black Lung Benefits Act and became effective immediately. Among other things, section 1556 affects 

claims for (1) total disability benefits filed by miners with long histories of employment in the coal industry and (2) 

survivors benefits filed by widows and other surviving dependents of totally disabled coal miners upon their death. 

The amendments apply to claims which were filed after 2004 and pending on this Act's effective date and 

thereafter. These amendments may make it easier for some coal miners and their surviving dependents to meet 

the eligibility requirements for total disability and survivors benefits. The significant assumptions used in the 

projections for the Statement of Social Insurance are the number of beneficiaries, life expectancy, coal excise tax 

revenue estimates, the tax rate structure, Federal civilian pay raises and medical cost inflation. 

Treasury’s Office of Tax Analysis provides estimates of future receipts of the black lung excise tax. Its estimates are 

based on projections of future coal production and sale prices prepared by the Energy Information Agency of the 

Department of Energy. Treasury’s Office of Tax Analysis provides the first eleven years of tax receipt estimates. 

The remaining years are estimated using a growth rate based on both historical tax receipts and the Treasury’s 

estimated tax receipts. The higher coal excise tax rate structure is $1.10 per ton of underground-mined coal and 

$0.55 per ton of surface-mined coal sold, with a cap of 4.4% of sales price. Based on Treasury’s interpretation of 

section 113 of P.L. 110-343, the higher excise tax rates will continue until the earlier of December 31, 2018 or the 

first December 31 after 2008 in which there exist no (1) balance of repayable debt described in section 9501 of the 

Internal Revenue Code and (2) unpaid interest on the debt. Starting in 2019, the tax rates revert to $0.50 per ton of 

underground-mined coal and $0.25 per ton surface-mine coal sold, and a limit of 2.0% of sales price. Although 

section 9501 of the Internal Revenue Code uses the terminology "advance," the Treasury has interpreted this to 

mean any debt owed by the BLDTF to the Bureau of the Public Debt. 

The beneficiary population data is updated from information supplied by the program. The beneficiary population 

is a nearly closed universe in which attrition by death exceeds new entrants by a ratio of more than ten to one. 

Projections for new participants are included in the overall projections and are considered immaterial. Social 

Security Administration life tables are used to project the life expectancies of the beneficiary population. OMB 

supplies assumptions for future monthly benefit rate increases based on increases in the Federal pay scale and 

future medical cost inflation based on increases in the consumer price index-medical, which are used to calculate 

future benefit costs. During the current projection period, the future benefit rate increases 5.0% in 2011 and 4.0% 

in each year thereafter and medical cost increases 3.4% in 2011, and ranges from 3.5% to 3.8% thereafter. 

Estimates for administrative costs for the first 11 years of the projection are supplied by DOL’s Budget Office, based 

on current year enacted amounts, while later years are based on the number of projected beneficiaries. 

The projection period ends September 30, 2040, because the primary purpose of the BLDTF, which was established 

in 1978, is to compensate the victims of coal mine dust exposures which occurred prior to 1970. By the end of FY 

2040, not only the disabled miners and their widows in that class, but also virtually all of their eligible dependent 

disabled adult children will be deceased. All of the current year projections are discounted using an interest rate of 

3.75% published by Treasury as of the start of the projection period. This rate is for Treasury loans to government 

agencies for loans up to 30 years. Thirty years is the maximum period for which Treasury publishes rates for loans 

to government agencies and approximates the projection period. 
Annual Financial Statements 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

FY 2010 Agency Financial Report 91 

NOTE 1 - SUMMARY OF SIGNIFICANT ACCOUNTING POLICIES - Continued 

X. Tax Exempt Status 

As an agency of the Federal government, the Department is exempt from all taxes imposed by any governing body 

whether it is a Federal, state, commonwealth, local, or foreign government. 

Y. Use of Estimates 

The preparation of financial statements requires management to make certain estimates and assumptions that 

affect the reported amounts of assets and liabilities and the reported amounts of revenue and expenses during the 

reporting period. Actual results could differ from those estimates. 

Z. Reclassifications 

The FY 2009 statements were reclassified to conform to the FY 2010 Departmental financial statement presentation 

requirements. The reclassifications had no effect on total assets, liabilities, net position, and change in net position 

or budgetary resources as previously reported. 

In connection with the preparation of the current year financial statements, the Department identified two 

immaterial errors in the FY 2009 Statement of Changes in Net Position. The Appropriations Received and 

Appropriations Transferred were each misstated by $7.95 billion. However, the errors offset each other and had no 

net impact on any total line in the Statement of Changes in Net Position, including the Department’s net position as 

of September 30, 2009. The balances of Appropriations Received and Appropriations Transferred have been 

corrected in the FY 2009 Statement of Changes in Net Position. This correction also impacted the presentation of 

Note 18F, Status of Budgetary Resources – Appropriations Received. 
Financial Section 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

92 United States Department of Labor 

NOTE 2 - FUNDS WITH U.S. TREASURY 

Funds with U.S. Treasury at September 30, 2010 consisted of the following: 

Unobligated Unobligated Obligated

Balance Balance Balance Not Total Non-entity

(Dollars in thousands) Available Unavailable Yet Disbursed Entity Assets Assets Total

Revolving funds 14,633 $ 23,630 $ 58,361 $ 96,624 $ $ 96,624 - $ 

Trust funds 91 141,599 - 141,690 (629) 141,061 

General funds 3,029,238 705,680 8,641,922 12,376,840 12,376,840 - 

Other - - - - 3,621 3,621 

$ 729,310 3,043,962 $ $ 8,841,882 $ 12,615,154 $ 2,992 12,618,146 $ 

Entity Assets

Funds with U.S. Treasury at September 30, 2009 consisted of the following: 

Unobligated Unobligated Obligated

Balance Balance Balance Not Total Non-entity

(Dollars in thousands) Available Unavailable Yet Disbursed Entity Assets Assets Total

Revolving funds 16,351 $ $ 61,785 - $ 78,136 $ $ 78,136 - $ 

Trust funds 2,340,232 (298,848) - 2,041,384 (687) 2,040,697 

General funds 2,742,223 637,147 8,902,843 12,282,213 12,282,213 - 

Other - - - - 5,705 5,705 

$ 637,147 5,098,806 $ $ 8,665,780 $ 14,401,733 $ 5,018 14,406,751 $ 

Entity Assets

The negative fund balances reported as of September 30, 2010 and 2009 relate to the Unemployment Trust Fund 

(UTF) and are the result of the timing of processing the investments and redemptions of UTF. The investments and 

redemptions relating to the last business day of the month are not processed until the first day of the next month. 

This could result in a negative cash position for the preceding business day if the disbursements are greater than 

the receipts to the fund. 

Annual and multi-year budget authority expires at the end of its period of availability. During the first through the 

fifth expired years, the unobligated balance is unavailable and may be used to adjust obligations and disbursements 

that were recorded before the budgetary authority expired or to meet a legitimate or bona fide need arising in the 

fiscal year for which the appropriation was made. The unobligated balance for no-year budget authority may be 

used to incur obligations indefinitely for the purpose specified by the appropriation act. No-year budget authority 

unobligated balances are still subject to the annual apportionment and allotment process 

Unobligated Balance Available at September 30, 2010 includes $514 million of funds apportioned for use in the 

subsequent year. 
Annual Financial Statements 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

FY 2010 Agency Financial Report 93 

NOTE 3 - INVESTMENTS 

Investments at September 30, 2010 consisted of the following: 

Face Premium Interest Net Market

(Dollars in thousands) Value (Discount) Receivable Value Value

Unemployment Trust Fund

Non-marketable

Special issue U.S. Treasury Bonds

3.125% maturing June 30, 2011 5,981,782 $ $ 20,672 - $ 6,002,454 $ 5,981,782 $ 

4.500% maturing June 30, 2011 12,720,998 - 143,111 12,864,109 12,720,998 

 18,702,780 - 163,783 18,866,563 18,702,780

Panama Canal Commission

 Compensation Fund

Marketable

U.S. Treasury Notes

3.625% maturing May 15, 2013 3,968 (96) 54 3,926 3,968 

4.500% Maturing November 15, 2010 62,967 (794) 1,063 63,236 62,967

 66,935 (890) 1,117 67,162 66,935 

Energy Employees Occupational Illness 

 Compensation Fund

Non-marketable

One Day Certificate

0.120% maturing October 1, 2010 347,368 - - 347,368 347,368

$ 19,117,083 (890) $ $ 164,900 $ 19,281,093 19,117,083 $ 

Entity investments $ (890) 19,087,134 $ 164,638 $ 19,250,882 $ 19,087,134 $ 

Non-entity investments 29,949 - 262 30,211 29,949 

$ 19,117,083 (890) $ 164,900 $ 19,281,093 $ 19,117,083 $ 
Financial Section 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

94 United States Department of Labor 

NOTE 3 - INVESTMENTS - Continued 

Investments at September 30, 2009 consisted of the following: 

Face Premium Interest Net Market

(Dollars in thousands) Value (Discount) Receivable Value Value

Unemployment Trust Fund

Non-marketable

Special issue U.S. Treasury Bonds

3.250% maturing June 30, 2010 334,382 $ $ 32 - $ 334,414 $ 334,382 $ 

4.500% maturing June 30, 2011 19,293,800 - 217,055 19,510,855 19,293,800 

 - 19,628,182 217,087 19,845,269 19,628,182 

Panama Canal Commission

 Compensation Fund

Marketable

U.S. Treasury Notes

3.500% to 4.625% various maturities 66,664 44 1,103 67,811 67,268 

U.S. Treasury Bonds

11.750% to be called November 15, 2009 5,163 52 228 5,234 5,443 

 96 71,827 1,331 73,254 72,502 

Energy Employees Occupational Illness 

 Compensation Fund

Non-marketable

One Day Certificate

0.070% maturing October 1, 2009 192,823 - - 192,823 192,823 

$ 96 19,892,832 $ 218,418 $ 20,111,346 $ 19,893,507 $ 

Entity investments $ 96 19,856,989 $ 218,022 $ 20,075,107 $ 19,857,665 $ 

Non-entity investments - 35,843 396 36,239 35,842 

$ 96 19,892,832 $ 218,418 $ 20,111,346 $ 19,893,507 $ 
Annual Financial Statements 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

FY 2010 Agency Financial Report 95 

NOTE 4 - ACCOUNTS RECEIVABLE, NET OF ALLOWANCE

 

Accounts receivable at September 30, 2010 consisted of the following: 

Gross Net

(Dollars in thousands) Receivables Allowance Receivables

Entity intra-governmental assets

Due for UCFE and UCX benefits 745,405 $ $ 745,405 - $ 

Due for workers' compensation benefits 5,135,704 5,135,704 - 

Other 1,262 1,262 - 

 5,882,371 5,882,371 - 

Entity assets

State unemployment taxes 953,709 (691,600) 262,109 

Due from reimbursable employers 1,235,093 (92,864) 1,142,229 

Benefit overpayments 2,933,557 (2,467,752) 465,805 

Other 55,214 22,384 (32,830) 

 (3,285,046) 5,177,573 1,892,527 

Non-entity assets

Fines and penalties 169,680 119,354 (50,326) 

 (3,335,372) 5,347,253 2,011,881 

$ (3,335,372) 11,229,624 $ 7,894,252 $ 

Accounts receivable at September 30, 2009 consisted of the following: 

Gross Net

(Dollars in thousands) Receivables Allowance Receivables

Entity intra-governmental assets

Due for UCFE and UCX benefits 474,770 $ $ 474,770 - $ 

Due for workers' compensation benefits 4,982,929 4,982,929 - 

Other 9,798 9,798 - 

 5,467,497 5,467,497 - 

Entity assets

State unemployment taxes 945,324 (682,354) 262,970 

Due from reimbursable employers 733,404 (46,191) 687,213 

Benefit overpayments 1,989,258 (1,640,575) 348,683 

Other 5,247 4,406 (841) 

 3,673,233 1,303,272 (2,369,961) 

Non-entity assets

Fines and penalties 91,143 50,569 (40,574) 

 3,764,376 1,353,841 (2,410,535) 

$ 9,231,873 $ (2,410,535) 6,821,338 $ 
Financial Section 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

96 United States Department of Labor 

NOTE 5 - PROPERTY, PLANT AND EQUIPMENT, NET OF ACCUMULATED DEPRECIATION 

Property, plant and equipment at September 30, 2010 consisted of the following: 

Accumulated

Depreciation/ Net Book

(Dollars in thousands) Cost Amortization Value

Structures, facilities and improvements

Structures and facilities 1,134,773 $ (482,666) $ 652,107 $ 

Improvements to leased facilities 423,915 166,887 (257,028) 

 1,558,688 818,994 (739,694) 

Furniture and equipment

Equipment held by contractors 153,333 (148,963) 4,370 

Furniture and equipment 39,410 12,310 (27,100) 

 192,743 16,680 (176,063) 

Internal use software (101,714) 216,452 114,738 

Construction-in-progress 130,200 130,200 - 

Land 94,101 94,101 - 

$ 2,192,184 $ 1,174,713 (1,017,471) $ 

2010

Property, plant and equipment at September 30, 2009 consisted of the following: 

Accumulated

Depreciation/ Net Book

(Dollars in thousands) Cost Amortization Value

Structures, facilities and improvements

Structures and facilities 1,111,949 $ (468,889) $ 643,060 $ 

Improvements to leased facilities 420,863 176,189 (244,674) 

 1,532,812 819,249 (713,563) 

Furniture and equipment

Equipment held by contractors 170,681 (162,628) 8,053 

Furniture and equipment 33,248 10,634 (22,614) 

 203,929 18,687 (185,242) 

Internal use software (73,408) 196,561 123,153 

Construction-in-progress 97,377 97,377 - 

Land 95,774 95,774 - 

$ 2,126,453 $ 1,154,240 (972,213) $ 

2009
Annual Financial Statements 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

FY 2010 Agency Financial Report 97 

NOTE 6 – ADVANCES 

Advances at September 30, 2010 and 2009 consisted of the following: 

(Dollars in thousands) 2010 2009

Advances to states for UI benefit payments 1,746,918 $ 1,583,858 $ 

Other 107,240 125,274 

$ 1,872,192 1,691,098 $ 

NOTE 7 - NON-ENTITY ASSETS

Non-entity assets consisted of the following at September 30, 2010 and 2009: 

(Dollars in thousands) 2010 2009

Intra-governmental

Funds with U.S. Treasury $ 5,018 2,992 $ 

Investments 36,239 30,211 

 41,257 33,203 

Accounts receivable, net of allowance 119,354 50,569

$ 91,826 152,557 $ 

NOTE 8 - DEBT 

DOL’s debt during FY 2010 consisted of the following: 

Balance at Balance at

September 30, Net September 30,

(Dollars in thousands) 2009 Refinancing Borrowing 2010

Intra-governmental

Debt to Treasury

Black Lung Disability Trust Fund

 Borrowing from U.S. Treasury 6,370,580 $ $ (80,834) - $ 6,289,746 $ 

Unemployment Trust Fund

 Advances from U.S. Treasury 7,981,387 - 26,129,592 34,110,979

$ 14,351,967 $ - $ 40,400,725 26,048,758 $ 

DOL’s debt during FY 2009 consisted of the following: 

Balance at Balance at

September 30, Net September 30,

(Dollars in thousands) 2008 Refinancing Borrowing 2009

Intra-governmental

Debt to Treasury

Black Lung Disability Trust Fund

 Advances from U.S. Treasury 10,483,557 $ (10,483,557) $ $ - $ - 

 Borrowing from U.S. Treasury 6,495,717 - (125,137) 6,370,580 

Unemployment Trust Fund

 Advances from U.S. Treasury - - 7,981,387 7,981,387 

$ 10,483,557 $ (3,987,840) $ 14,351,967 7,856,250 $ 
Financial Section 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

98 United States Department of Labor 

NOTE 8 - DEBT - Continued 

In FY 2009, refinancing includes the replacement of high interest rate Advances from U.S. Treasury with borrowings 

in the form of discounted instruments, similar to zero coupon bonds. For the Black Lung Disability Trust Fund, net 

borrowing includes capitalized interest of $223.9 million, repaid debt of ($353.4 million), interest of ($11.3 million), 

and additional borrowing of $60.0 million, for a total of ($80.8 million) and capitalized interest of $212.3 million and 

repaid debt of ($337.4 million) for a total of ($125.1 million) in FYs 2010 and 2009, respectively. For the 

Unemployment Trust Fund, net borrowing includes new advances of $29.05 billion, repayments of $2.9 billion and 

($31.4 million) for accrued interest for a net total of $26.1 billion and new advances of $7.95 billion and accrued 

interest of $31.4 million for a total of $7.98 billion in FYs 2010 and 2009, respectively. 

NOTE 9 - OTHER LIABILITIES 

Other liabilities at September 30, 2010 and 2009 consisted of the following current liabilities: 

(Dollars in thousands) 2010 2009

Intra-governmental

Accrued payroll benefits $ 15,222 53,930 $ 

Unearned FECA assessments 18 18 

Non-entity receivables due to U.S. Treasury 119,354 50,332 

Amounts held for the Railroad Retirement Board 29,582 35,552 

Advances from other Federal agencies 19,627 300 

Total intra-governmental 101,424 222,511 

Accrued payroll and benefits 69,124 95,086 

Deposit and clearing accounts 5,944 3,930 

Readjustment allowances and other Job Corps liabilities 53,453 75,374 

Other Liabilities - 2,740 

 150,442 155,209 

$ 251,866 377,720 $ 

NOTE 10 - ACCRUED BENEFITS 

Accrued benefits at September 30, 2010 and 2009 consisted of the following: 

(Dollars in thousands) 2010 2009

State regular and extended unemployment benefits payable 2,634,528 $ 1,775,266 $ 

Federal extended unemployment benefits payable 436,522 520,503 

Federal emergency unemployment benefits payable 1,524,946 1,300,425 

Federal employees' unemployment benefits payable 455,940 642,555 

Federal additional unemployment benefits payable 130,446 231,361 

Total unemployment benefits payable 5,182,382 4,470,110 

Black lung disability benefits payable 33,606 36,017 

Federal employees' disability and 10(h) benefits payable 40,639 90,017 

Energy employees occupational illness compensation benefits payable 27,916 31,106 

$ 5,284,543 $ 4,627,250
Annual Financial Statements 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

FY 2010 Agency Financial Report 99 

NOTE 11 - FUTURE WORKERS' COMPENSATION BENEFITS 

DOL’s liability for future workers’ compensation benefits at September 30, 2010 and 2009 consisted of the 

following: 

(Dollars in thousands) 2010 2009

Projected gross liability of the Federal government

 for future FECA benefits $ 26,953,702 29,819,932 $ 

Less liabilities attributed to other agencies:

U.S. Postal Service (9,507,251) (10,597,448) 

Department of Navy (2,425,587) (2,463,087) 

Department of Army (1,790,270) (1,813,932) 

Department of Veterans Affairs (1,862,265) (1,734,929) 

Department of Air Force (1,321,451) (1,286,935) 

Department of Transportation (976,753) (970,738) 

Department of Homeland Security (1,937,837) (1,826,221) 

Tennessee Valley Authority (499,357) (505,491) 

Department of Treasury (525,430) (544,345) 

Department of Agriculture (881,453) (845,995) 

Department of Justice (1,233,899) (1,314,107) 

Department of Interior (697,210) (723,131) 

Department of Defense, Other (820,707) (815,854) 

Department of Health and Human Services (259,500) (253,312) 

Social Security Administration (319,295) (310,636) 

General Services Administration (135,331) (135,953) 

Department of Commerce (210,235) (171,187) 

Department of Energy (95,897) (93,317) 

Department of State (71,621) (71,997) 

Department of Housing and Urban Development (72,289) (69,058) 

Department of Education (16,199) (17,603) 

National Aeronautics and Space Administration (55,402) (56,912) 

Environmental Protection Agency (44,938) (44,122) 

Small Business Administration (29,960) (29,640) 

Office of Personnel Management (22,043) (21,695) 

National Science Foundation (1,356) (1,319) 

Nuclear Regulatory Commission (7,575) (7,628) 

Agency for International Development (26,035) (26,885) 

Other (586,569) (621,636) 

 (27,744,385) (26,064,443) 

$ 889,259 2,075,547 $ 

Projected liability of the Department of Labor for future FECA benefits

FECA benefits not chargeable to other Federal agencies payable by

 DOL's Federal Employees' Compensation Act Special Benefit Fund 1,794,522 $ 616,541 $ 

FECA benefits due to eligible workers of DOL and Job Corps enrollees 226,491 216,793 

FECA benefits due to eligible workers of the Panama Canal Commission 54,534 55,925 

$ 889,259 2,075,547 $ 
Financial Section 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

100 United States Department of Labor 

NOTE 12 - LIABILITIES NOT COVERED BY BUDGETARY RESOURCES 

Liabilities not covered by budgetary resources at September 30, 2010 and 2009 consisted of the following: 

(Dollars in thousands) 2010 2009

Intra-governmental

Debt $ 40,400,725 $ 14,320,580

Accrued benefits 515,593 359,002 

Future workers' compensation benefits 1,524,846 296,339 

Accrued annual leave 99,737 116,505 

Readjustment allowances and other Job Corps liabilities 53,453 74,699 

 986,368 2,053,806 

$ 42,454,531 $ 15,306,948

NOTE 13 – CONTINGENCIES

The Department is involved in various lawsuits incidental to its operations. Judgments resulting from litigation 

against the Department are generally paid by the Department of Justice. In the opinion of management, the 

ultimate resolution of pending litigation will not have a material effect on the Department’s financial position. 

NOTE 14 - PENSION EXPENSE 

Pension expense in FY 2010 consisted of the following: 

Total

Employer Costs Imputed Pension

(Dollars in thousands) Contributions by OPM Expense

Civil Service Retirement System 20,299 $ 46,277 $ 66,576 $ 

Federal Employees' Retirement System 123,176 18,996 142,172 

Thrift Savings Plan 46,947 46,947 - 

$ 190,422 $ 65,273 $ 255,695

Pension expense in FY 2009 consisted of the following: 

Total

Employer Costs Imputed Pension

(Dollars in thousands) Contributions by OPM Expense

Civil Service Retirement System 21,938 $ 36,392 $ 58,330 $ 

Federal Employees' Retirement System 110,402 2,849 113,251 

Thrift Savings Plan 41,613 41,613 - 

$ 173,953 $ 39,241 $ 213,194
Annual Financial Statements 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

FY 2010 Agency Financial Report 101 

NOTE 15 - PROGRAM COST

Schedule A presents detailed cost and revenue information by major program and major program agency 

(responsibility segment) in support of the summary information presented in the Statement of Net Costs for 2010. 

Schedules B and C present a further breakdown of this cost and revenue information for DOL’s two largest program 

agencies, the Employment and Training Administration and the Employment Standards Administration (See Note 1-

A.1). 
Financial Section 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

102 United States Department of Labor 

NOTE 15 - PROGRAM COST - Continued 

 

A. Consolidating Statement of Net Cost by Major Program Agency 

Net cost by major program agency for the year ended September 30, 2010 consisted of the following (intra-agency 

transactions were eliminated within each agency column rather than shown under the eliminations column): 

Employment Employment Office Occupational

and Training Standards of Safety and Health

(Dollars in thousands) Administration Administration Job Corps Administration

CROSSCUTTING PROGRAMS

 Income maintenance

Intra-governmental 1,030,572 $ 289,538 $ $ 108 - $ 

With the public 161,898,525 9,893,696 - 3,984 

 Gross cost 162,929,097 10,183,234 - 4,092 

Intra-governmental earned revenue (1,515,084) (2,778,843) - - 

Public earned revenue (932) (6,729) - - 

 Less earned revenue (1,516,016) (2,785,572) - - 

Net program cost 161,413,081 7,397,662 - 4,092

 Employment and training

Intra-governmental 24,832 270 39,026 - 

With the public 6,506,059 610 1,623,673 - 

 Gross cost 6,530,891 880 1,662,699 - 

Intra-governmental earned revenue (11,043) (82) - - 

Public earned revenue - - - - 

 Less earned revenue (11,043) - (82) - 

Net program cost 6,519,848 880 1,662,617 - 

 Labor, employment and pension

 standards

Intra-governmental 110,188 - - - 

With the public - 366,591 - - 

 Gross cost - 476,779 - - 

Intra-governmental earned revenue (1,404) - - - 

Public earned revenue - - - - 

 Less earned revenue - (1,404) - - 

Net program cost - 475,375 - - 

 Worker safety and health

Intra-governmental - - 82,496 - 

With the public - - - 533,284 

 Gross cost - - - 615,780 

Intra-governmental earned revenue - - (2,744) - 

Public earned revenue - - - (1,354) 

 Less earned revenue - - - (4,098) 

Net program cost - - - 611,682

OTHER PROGRAMS

 Statistics

Intra-governmental - - - - 

With the public - - - - 

 Gross cost - - - - 

Intra-governmental earned revenue - - - - 

Public earned revenue - - - - 

 Less earned revenue - - - - 

Net program cost - - - - 

COSTS NOT ASSIGNED TO PROGRAMS

 Gross cost - - - - 

 Less earned revenue not attributed to programs - - - - 

Net cost not assigned to programs - - - - 

Net cost of operations $ 167,932,929 $ 7,873,917 $ 1,662,617 $ 615,774
Annual Financial Statements 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

FY 2010 Agency Financial Report 103 

Bureau of Mine Safety Employee Benefits Veterans' Other

Labor and Health Security Employment Departmental

Statistics Administration Administration and Training Programs Eliminations Total

$ - $ 5,388 - $ $ 489 - $ $ 1,326,095 - $ 

 - - 20,538 - 10,394 - 171,827,137 

 - - 25,926 - 10,883 - 173,153,232 

 - (626) - - - (4,294,553) - 

 - - - - - - (7,661) 

 - - (626) - - - (4,302,214) 

 - - 25,300 - 10,883 - 168,851,018

 - - 8,066 - 136 72,330 - 

 - - - 216,566 935 - 8,347,843 

 - - - 224,632 1,071 - 8,420,173 

 - - (64) - (73) (11,262) - 

 - - - - - - - 

 - - - (64) (73) - (11,262) 

 - - - 224,568 998 - 8,408,911

 - 30,021 - 795 4,373 145,377 - 

 - - 149,630 30,841 87,555 - 634,617 

 - - 179,651 31,636 91,928 - 779,994 

 - (7,461) - (7) - (8,872) - 

 - - - - - - - 

 - - (7,461) (7) - - (8,872) 

 - - 172,190 31,629 91,928 - 771,122

 72,816 - 17 - 155,329 - 

 - 329,539 - - 1,987 - 864,810 

 - 402,355 - - 2,004 - 1,020,139 

 (562) - - - - (3,306) - 

 - (1,365) - - - - (2,719) 

 - (1,927) - - - - (6,025) 

 - 400,428 - - 2,004 - 1,014,114

 190,112 - - 42 - 190,154 - 

 499,797 - - - 4,967 - 504,764 

 689,909 - - - 5,009 - 694,918 

 (10,725) - - - - (10,725) - 

 (2,909) - - - - - (2,909) 

 (13,634) - - - - - (13,634) 

 676,275 - - - 5,009 - 681,284

 - - - 96,580 - 96,580 - 

 - - - - (9,453) - (9,453) 

 - - - - 87,127 - 87,127

$ 676,275 $ 400,428 $ 197,490 $ 256,197 $ 197,949 $ - $ 179,813,576
Financial Section 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

104 United States Department of Labor 

NOTE 15 - PROGRAM COST - Continued

 

B. Consolidating Statement of Net Cost - Employment and Training Administration 

Net cost of the Employment and Training Administration for the year ended September 30, 2010 consisted of the 

following (intra-agency transactions were eliminated within each program column rather than shown under the 

eliminations column): 

Training and

Employment Employment

(Dollars in thousands) Security Programs Eliminations Total

CROSSCUTTING PROGRAMS

 Income maintenance

Benefits 156,692,552 $ $ - $ 156,692,552 - $ 

Grants 4,545,418 - 4,545,418 - 

Interest 1,001,890 - 1,001,890 - 

Administrative and other 689,237 - - 689,237

 Gross cost 162,929,097 - 162,929,097 - 

Less earned revenue (1,516,016) - - (1,516,016)

Net program cost 161,413,081 - - 161,413,081

 Employment and training

Benefits - - - - 

Grants 6,498,223 - 6,498,223 - 

Administrative and other 32,668 - - 32,668

 Gross cost 6,530,891 - 6,530,891 - 

Less earned revenue (11,043) - - (11,043)

Net program cost 6,519,848 - - 6,519,848

Net cost of operations $ 161,413,081 $ 6,519,848 $ - $ 167,932,929

 

 
Annual Financial Statements 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

FY 2010 Agency Financial Report 105 

NOTE 15 - PROGRAM COST - Continued 

C. Consolidating Statement of Net Cost - Employment Standards Administration 

Net cost of the Employment Standards Administration for the year ended September 30, 2010 consisted of the 

following (intra-agency transactions were eliminated within each office column rather than shown under the 

eliminations column): 

Office of Office of Office of

Workers' Federal Wage Labor

Compensation Contract and Hour Management

(Dollars in thousands) Programs Compliance Division Standards Eliminations Total

CROSSCUTTING PROGRAMS

 Income maintenance

Benefits 9,545,486 $ $ - $ - $ - $ 9,545,486 - $ 

Interest 223,923 - - - 223,923 - 

Administrative and other 413,825 - - - 413,825 - 

 Gross cost 10,183,234 - - - 10,183,234 - 

Less earned revenue (2,785,572) - - - (2,785,572) - 

Net program cost 7,397,662 - - - 7,397,662 - 

 Labor, employment and

 pension standards

Benefits - - - - - - 

Administrative and other 124,828 - 295,139 56,812 476,779 - 

 Gross cost 124,828 - 295,139 56,812 476,779 - 

Less earned revenue (380) - (832) (192) (1,404) - 

Net program cost 124,448 - 294,307 56,620 475,375 - 

 Employment and training

Benefits - - - - - - 

Administrative and other - - 880 - 880 - 

 Gross cost - 880 - - 880 - 

Less earned revenue - - - - - - 

Net program cost - - 880 - 880 - 

Net cost of operations $ 124,448 7,397,662 $ 295,187 $ 56,620 $ - $ 7,873,917 $ 

Schedules D, E and F present detailed cost and revenue information by suborganization (responsibility segment) for 

programs in the Department, the Employment and Training Administration, and the Employment Standards 

Administration in support of the summary information presented in the Consolidated Statement of Net Cost for 

2009. 
Financial Section 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

106 United States Department of Labor 

NOTE 15 - PROGRAM COST - Continued 

D. Consolidating Statement of Net Cost by Major Program Agency 

Net cost by major program Agency for the year ended September 30, 2009 consisted of the following: 

Employment Employment Office Occupational

and Training Standards of Safety and Health

(Dollars in thousands) Administration Administration Job Corps Administration

CROSSCUTTING PROGRAMS

 Income maintenance

Intra-governmental 208,566 $ 2,843,904 $ $ - $ - 

With the public 125,688,846 4,624,270 - - 

 Gross cost 125,897,412 7,468,174 - - 

Intra-governmental earned revenue (1,015,214) (2,787,375) - - 

Public earned revenue - - - - 

 Less earned revenue (1,015,214) (2,787,375) - - 

Net program cost 124,882,198 4,680,799 - - 

 Employment and training

Intra-governmental 42,936 17,029 - - 

With the public 5,451,065 - 1,480,441 - 

 Gross cost 5,494,001 - 1,497,470 - 

Intra-governmental earned revenue (11,611) - - - 

Public earned revenue - - (378) - 

 Less earned revenue (11,611) - (378) - 

Net program cost 5,482,390 - 1,497,092 - 

 Labor, employment and pension

 standards

Intra-governmental 119,662 - - - 

With the public - 259,890 - - 

 Gross cost - 379,552 - - 

Intra-governmental earned revenue - - - - 

Public earned revenue - - - - 

 Less earned revenue - - - - 

Net program cost - 379,552 - - 

 Worker safety and health

Intra-governmental - - 125,474 - 

With the public - - - 417,460 

 Gross cost - - - 542,934 

Intra-governmental earned revenue - - (16) - 

Public earned revenue - - - (1,370) 

 Less earned revenue - - - (1,386) 

Net program cost - - - 541,548

OTHER PROGRAMS

 Statistics

Intra-governmental - - - - 

With the public - - - - 

 Gross cost - - - - 

Intra-governmental earned revenue - - - - 

Public earned revenue - - - - 

 Less earned revenue - - - - 

Net program cost - - - - 

COSTS NOT ASSIGNED TO PROGRAMS

 Gross cost - - - - 

 Less earned revenue not attributed to programs - - - - 

Net cost not assigned to programs - - - - 

Net cost of operations $ 130,364,588 $ 5,060,351 $ 1,497,092 $ 541,548
Annual Financial Statements 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

FY 2010 Agency Financial Report 107 

Bureau of Mine Safety Employee Benefits Veterans' Other

Labor and Health Security Employment Departmental

Statistics Administration Administration and Training Programs Eliminations Total

$ - $ - $ - $ 1,428 - $ (42,542) $ 3,011,356 $ 

 - - - - 6,874 130,340,026 20,036 

 - - - - 8,302 133,351,382 (22,506) 

 - - - - 22,506 - (3,780,083) 

 - - - - - - - 

 - - - - - (3,780,083) 22,506 

 - - - - 8,302 - 129,571,299

 - - 9,729 - 435 (21,845) 48,284 

 - - - 203,816 745 7,157,362 21,295 

 - - - 213,545 1,180 (550) 7,205,646 

 - - - - 550 - (11,061) 

 - - - - - - (378) 

 - - - - - 550 (11,439) 

 - - - 213,545 1,180 - 7,194,207

 - 56,438 - 971 15,527 (45,911) 146,687 

 - - 131,108 19,521 117,719 574,149 45,911 

 - - 187,546 20,492 133,246 - 720,836 

 - (12,526) - (983) - (13,509) - 

 - - (8) - - - (8) 

 - - (12,534) - (983) - (13,517) 

 - - 175,012 20,492 132,263 - 707,319

 128,686 - - 4,459 - (59,951) 198,668 

 - 260,774 - - 6,955 745,140 59,951 

 - 389,460 - - 11,414 - 943,808 

 - - - - - (16) - 

 - (1,364) - - - - (2,734) 

 - (1,364) - - - - (2,750) 

 - 388,096 - - 11,414 - 941,058

 205,484 - - 12,818 - (23,969) 194,333 

 391,100 - - - 19,997 435,066 23,969 

 596,584 - - - 32,815 - 629,399 

 (5) - - - - (5) - 

 (8,316) - - - - - (8,316) 

 (8,321) - - - - - (8,321) 

 588,263 - - - 32,815 - 621,078

 - - - 99,536 - (2,759) 96,777 

 - - - - (16,006) 2,759 (13,247) 

 - - - - 83,530 - 83,530

$ 588,263 $ 388,096 $ 175,012 $ 234,037 $ 269,504 $ - $ 139,118,491
Financial Section 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

108 United States Department of Labor 

NOTE 15 - PROGRAM COST - Continued 

 

E. Consolidating Statement of Net Cost - Employment and Training Administration 

Net cost of the Employment and Training Administration for the year ended September 30, 2009 consisted of the 

following: 

 

Training and

Employment Employment

(Dollars in thousands) Security Programs Eliminations Total

CROSSCUTTING PROGRAMS

 Income maintenance

Benefits 120,912,065 $ 82 $ $ 120,912,147 - $ 

Grants 4,475,166 - 4,475,166 - 

Interest 34,228 - 34,228 - 

Administrative and other 475,472 399 - 475,871

 Gross cost 125,896,931 481 125,897,412 - 

Less earned revenue (1,015,214) - - (1,015,214)

Net program cost 124,881,717 481 - 124,882,198

 Employment and training

Benefits 10,045 - 10,045 - 

Grants 1,747 5,289,212 5,290,959 - 

Administrative and other - 192,997 - 192,997

 Gross cost 1,747 5,492,254 5,494,001 - 

Less earned revenue - (11,611) - (11,611)

Net program cost 1,747 5,480,643 - 5,482,390

Net cost of operations $ 124,883,464 $ 5,481,124 $ - $ 130,364,588
Annual Financial Statements 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

FY 2010 Agency Financial Report 109 

NOTE 15 - PROGRAM COST - Continued 

F. Consolidating Statement of Net Cost - Employment Standards Administration 

Net cost of the Employment Standards Administration for the year ended September 30, 2009 consisted of the 

following: 

Office of Office of Office of

Workers' Federal Wage Labor

Compensation Contract and Hour Management

(Dollars in thousands) Programs Compliance Division Standards Eliminations Total

CROSSCUTTING PROGRAMS

 Income maintenance

Benefits 4,398,133 $ $ - $ - $ (2,071) - $ 4,396,062 $ 

Interest 231,292 - - - 231,292 - 

Loss on debt refinancing 2,495,660 - - - 2,495,660 - 

Administrative and other 345,160 - - - 345,160 - 

 Gross cost 7,470,245 - - (2,071) - 7,468,174 

Less earned revenue (2,789,446) - - - 2,071 (2,787,375) 

Net program cost 4,680,799 - - - 4,680,799 - 

 Labor, employment and

 pension standards

Benefits 11,198 - 25,740 7,280 44,218 - 

Administrative and other 87,040 - 202,363 45,931 335,334 - 

 Gross cost 98,238 - 228,103 53,211 379,552 - 

Less earned revenue - - - - - -

Net program cost 98,238 - 228,103 53,211 379,552 - 

Net cost of operations $ 98,238 4,680,799 $ $ 228,103 $ 53,211 $ - 5,060,351 $ 
Financial Section 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

110 United States Department of Labor 

NOTE 16 - NON-EXCHANGE REVENUE 

Non-exchange revenues reported on the Consolidated Statement of Changes in Net Position in 2010 and 2009 

consisted of the following: 

(Dollars in thousands) 2010 2009

Employer taxes

Unemployment Trust Fund

Federal unemployment taxes 6,451,722 $ 6,658,309 $ 

State unemployment taxes 28,651,188 34,013,576 

 35,309,497 40,465,298 

Black Lung Disability Trust Fund excise taxes 594,803 644,881

 35,954,378 41,060,101 

Interest

Unemployment Trust Fund 2,056,548 776,082 

Panama Canal Commission Compensation Fund 553 1,976 

Energy Employees Occupational Illness Compensation Fund 10 187 

Black Lung Disability Trust Fund 1,283 2,304 

 2,059,994 778,949 

Assessments 779 8 

Reimbursement of unemployment benefits from state and

 local governments and non-profit organizations

 to the Unemployment Trust Fund 4,725,272 2,763,817 

$ 40,778,968 46,564,330 $ 

NOTE 17 - TRANSFERS WITHOUT REIMBURSEMENT 

Transfers from (to) other Federal agencies in FY 2010 and FY 2009 consisted of the following: 

(Dollars in thousands) 2010 2009

Budgetary financing sources

From H-1B Nonimmigrant Petitioner Account, Department of Homeland Security 201,794 $ 94,451 $ 

From Longshore and Harbor Workers' Compensation Act Trust Fund 2,101 - 

From DOL general fund unexpended appropriation

 accounts to the DOL Working Capital Fund 2,000 3,000 

 203,794 99,552

Other financing sources

From General Services Administration 3,507 2,803 

 3,507 2,803

$ 102,355 207,301 $ 

The balance of $203.8 and $99.6 million in budgetary financing sources for FY 2010 and 2009, respectively, reflects 

the elimination of intra-DOL transfers of $70.5 and $18.5 billion.
Annual Financial Statements 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

FY 2010 Agency Financial Report 111 

NOTE 18 - STATUS OF BUDGETARY RESOURCES

 

A. Apportionment Categories of Obligations Incurred

Obligations incurred reported on the Combined Statement of Budgetary Resources in FY 2010 and FY 2009 consisted 

of the following: 

(Dollars in thousands) 2010 2009

Direct Obligations

Category A $ 4,269,886 4,325,174 $ 

Category B 44,407,391 100,212,112 

Exempt from apportionment 152,050,136 126,042,413

Total direct obligations 174,719,690 256,587,422 

Reimbursable Obligations

Category A 231,280 254,927 

Category B 2,934,132 2,843,755

Total reimbursable obligations 3,189,059 3,075,035 

$ 259,776,481 $ 177,794,725

B. Permanent Indefinite Appropriations

DOL’s permanent indefinite appropriations include all trust funds, the Federal Employees’ Compensation Act 

Special Benefit Fund, the Panama Canal Commission Compensation Fund, the Energy Employees Occupational 

Illness Compensation Fund, ETA and ESA H-1B funds, ETA’s Advances and Payments to the Unemployment Trust 

Fund, and portions of State Unemployment Insurance and Employment Service Operations and Federal 

Unemployment Benefits and Allowances. These funds are described in Note 1-A.3. 

C. Legal Arrangements Affecting Use of Unobligated Balances

Unemployment Trust Fund receipts are reported as budget authority in the Combined Statement of Budgetary 

Resources. The portion of UTF receipts collected in the current year in excess of amounts needed to pay benefits 

and other valid obligations are precluded by law from being available for obligation. Therefore, these excess 

receipts are not classified as budgetary resources in the Combined Statement of Budgetary Resources. Current year 

excess receipts are reported as temporarily not available pursuant to Public Law. Conversely, when obligations 

exceed receipts in the current year, amounts are drawn from unavailable collections to meet these obligations. 

Cumulative excess receipts are not included in unobligated balances in the status of budgetary resources included in 

that Statement. All excess receipts are reported as assets of the UTF and are included in the Consolidated Balance 

Sheet. They will become available for obligation as needed in the future. 

The cumulative amounts of excess UTF receipts are denoted as unavailable collections in the Budget of the United 

States Government. The cumulative amount of these excess receipts at September 30, 2010 and 2009 reclassified 

from unobligated balances to UTF unavailable collections is presented on the following page. 
Financial Section 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

112 United States Department of Labor 

NOTE 18 - STATUS OF BUDGETARY RESOURCES - Continued 

C. Legal Arrangements Affecting Use of Unobligated Balances - Continued 

(Dollars in millions) 2010 2009

Unemployment Trust Fund unavailable collections, beginning $ 69,509 14,221 $ 

Budget authority from current year appropriations and borrowing authority 148,378 66,556 

Less obligations incurred (121,844) (151,636) 

Excess (deficiency) of budget authority over obligations (3,258) (55,288)

Unemployment Trust Fund unavailable collections, ending $ 10,963 $ 14,221

D. Explanation of Differences between the Combined Statement of Budgetary Resources and the Budget 

of the United States Government 

A reconciliation of budgetary resources, obligations incurred and net outlays, as presented in the Combined 

Statement of Budgetary Resources, to amounts included in the Budget of the United States Government for the 

year ended September 30, 2009 is shown below. 

Distributed

Budgetary Obligations Offsetting Net

(Dollars in millions) Resources Incurred Receipts Outlays

Combined Statement of Budgetary Resources $ 177,795 181,919 $ 24,625 $ 137,975 $ 

Pension Benefit Guaranty Corporation reported separately 4,772 17,609 194 - 

Distributed offsetting receipts - - 24,625 - 

Expired accounts (711) (132) - - 

Other 81 75 77 - 

Budget of the United States Government $ 198,898 $ 182,510 $ 162,871 24,625 $ 

E. Undelivered Orders 

Undelivered orders at September 30, 2010 and 2009 were as follows. 

(Dollars in thousands) 2010 2009

Undelivered orders $ 12,169,557 12,015,527 $ 
Annual Financial Statements 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

FY 2010 Agency Financial Report 113 

NOTE 18 - STATUS OF BUDGETARY RESOURCES - Continued 

F. Appropriations Received 

The Combined Statement of Budgetary Resources discloses appropriations received of $227,533 and $167,464 

million for FY 2010 and 2009, respectively. Appropriations received on the Consolidated Statement of Changes in 

Net Position are $101,267 and $35,525 million for FY 2010 and 2009, respectively. The differences of $126,266 and 

$131,939 million primarily represent certain fiduciary and earmarked receipts recognized as exchange revenue or 

non-exchange revenue reported on the Consolidated Statement of Net Cost or the Consolidated Statement of 

Changes in Net Position, respectively, in the current or prior years. Detail of these differences is presented below.

Refer to Note 1.Z for a discussion regarding the reclassifications on the FY 2009 Statement of Changes in Net 

Position. 

(Dollars in millions) 2010 2009

Receipts recognized as revenue and transfers in current or prior years

Unemployment Trust Fund $ 113,894 125,474 $ 

Black Lung Disability Trust Fund 596 7,177 

Other earmarked funds 193 196 

Fiduciary funds - 145

 121,409 126,266 

Other

Black Lung Disability Trust Fund redemption of debt and Other - 10,530

$ 131,939 126,266 $ 

G. Borrowing Authority 

As of September 30, 2010, section 2 of P.L. 111-46 (123 Stat. 1970 dated August 7, 2009) granted borrowing 

authority for repayable advances and other debt in the amount of “such sums as may be necessary” to the 

following trust funds: (1) Unemployment Trust Fund for advances as authorized by sections 905(d) and 1203 of the 

Social Security Act and (2) Black Lung Disability Trust Fund (BLDTF) for advances as authorized by section 9501(c)(1) 

of the Internal Revenue Code. Although section 9501 of the Internal Revenue Code and section 2 of P.L. 111-46 

both use the terminology "advance," the Treasury has interpreted this to mean any debt owed by the BLDTF to the 

Bureau of the Public Debt. 
Financial Section 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

114 United States Department of Labor 

NOTE 19 - RECONCILIATION OF BUDGETARY RESOURCES OBLIGATED TO NET COST OF OPERATIONS 

(Dollars in thousands) 2010 2009

Resources used to finance activities

Budgetary resources obligated

Obligations incurred $ 177,794,725 259,776,481 $ 

Recoveries of prior year obligations (162,552) (262,069) 

Less spending authority from offsetting collections (8,055,377) (7,191,289)

Obligations, net of offsetting collections and recoveries 251,558,552 170,341,367 

Other resources

Imputed financing from costs absorbed by others 173,055 136,653 

Transfers, net 2,803 3,507 

Exchange revenue not in budget (1,613,215) (2,211,750)

Total resources used to finance activities 250,121,899 168,269,073

Resources used to finance items not part of the net cost of operations

Change in budgetary resources obligated for goods, services and

 benefits ordered but not yet received or provided 188,220 (5,825,269) 

Resources that finance the acquisition of assets (113,686) (98,743) 

Obligations of fiduciary funds (140,736) - 

Transfers that do not effect the net cost of operations (75,452,547) (23,809,019)

Total resources used to finance items not part of the net cost of operations (75,378,013) (29,873,767)

Total resources used to finance the net cost of operations 174,743,886 138,395,306

Components of the net cost of operations that will not require or generate

 resources in the current period

 Components requiring or generating resources in other periods

Increase (decrease) in annual leave liability 9,194 (4,196) 

Increase in benefits liabilities 4,993,544 503,072 

Other 103,613 233,161

Total 5,106,351 732,037

Components not requiring or generating resources

Depreciation and amortization 82,310 76,038 

Revaluation of assets and liabilities 1,342,385 656,595 

Benefit overpayments (1,461,356) (741,485)

Total (36,661) (8,852)

Total components of the net cost of operations that will not

 require or generate resources in the current period 723,185 5,069,690 

Net cost of operations $ 179,813,576 $ 139,118,491
Annual Financial Statements 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

FY 2010 Agency Financial Report 115 

NOTE 20 - SOURCES AND DISPOSITIONS OF CUSTODIAL REVENUE 

Custodial revenues in FY 2010 consisted of the following: 

Net Cash Increase

Collections (Decrease) in

and Transfers to Amounts to

Cash Less U.S. Treasury be Collected Total

(Dollars in thousands) Collections Refunds General Fund and Transferred Revenues

Civil monetary penalties

OSHA 120,259 $ (59) $ 120,200 $ 28,128 $ 148,328 $ 

MSHA 82,986 (4) 82,982 (18,375) 64,607 

EBSA 24,761 2 24,763 (5) 24,758 

ESA 13,270 (123) 13,147 (5,212) 7,935

 (184) 241,276 241,092 4,536 245,628 

ETA disallowed grant costs 8,133 (86) 8,047 (1,098) 6,949 

Other 580 (757) (177) (76) (253)

$ 249,989 $ (1,027) $ 248,962 $ 3,362 $ 252,324

Custodial revenues in FY 2009 consisted of the following: 

Net Cash Increase

Collections (Decrease) in

and Transfers to Amounts to

Cash Less U.S. Treasury be Collected Total

(Dollars in thousands) Collections Refunds General Fund and Transferred Revenues

Civil monetary penalties

OSHA 65,418 $ (145) $ 65,273 $ 6,077 $ 71,350 $ 

MSHA 63,527 (120) 63,407 954 64,361 

EBSA 25,511 (475) 25,036 (203) 24,833 

ESA 15,947 - 15,947 53 16,000

 (740) 170,403 169,663 6,881 176,544 

ETA disallowed grant costs 5,479 5,479 - 648 6,127 

Other 1,292 (4) 1,288 (1) 1,287

$ (744) 177,174 $ $ 176,430 $ 183,958 7,528 $ 
Financial Section 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

116 United States Department of Labor 

NOTE 21 - EARMARKED FUNDS 

DOL is responsible for the operation of certain earmarked funds. Other earmarked funds include Gifts and 

Bequests, Panama Canal Commission Compensation Fund, and H-1B Funds. The financial position of the earmarked 

funds as of September 30, 2010 is shown below. 

Black Lung

(Dollars in thousands) Unemployment Disability Other Total

Assets

Intra-governmental

Funds with U.S. Treasury 88,491 $ 52,471 $ 349,615 $ 490,577 $ 

Investments 18,866,563 67,162 - 18,933,725 

Accounts receivable, net

Due from other Federal agencies

 for UCX and UCFE benefits 745,405 - - 745,405 

Other - - 1,113 1,113 

Total intra-governmental 19,700,459 52,471 417,890 20,170,820 

Accounts receivable, net

State unemployment tax 262,109 3 - 262,112 

Due from reimbursable employers 1,142,229 - 1,142,229 - 

Benefit overpayments 450,248 15,557 465,805 - 

Other - - - - 

Advances 1,628,384 2,871 - 1,631,255 

Other - - 705 705 

Total assets $ 23,183,429 $ 68,028 $ 23,672,926 421,469 $ 

Liabilities

Intra-governmental

Accounts payable to DOL agencies 1,866,105 $ $ 139 - $ 1,866,244 $ 

Debt 34,110,979 6,289,746 40,400,725 - 

Amounts held for the Railroad

 Retirement Board 29,582 - 29,582 - 

Other (690) - 2,412 3,102 

Total intra-governmental 36,005,976 6,289,746 3,241 42,298,963 

Accounts payable 1,861 10,374 - 12,235 

Future workers' compensation benefits 54,534 54,534 

Accrued benefits 5,051,818 16,894 615 5,069,327 

Total liabilities 41,059,655 6,306,640 68,764 47,435,059 

Net position

Cumulative results of operations (17,876,226) (6,238,612) (23,762,133) 352,705 

Total liabilities and net position $ 23,183,429 $ 68,028 $ 23,672,926 421,469 $ 
Annual Financial Statements 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

FY 2010 Agency Financial Report 117 

NOTE 21 - EARMARKED FUNDS - Continued 

The net results of operations of the earmarked funds for the year ended September 30, 2010 are shown below. 

Black Lung

(Dollars in thousands) Unemployment Disability Other Total

Cost, net of earned revenues

Benefits (143,689,319) $ (220,977) $ (289) $ (143,910,585) $ 

Grants - (132,912) - (132,912) 

Interest (1,001,853) (223,923) (5) (1,225,781) 

Administrative and other (1,568,235) (9,410) (10,714) (1,588,359) 

 (454,310) (146,259,407) (143,920) (146,857,637) 

Earned revenue 1,499,315 - 1,499,315 - 

Net cost of operations (144,760,092) (454,310) (145,358,322) (143,920) 

Net financing sources

Taxes 40,465,298 594,803 41,060,101 - 

Interest 776,082 2,304 553 778,939 

Reimbursement of unemployment benefits 4,721,275 - 4,721,275 - 

Imputed financing - 214 - 214 

Transfers-in

Department of Homeland Security - 195,728 - 195,728 

DOL entities 75,392,284 - 6,000 75,398,284 

Transfers-out

DOL entities (5,009,930) (58,138) - (5,068,068) 

Other financing sources - (2,950) (52,950) (50,000) 

 116,345,009 536,019 117,033,523 152,495 

Net results of operations (28,415,083) 81,709 8,575 (28,324,799) 

Net position, beginning of period 10,538,857 (6,320,321) 4,562,666 344,130 

Net position, end of period (17,876,226) $ $ (6,238,612) $ (23,762,133) 352,705 $ 
Financial Section 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

118 United States Department of Labor 

NOTE 21 - EARMARKED FUNDS - Continued 

The financial position of the earmarked funds as of September 30, 2009 is shown below. 

Black Lung

(Dollars in thousands) Unemployment Disability Other Total

Assets

Intra-governmental

Funds with U.S. Treasury 1,988,130 $ 52,469 $ 344,578 $ 2,385,177 $ 

Investments 19,845,269 73,254 - 19,918,523 

Accounts receivable, net

Due from other Federal agencies

 for UCX and UCFE benefits 475,630 - 475,630 - 

Total intra-governmental 22,309,029 52,469 417,832 22,779,330 

Accounts receivable, net

State unemployment tax 262,970 - 262,970 - 

Due from reimbursable employers 687,213 - 687,213 - 

Benefit overpayments 308,359 15,129 323,488 - 

Other - 2 - 2 

Advances 1,510,624 - 1,510,624 - 

Other - - 588 588 

Total assets $ 25,078,195 $ 67,598 $ 25,564,215 418,422 $ 

Liabilities

Intra-governmental

Accounts payable to DOL agencies 2,283,650 $ $ - $ 2,283,650 - $ 

Debt 7,981,387 6,370,580 14,351,967 - 

Amounts held for the Railroad

 Retirement Board 35,552 - 35,552 - 

Other - - 7,372 7,372 

Total intra-governmental 10,300,589 6,370,580 7,372 16,678,541 

Accounts payable - 10,371 - 10,371 

Future workers' compensation benefits - 55,925 - 55,925 

Accrued benefits 4,238,749 17,339 4,256,088 - 

Other - - 624 624 

Total liabilities 14,539,338 6,387,919 21,001,549 74,292 

Net position

Cumulative results of operations 10,538,857 (6,320,321) 4,562,666 344,130 

Total liabilities and net position $ 25,078,195 $ 67,598 $ 25,564,215 418,422 $ 
Annual Financial Statements 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

FY 2010 Agency Financial Report 119 

NOTE 21 - EARMARKED FUNDS - Continued 

The net results of operations of the earmarked funds for the year ended September 30, 2009 is shown below. 

Black Lung

(Dollars in thousands) Unemployment Disability Other Total

Cost, net of earned revenues

Benefits (114,281,060) $ (240,625) $ (8,739) $ (114,530,424) $ 

Grants - (110,869) - (110,869) 

Interest (34,228) (231,292) (265,520) - 

Loss on debt refinancing (2,495,660) - (2,495,660) - 

Administrative and other (368,303) (384) (384,375) (15,688) 

 (2,967,961) (114,683,591) (135,296) (117,786,848) 

Earned revenue 1,004,431 - 1,004,431 - 

 (113,679,160) (2,967,961) (116,782,417) (135,296) 

Net financing sources

Taxes 35,309,497 644,881 35,954,378 - 

Interest 2,056,548 1,283 1,976 2,059,807 

Reimbursement of unemployment benefits 2,763,817 - 2,763,817 - 

Imputed financing - 170 - 170 

Transfers-in

Department of Homeland Security - 94,451 - 94,451 

DOL entities 17,273,663 6,497,989 23,771,652 - 

Transfers-out

DOL entities (5,294,564) (57,327) (5,351,891) - 

 52,108,961 7,086,826 59,292,384 96,597 

Net results of operations (61,570,199) 4,118,865 (38,699) (57,490,033) 

Net position, beginning of period 72,109,056 (10,439,186) 62,052,699 382,829 

Net position, end of period $ 10,538,857 $ (6,320,321) $ 4,562,666 344,130 $ 
Financial Section 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

120 United States Department of Labor 

 NOTE 22 - FIDUCIARY ACTIVITY 

The Department has one deposit fund and two trust funds that fall under the definition of fiduciary activity 

promulgated by SFFAS 31, "Accounting for Fiduciary Activities”. The schedule of fiduciary activity for these funds 

for the year ended September 30, 2010 is shown below. 

Longshore District of

Wage and Hour and Harbor Columbia

and Public Workers' Workmen's

Contracts Compensation Compensation Total

Restitution Act Trust Act Trust Fiduciary

(Dollars in thousands) Fund Fund Fund Funds

Fiduciary activity

Assessments 35,318 $ 129,761 $ 11,094 $ 176,173 $ 

Investment earnings 5 41 46 

Administrative and other expenses - (322) (6) (328) 

Transfer of funds to Treasury (8,162) (2,124) - (10,286) 

Disbursements to beneficiaries (21,273) (128,550) (9,382) (159,205) 

Increase (decrease) in fiduciary net assets 5,883 (1,194) 1,711 6,400 

Fiduciary net assets, beginning of year 26,404 86,447 3,980 116,831 

Fiduciary net assets, end of year $ 25,210 92,330 $ 5,691 $ 123,231 $ 

The schedule of fiduciary net assets for these funds as of September 30, 2010 is shown below. 

Longshore District of

Wage and Hour and Harbor Columbia

and Public Workers' Workmen's

Contracts Compensation Compensation Total

Restitution Act Trust Act Trust Fiduciary

(Dollars in thousands) Fund Fund Fund Funds

Fiduciary assets

Cash 91,304 $ 5,446 $ 2,870 $ 99,620 $ 

Investments - 60,579 5,143 65,722 

Other assets 1,026 2,946 148 4,120 

Less: liabilities - (43,761) (2,470) (46,231) 

Total fiduciary net assets $ 25,210 92,330 $ 5,691 $ 123,231 $ 

Unqualified opinions were expressed on separate financial statements issued for the Longshore and Harbor 

Workers’ Compensation Act Trust Fund and the District of Columbia Workmen’s Compensation Act Trust Fund for FY 

2009. These separate financial statements were presented in accordance with U.S. GAAP. Copies of these financial 

statements are available on DOL’s website at http://www.oig.dol.gov. 
Annual Financial Statements 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

FY 2010 Agency Financial Report 121 

NOTE 22 - FIDUCIARY ACTIVITY - Continued 

The schedule of fiduciary activity for the fiduciary funds for the year ended September 30, 2009 is shown below. 

Longshore District of

Wage and Hour and Harbor Columbia

and Public Workers' Workmen's

Contracts Compensation Compensation Total

Restitution Act Trust Act Trust Fiduciary

(Dollars in thousands) Fund Fund Fund Funds

Fiduciary activity

Assessments 37,941 $ 130,209 $ 10,730 $ 178,880 $ 

Investment earnings 44 - 4 48 

Administrative and other expenses (2,101) - (2,101) - 

Transfer of funds to Treasury (9,783) (9,783) 

Disbursements to beneficiaries (23,653) (128,993) (9,777) (162,423) 

Increase (decrease) in fiduciary net assets 4,505 (841) 957 4,621 

Fiduciary net assets, beginning of year 81,942 27,245 112,210 3,023 

Fiduciary net assets, end of year $ 86,447 $ 26,404 $ 116,831 3,980 $ 

The schedule of fiduciary net assets for these funds as of September 30, 2009 is shown below. 

Longshore District of

Wage and Hour and Harbor Columbia

and Public Workers' Workmen's

Contracts Compensation Compensation Total

Restitution Act Trust Act Trust Fiduciary

(Dollars in thousands) Fund Fund Fund Funds

Fiduciary assets

Cash 80,034 $ 2,085 $ 995 $ 83,114 $ 

Investments 58,969 - 5,228 64,197 

Other assets 6,413 3,756 674 10,843 

Less: liabilities - (38,406) (2,917) (41,323) 

Total fiduciary net assets $ 86,447 $ 26,404 $ 116,831 3,980 $ 
Financial Section 

NOTES TO CONSOLIDATED FINANCIAL STATEMENTS 

For the Years Ended September 30, 2010 and 2009 

122 United States Department of Labor 

NOTE 23 - SUBSEQUENT EVENTS

Permanent Indefinite Appropriations Returned to the U.S. Department of the Treasury 

Subsequent to September 30, 2010, the Department returned to the U.S. Department of the Treasury permanent 

indefinite appropriations unobligated as of September 30, 2010, in the amount of $1.2 billion. In addition, $2.9 

billion of borrowings from indefinite appropriations were repaid effective as of September 30, 2010. The effects of 

these events are reflected in the Department’s financial statements, notes, and required supplementary 

information. 

The financial statements, notes, and required supplementary information do not reflect the effects of the 

subsequent events described below. 

Unemployment Insurance 

Subsequent to September 30, 2010, the Extended Unemployment Compensation Account (EUCA) of the 

Unemployment Trust Fund (UTF) borrowed as Advances from U.S. Treasury, $9.0 billion at interest rates ranging 

from 2.875% to 3.0%. During the same period, the Federal Unemployment Account (FUA) of the UTF borrowed as 

Advances from U.S. Treasury, $10.0 billion at interest rates ranging from 2.875% to 3.0%. 

P.L. 111-312, the Tax Relief, Unemployment Insurance Reauthorization, and Job Creation Act of 2010, was enacted 

on December 17, 2010. This Act, among other things, authorized continuing 100% Federal funding of extended 

unemployment benefits to January 4, 2012, and changed the expiration date of the emergency unemployment 

insurance program to January 3, 2012. 

Office of Workers' Compensation Programs (OWCP) 

The Division of Coal Mine Workers' Compensation (DCMWC) within OWCP administers the Black Lung Program and 

the payment of benefits under the Black Lung Benefits Act. The Federal Coal Mine Health and Safety Act, Section 

412(a)(1), sets Black Lung benefits at 37.5% of the base salary of a Federal employee at level GS-2, Step 1. P.L. 111-

322, the Continuing Appropriations and Surface Transportation Extensions Act of 2011, was enacted on December 

22, 2010. This Act, among other things, provided that no Federal employee (as defined in 5 USC 2105) statutory 

pay adjustment would take effect during the period January 1, 2011 through December 31, 2012. As a result, 

because the Federal employee base salary will remain unchanged through 2012, the rates for Black Lung benefits 

will likewise remain unchanged through 2012. The Statement of Social Insurance, related notes, and Black Lung 

Disability Benefit Program required supplementary information do not reflect P.L. 111-322’s unchanged benefit 

rates through 2012. 

The Division of Federal Employees' Compensation within OWCP administers the Federal Employees' Compensation 

Act (FECA) program and the payment of workers' compensation benefits to federal and postal workers for 

employment-related injuries and occupational diseases. Federal Agencies and the U.S. Postal Service (USPS) 

reimburse the FECA Special Benefits Fund for payments made on behalf of their workers. In October 2010, the 

USPS reimbursed the FECA Special Benefits Fund for $1.145 billion. In their FY 2010 Annual Report issued 

November 15, 2010, the USPS disclosed in the notes to their audited financial statements that they will have 

insufficient cash available to make the 2011 annual payment. In their first and second quarter FY 2011 Quarterly 

Reports issued in February and May 2011, respectively, the USPS repeated similar disclosures in the notes to their 

financial statements. In Note 11, Future Workers’ Compensation Benefits, the USPS liability of $10.6 billion 

represents the largest portion of the projected gross liability of the Federal government for future FECA benefits 

attributed to other Agencies of $27.7 billion.
 

Required Supplementary Stewardship Information 
Financial Section 

REQUIRED SUPPLEMENTARY STEWARDSHIP INFORMATION 

(Unaudited) 

124 United States Department of Labor

STEWARDSHIP INVESTMENTS IN HUMAN CAPITAL 

Stewardship investments are made by DOL on behalf of the nation, providing long-term benefits that cannot be 

measured in traditional financial reports. These investments are made for the general public, and are intended to 

maintain or increase national economic productive capacity. DOL’s stewardship investments are in human capital, 

reported as employment and training expenses in DOL’s net cost of operations. Within DOL, the Employment and 

Training Administration (ETA), the Office of Job Corps (OJC), and the Veterans’ Employment and Training Service

(VETS) administer training programs that invest in human capital. 

Employment and Training Administration 

 And the Office of Job Corps 

In 2010, ETA incurred total net costs of $167.9 billion. The majority of ETA’s total net costs consisted of 

unemployment benefit payments, which increased by over $100 billion from pre-recession levels. Also included in 

ETA’s total net costs were investments in human capital of $6.5 billion, which provided services to over 9.3 million 

participants in 2010. These investments were made through job training programs authorized by the Workforce 

Investment Act of 1998 (WIA), Title V of the Older Americans Act, the Trade Act of 1974, as amended by the Trade 

Adjustment Assistance Reform Act of 2002, and the National Apprenticeship Act of 1937. The Office of Job Corps 

also invests in human capital through WIA job training programs. OJC’s investment in human capital in 2010 was 

$1.7 billion. In February 2009, Congress enacted the American Recovery and Reinvestment Act (ARRA), which 

authorized additional funding for job training, which was distributed through these established training programs in 

2010. The ETA and OJC job training programs under WIA are discussed below. 

Workforce Investment Act Job Training Programs 

Adult employment and training programs – ETA awards grants to States and territories to design and operate 

training and employment assistance programs for disadvantaged adults, including public assistance recipients. 

ETA’s 2010 investment in human capital through WIA adult programs was $899 million.

Dislocated worker employment and training programs – ETA awards grants to States to provide reemployment 

services and retraining assistance to individuals dislocated from their employment. ETA awards noncompetitive grants for unexpected economic impacts and emergency dislocations; and competitive grants from 

the national reserve account to build training capacity and to train workers through community and technical 

colleges. ETA’s 2010 investment in human capital through WIA dislocated worker programs was $2,539 million.

Youth programs – ETA awards grants to states to support program activities and services to prepare low-income 

youth for academic and employment success, including summer jobs, by linking academic and occupational 

learning with youth development activities. ETA’s 2010 investment in human capital through WIA youth 

programs was $1,431 million.

Job Corps program – OJC awards contracts to support a system of primarily residential centers offering basic 

education, training, work experience and other support, typically to economically disadvantaged youth. Large 

and small corporations and non-profit organizations manage and operate 96 Job Corps centers under these 

contractual arrangements. The remaining 28 centers are operated through interagency agreements between 

DOL and the U.S. Departments of Agriculture and Interior. In addition, 20 operators are contracted to provide 

outreach and admissions (OA) and career transition services (CTS). OJC’s 2010 investment in human capital 

through the WIA Job Corps program was $1,663 million.
Annual Financial Statements 

REQUIRED SUPPLEMENTARY STEWARDSHIP INFORMATION 

(Unaudited) 

FY 2010 Agency Financial Report 125

Reintegration of Ex-Offenders – ETA supports programs to help individuals exiting prison make a successful 

transition to community life and long-term employment through the provision of mentoring and job training 

programs to promote the successful return of adult and juvenile ex-offenders into mainstream society. ETA’s 

2010 investment in human capital through ex-offender programs was $70 million.

National programs – ETA’s National programs provide employment and training services and support through WIA 

nationally administered activities, for segments of the population that have special disadvantages in the labor 

market, including grants to Indian tribes and other Native American governments or non-profit organizations, 

and to Migrant and Seasonal Farmworker service organizations, to provide training, work experience and 

employment-related services to eligible participants. ETA’s 2010 investment in human capital through WIA 

National Programs was $134 million.

Title V of the Older Americans Act, as Amended

ETA also invests in human capital through its older worker program, authorized under Title V of the Older 

Americans Act, to benefit low income workers, age 55 and over. The Older Americans Act Amendments of 2006, 

reauthorized and provided important reforms to Title V’s Community Service Employment for Older Americans 

Program, including an increase in the percentage of program funds available for skills training and related services. 

Community Service Employment for Older Americans program (CSEOA) – An employment and training program 

that provides part-time training through work experience in community service activities for low-income 

persons age 55 and older, who wish to remain in or re-enter the workforce, with the ultimate goal of moving 

the participants into unsubsidized employment. ETA’s 2010 investment in human capital through the CSEOA 

program was $740 million.

Trade Act of 1974, as Amended 

ETA makes investments in human capital through training programs authorized by the Trade Act of 1974, as 

amended by the Trade Adjustment Assistance Reform Act of 2002, which consolidated the Trade Adjustment 

Assistance (TAA) and the NAFTA Trade Adjustment Assistance programs into a single, enhanced TAA program. 

Trade Adjustment Assistance programs – TAA programs provide training, income support and related assistance 

to workers who have been adversely affected by foreign trade agreements. TAA benefit payments are 

classified as income maintenance program costs and are not included as investments in human capital. ETA’s 

2010 investment in trade adjustment assistance training programs was $540 million.

The National Apprenticeship Act 

The National Apprenticeship Act of 1937 established the foundation for development of the nation’s skilled 

workforce through apprenticeship programs, which combine on-the-job learning with related technical 

instruction to teach workers the theoretical aspects of skilled occupations. Funding provides a national system 

for skilled and technical occupational training, which promotes apprentices, registers apprenticeship programs, 

certifies apprenticeship standards, and safeguards the welfare of apprentices. ETA’s 2010 investment in 

apprenticeship programs was $28 million.
Financial Section 

REQUIRED SUPPLEMENTARY STEWARDSHIP INFORMATION 

(Unaudited) 

126 United States Department of Labor

Program Costs and Outputs 

The cost of ETA and OJC investments in human capital, and the participants served by each, are shown in the chart 

below, for the five year period FY 2006 through FY 2010. 

ETA And OJC Investments in Human Capital 

Program Costs (in Millions) and Participants Served (in Thousands)* 

For The Five Year Period FY 2006 through FY 2010 

 

2010 2009 2008 2007 2006 

Program Costs 

Part. 

Served Costs 

Part. 

Served Costs 

Part. 

Served Costs 

Part. 

Served Costs 

Part. 

Served

WIA 

Adult (1) $899 6,695.3 $878 4,921.8 $844 2,828.7 $ 896 1,723.2 $ 912 1,052.6 

Dislocated 

Worker (2) 2,539 1,250.4 1,440 842.1 1,307 401.3 1,409 413.1 1,543 398.2 

Youth (3) 1,431 316.3 1,125 438.9 966 250.7 866 248.9 1,017 272.9 

Job Corps 1,663 59.8 1,640 60.9 1,589 63.4 1,485 64.8 1,402 61.0 

ExOffenders (4) 70 36.1 58 9.8 61 14.2 76 15.7 52 11.5 

National 

Programs (5) 134 61.3 206 35.0 206 44.7 220 44.0 267 42.1 

Title V 

CSEOA 740 103.6 543 89.0 479 89.6 444 86.4 432 93.5 

Trade Act 

TAA Training 540 232.7 286 105.0 248 82.1 223 79.2 189 84.2 

Apprenticeship 

Act 

Apprenticeship 

System 28 485.4 25 301.6 25 385.7 24 309.5 25 237.9 

Other (6) 139 95.8 120 Na 108 Na 91 Na 99 Na 

TOTAL $8,183 9,336.7 $6,321 6,804.1 $5,833 4,160.4 $5,734 2,984.8 $5,938 2,253.9 

 * Certain program costs were reclassified, beginning in 2006, due to changes in allocation methodologies adopted in 2009.

(1) Adult program increases in participants served, beginning in 2006, can be attributed to state reports that include selfservice only participants and/or co-enrolled Wagner-Peyser participants. 

(2) Dislocated Worker programs include Community Based Job Training Grants, National Emergency Grants and Green Job 

Training. ARRA activities account for the 2010 increases in costs and participants served. 

(3) Youth program participants served in 2010 include youth reported in ARRA monthly reports. 

(4) Ex-Offender programs include the Prisoner Re-entry and Youthful Offender programs. 

(5) National Programs include the Native American and Migrant and Seasonal Farmworker programs. 

(6) Other includes training programs for highly skilled occupations funded through H1-B fees, and costs for lapsed programs. 
Annual Financial Statements 

REQUIRED SUPPLEMENTARY STEWARDSHIP INFORMATION 

(Unaudited) 

FY 2010 Agency Financial Report 127

Program Outcomes 

Outcomes for training programs comprising ETA’s investment in human capital are presented in the Department’s 

Annual Performance Report for FY 2010 available on the DOL website www.dol.gov/%5Fsec/media/reports/. 

Veterans Employment and Training Service 

The mission of the Veterans Employment and Training Service (VETS) is to provide veterans and transitioning 

service members with the resources and services to succeed in the 21st century workforce, maximizing employment 

opportunities, protecting employment rights, and meeting labor market demands with qualified veterans. 

Program Activities 

 

Jobs for Veterans State Grants 

The Jobs for Veterans Act (JVA) of 2002, which allocates resources to the States through the Jobs for Veterans State 

grants program, supports the majority of VETS activities through three major VETS programs, as discussed below: 

 Disabled Veterans Outreach Program (DVOP) Specialist – The DVOP, (38 U.S.C. 4103A), awards formula grants 

to State Workforce Agencies (SWAs) to support DVOP specialists providing intensive services to meet the 

employment needs of veterans, including counseling, assessment, lifelong learning skills and referral to training, 

particularly veterans with disabilities or those who recently separated from the military. 

 Local Veterans Employment Representative (LVER) – The LVER, (38 U.S.C. 4104), provides grants to State 

Workforce Agencies (SWAs) for the appointment of LVER staff positions identified in Job Service local offices 

and One-Stop Career Centers, to enhance veterans’ services and help them into productive employment.

 Transition Assistance Program (TAP) – TAP, (38 U.S.C. 4215 and 10 U.S.C. 1144), operates as a partnership 

between the Departments of Labor, Defense, Homeland Security and Veterans Affairs. The program provides 

separating service members and their spouses or individuals retiring from military service with career 

counseling and training. TAP workshops are provided throughout the United States and overseas. 

 

Federal Management 

VETS Federal management activities provide programs and policies to meet the employment and training needs of 

veterans. The majority of resources are devoted to Uniformed Services Employment and Reemployment Rights and 

Veterans Preference Rights (USERRA) compliance and outreach. Activities, as discussed below: 

 Uniformed Services Employment and Reemployment Rights and Veterans Preference Rights – The Uniformed 

Services Employment and Reemployment Rights Act (USERRA) of 1994, codified at 38 U.S.C. Chapter 43,

protects civilian job rights and benefits for veterans, members of the National Guard and Reserves. Veterans 

Preference for Federal Employment is codified in 5 U.S.C. 2108. VETS promotes a productive relationship 

between employer and employee by educating both on the employment rights of the individual veterans.
Financial Section 

REQUIRED SUPPLEMENTARY STEWARDSHIP INFORMATION 

(Unaudited) 

128 United States Department of Labor

Homeless Veterans and Veterans’ Workforce Investment Programs 

 Homeless Veterans Reintegration Project (HVRP) – The HVRP, codified at 38 U.S.C. 2021, provides employment 

assistance to homeless veterans through competitive grants to States or other entities in both urban and rural 

areas to operate employment programs to reach out to homeless veterans and help them become employed.

Veterans’ Workforce Investment Program (VWIP) - The VWIP, (38 U.S.C. 2913), provides competitive grants for 

training and retraining of veterans to create highly skilled employment opportunities for targeted veterans. 

Program Costs and Outputs 

The full cost of VETS programs is presented in the Statement of Net Costs. The costs of VETS investments in human 

capital, and the participants served by this investment, are presented below, by major program. 

VETS Investments in Human Capital 

Program Costs and Participants Served (in Thousands) 

For The Five Year Period FY 2006 through FY 2010 

2010 2009 2008 2007 2006 

Program Costs 

Part. 

Served Costs 

Part. 

Served Costs 

Part. 

Served Costs 

Part. 

Served Costs 

Part. 

Served 

DVOP 

 

$99,818 351.1 $91,064 345.1 $86,844 363.8 $86,667 363.4 $86,153 398.1 

LVER 

 

91,984 357.9 83,917 362.3 80,028 366.4 80,000 400.6 79,526 429.3 

TAP 

 

7,928 129.0 7,233 124.7 6,898 150.0 7,704 151.3 4,792 139.5 

USERRA 

 

11,043 101.6 10,075 107.9 9,100 93.0 9,170 70.8 8,819 109.9 

HVRP 

 

31,746 14.4 28,962 13.7 27,620 14.0 27,504 12.8 26,975 13.8 

VWIP 

 

8,794 3.3 8,023 3.6 7,651 3.3 7,667 3.6 9,123 3.8 

 TOTAL 

 

$251,313 957.3 $229,274 957.3 $218,141 990.5 $218,712 1,002.5 $215,388 1,094.4 

Program Outcomes 

Outcomes for the programs comprising VETS’ investment in human capital are presented in the Department’s 

Annual Performance Report for FY 2010 available on the DOL website www.dol.gov/%5Fsec/media/reports/. 
 

Required Supplementary Information 
Financial Section 

REQUIRED SUPPLEMENTARY INFORMATION 

(Unaudited) 

130 United States Department of Labor 

DEFERRED MAINTENANCE

The U.S. Department of Labor (DOL) maintains one hundred twenty-four (124) Job Corps centers located throughout 

the United States. Periodic maintenance is performed to keep these centers in acceptable condition, as determined 

by Job Corps management. Maintenance requirements are stratified by management into critical and non-critical 

projects. Critical maintenance involves life, safety, health, and environmental issues, as well as building code 

compliance deficiencies. Critical maintenance projects are funded and performed in the year they are identified. 

Non-critical maintenance projects are performed each year to the extent that funding constraints allow. Non-critical 

maintenance projects that cannot be funded when scheduled are deferred to a future period. 

Condition Assessment Surveys 

Condition assessment surveys are conducted every three years at each Job Corps center to determine the current 

condition of buildings and structures (constructed assets) and the estimated maintenance cost to correct 

deficiencies. Surveys conducted during years one and two of this three year cycle are updated annually to reflect 

maintenance performed, and rolled up with current assessments to provide a condition assessment for the entire 

Job Corps portfolio of constructed assets. Condition assessment surveys are based on methods and standards 

consistently applied, including: 

 - condition descriptions of facilities - recommended maintenance schedules 

 - estimated costs of maintenance actions - standardized condition codes 

Asset Condition

Condition assessment surveys are used to estimate the current plant replacement value and deferred maintenance 

repair backlog for every constructed asset at each Job Corps center. Plant replacement value and repair backlog are 

used to calculate a Facilities Condition Index (FCI) for each building and structure. The chart below ranks each asset 

within one of five categories of asset condition, based on the assets FCI score, for the previous five year period. 

Job Corps Center Constructed Assets 

Ranking of Individual Asset Condition By FCI Scores(1)

For the Fiscal Years Ended September 30, 2006 – September 30, 2010 

 

2010 2009 2008 2007 2006(2)

Asset 

Condition FCI Score 

No. of

Assets 

Asset 

% 

No. of

Assets 

Asset

% 

No. of

Assets 

Asset

% 

No. of

Assets 

Asset

% 

No. of

Assets 

Asset

% 

Excellent 90‐ 100% 3,273 86.4 3,037 84.6 2,878 81.9 2,966 80.9 2,665 75.1 

Good 80‐ 89% 282 7.4 290 8.1 311 8.9 338 9.2 433 12.2

Fair 70‐ 79% 90 2.4 95 2.6 115 3.3 126 3.4 145 4.1

Poor 60‐ 69% 57 1.5 71 2.0 89 2.5 98 2.7 135 3.8

Very Poor < 60% 88 2.3 96 2.7 118 3.4 136 3.8 170 4.8

3,790 100.0 3,589 100.0 3,511 100.0 3,664 100.0 3,548 100.0 

(1) FCI = 1 – (Repair Backlog / Plant Replacement Value). An FCI closer to 100 % indicates better asset condition. 

(2) FCI scores for 2006 were distributed based on modifications to the calculation of asset condition implemented in 2007. 
Annual Financial Statements 

REQUIRED SUPPLEMENTARY INFORMATION 

(Unaudited) 

FY 2010 Agency Financial Report 131

Portfolio Condition and Deferred Maintenance Cost Estimates 

The FCI assessments by building and structure are consolidated to calculate an FCI score for the entire portfolio of 

constructed assets, which is used to evaluate the overall asset condition of the Job Corps portfolio. Job Corps has 

set the goal of achieving and maintaining an FCI of 90% or greater (the standard used by the National Association of 

College and University Business Offices) for its portfolio of constructed assets. In 2010, the portfolio’s aggregate FCI 

score for 3,790 constructed assets was 93.4%, and deferred maintenance costs to return the portfolio to an 

acceptable condition were estimated at $89.8 million, as shown in the table below. The final graph juxtaposes 

deferred maintenance cost estimates with the FCI trend line for the five year period ending in 2010. 

Job Corps Center Constructed Assets 

Portfolio Condition and Deferred Maintenance Cost Estimates at 

September 30, 2006 - 2010 

 

Constructed Assets - FY 

Number of

Constructed

Assets

Portfolio Condition

Based on 

Aggregate FCI Score

Deferred Maintenance

Costs to Return Assets 

To Acceptable Condition

Buildings and structures - 2010 3,790 Excellent - 93.4% $89,827,363 

Buildings and structures - 2009 3,589 Excellent - 91.7% $83,861,828 

Buildings and structures - 2008 3,511 Excellent - 92.2% $71,901,425 

Buildings and structures - 2007 3,664 Excellent - 90.8% $87,372,700 

Buildings and structures - 2006 3,548 Excellent - 96.3% $92,100,000 

 

 

Deferred Maintenance Cost Estimates and FCI Trend Line

$0

$20,000,000

$40,000,000

$60,000,000

$80,000,000

$100,000,000

2006 2007 2008 2009 2010

Fiscal Year

Deferred Maintenance

88.0%

89.0%

90.0%

91.0%

92.0%

93.0%

94.0%

95.0%

96.0%

97.0%

Facilities Condition Index

DM FCI FCI Trendline
Financial Section 

REQUIRED SUPPLEMENTARY INFORMATION 

(Unaudited) 

132 United States Department of Labor 

SOCIAL INSURANCE PROGRAMS

The Federal Accounting Standards Advisory Board (FASAB) has classified certain government income transfer 

programs as social insurance programs. Recognizing that these programs have complex characteristics that do not 

fit traditional accounting models, the FASAB has developed accounting standards for social insurance programs 

which require the presentation of supplementary information to facilitate the assessment of the program’s longterm sustainability. 

The U.S. Department of Labor operates two programs classified under Federal accounting standards as social 

insurance programs, the Unemployment Insurance Program and the Black Lung Disability Benefits Program. 

Presented below is the supplementary information for the two programs. 

Unemployment Insurance Program 

The Unemployment Insurance (UI) Program was created in 1935 to provide income assistance to unemployed 

workers who lose their jobs through no fault of their own. The program protects workers during temporary periods 

of unemployment through the provision of unemployment compensation benefits. These benefits replace part of 

the unemployed worker’s lost wages and, in so doing, stabilize the economy during recessionary periods by 

increasing the unemployed’s purchasing power. The UI program operates counter cyclically, with benefits 

exceeding tax collections during recessionary periods and UI tax revenues exceeding benefit payments during 

periods of recovery. 

Program Administration and Funding 

The UI program is administered through a unique system of Federal-State partnerships, established in Federal law 

but executed through conforming State laws by State officials. The Federal government provides broad policy 

guidance and program direction through the oversight of the U.S. Department of Labor, while program details are 

established through individual State UI statutes, administered through State UI agencies. 

Federal and State Unemployment Taxes 

The UI program is financed through the collection of Federal and State unemployment taxes levied on subject 

employers and deposited in the Unemployment Trust Fund (UTF). The UTF was established to account for the 

receipt, investment and disbursement of unemployment taxes. Federal unemployment taxes are used to pay for 

the administrative costs of the UI program, including grants to each State to cover the costs of State UI operations 

and the Federal share of extended UI benefits. Federal unemployment taxes are also used to maintain a loan 

account within the UTF, from which insolvent States may borrow funds to pay UI benefits. State UI taxes are used 

exclusively for the payment of regular UI benefits, as well as the State’s share of extended benefits. 

Federal Unemployment Taxes 

Under the provisions of the Federal Unemployment Tax Act (FUTA), a Federal tax is levied on covered 

employers, at a current rate of 6.2% of the first $7,000 in annual wages paid to each employee. This 

Federal tax rate is reduced by a credit of up to 5.4%, granted to employers paying State UI taxes under 

conforming State UI statutes. Accordingly, in conforming States, employers paid an effective Federal tax of 

0.8% (0.6% starting July 1, 2011). Federal unemployment taxes are collected by the Internal Revenue 

Service. 
Annual Financial Statements 

REQUIRED SUPPLEMENTARY INFORMATION 

(Unaudited) 

FY 2010 Agency Financial Report 133

State Unemployment Taxes 

In addition to the Federal tax, individual States finance their UI programs through State tax contributions 

from subject employers based on the wages of covered employees. (Three States also collect contributions 

from employees.) Within Federal confines, State tax rates are assigned in accordance with an employer’s 

experience with unemployment. Actual tax rates vary greatly among the States and among individual 

employers within a State. At a minimum, these rates must be applied to the Federal tax base of $7,000; 

however, States may adopt a higher wage base than the minimum established by FUTA. State UI agencies 

are responsible for the collection of State unemployment taxes. 

 

Unemployment Trust Fund 

Federal and State UI taxes are deposited into designated accounts within the Unemployment Trust Fund. The UTF 

was established under the authority of Title IX, Section 904 of the Social Security Act of 1935, as amended, to 

receive, hold, invest, loan and disburse Federal and State UI taxes. The U.S. Department of the Treasury acts as 

custodian over monies deposited into the UTF, investing amounts in excess of disbursing requirements in Treasury 

securities. The UTF is comprised of the following accounts: 

Federal Accounts 

The Employment Security Administration Account (ESAA) was established pursuant to Section 901 of the 

Act. All tax receipts collected under the Federal Unemployment Tax Act (FUTA) are appropriated to the 

ESAA and used to pay the costs of Federal and State administration of the unemployment insurance 

program and veterans’ employment services, as well as 97 % of the costs of the State employment services. 

Excess balances in ESAA, as defined under the Act, are transferred to other Federal accounts within the 

Fund, as described below. 

The Federal Unemployment Account (FUA) was established pursuant to Section 904 of the Act. FUA is 

funded by any excesses from the ESAA as determined in accordance with Section 902 of the Act. Title XII, 

Section 1201 of the Act authorizes the FUA to loan Federal monies to State accounts that are unable to 

make benefit payments because the State UI account balance has been exhausted. Title XII loans must be 

repaid with interest. The American Recovery and Reinvestment Act of 2009 waived interest on advances to 

State accounts for the period February 17, 2009, through December 31, 2010. The FUA may borrow from 

the ESAA or EUCA, without interest, or may also receive repayable advances, with interest, from the 

general fund of the U.S. Treasury, when the FUA has a balance insufficient to make advances to the States. 
Financial Section 

REQUIRED SUPPLEMENTARY INFORMATION 

(Unaudited) 

134 United States Department of Labor 

The Extended Unemployment Compensation Account (EUCA) was established pursuant to Section 905 of 

the Act. EUCA provides for the payment of extended unemployment benefits authorized under the 

Federal-State Extended Unemployment Compensation Act of 1970, as amended. Under the extended 

benefits program, extended unemployment benefits are paid to individuals who have exhausted their 

regular unemployment benefits. These extended benefits are financed one-half by State unemployment 

taxes and one-half by FUTA taxes from the EUCA. The EUCA is funded by a percentage of the FUTA tax 

transferred from the ESAA in accordance with Section 905(b)(1) and (2) of the Act. The EUCA may borrow 

from the ESAA or the FUA, without interest, or may also receive repayable advances from the general fund 

of the Treasury when the EUCA has a balance insufficient to pay the Federal share of extended benefits. 

During periods of sustained high unemployment, the EUCA may also receive payments and non-repayable 

advances from the general fund of the Treasury to finance emergency unemployment compensation 

benefits. Emergency unemployment benefits require Congressional authorization. 

The Federal Employees Compensation Account (FEC) was established pursuant to Section 909 of the Act. 

The FEC account provides funds to States for unemployment compensation benefits paid to eligible former 

Federal civilian personnel and ex-service members. Generally, benefits paid are reimbursed to the Federal 

Employees Compensation Account by the various Federal agencies. Any additional resources necessary to 

assure that the account can make the required payments to States, due to the timing of the benefit 

payments and subsequent reimbursements, will be provided by non-repayable advances from the general 

fund of the Treasury. 

 

State Accounts 

Separate State Accounts were established for each State and territory depositing monies into the Fund, in 

accordance with Section 904 of the Act. State unemployment taxes are deposited into these individual 

accounts and may be used only to pay State unemployment benefits. States may receive repayable 

advances from the FUA when their balances in the Fund are insufficient to pay benefits. 

Railroad Retirement Accounts 

The Railroad UI Account and Railroad UI Administrative Account were established under Section 904 of the 

Act to provide for a separate unemployment insurance program for railroad employees. This separate 

unemployment insurance program is administered by the Railroad Retirement Board, an agency 

independent of DOL. DOL is not responsible for the administrative oversight or solvency of the railroad 

unemployment insurance system. Receipts from taxes on railroad payrolls are deposited in the Railroad UI 

Account and the Railroad UI Administrative Account to meet benefit payment and related administrative 

expenses. 
Annual Financial Statements 

REQUIRED SUPPLEMENTARY INFORMATION 

(Unaudited) 

FY 2010 Agency Financial Report 135

UI Program Benefits 

 

The UI program provides regular and extended benefit payments to eligible unemployed workers. Regular UI 

program benefits are established under State law, payable for a period not to exceed a maximum duration. In 

1970, Federal law began to require States to extend this maximum period of benefit duration by 50% during 

periods of high unemployment. These extended benefit payments are paid equally from Federal and State 

accounts. 

 

Regular UI Benefits 

There are no Federal standards regarding eligibility, amount or duration of regular UI benefits. Eligibility 

requirements, as well as benefit amounts and benefit duration are determined under State law. Under 

State laws, worker eligibility for benefits depends on experience in covered employment during a past base 

period, which attempts to measure the workers’ recent attachment to the labor force. Three factors are 

common to State eligibility requirements: (1) a minimum duration of recent employment and earnings 

during a base period prior to unemployment, (2) unemployment not the fault of the unemployed, and (3) 

availability of the unemployed for work. 

Benefit payment amounts under all State laws vary with the worker’s base period wage history. Generally, 

States compute the amount of weekly UI benefits as a percentage of an individual’s average weekly base 

period earnings, within certain minimum and maximum limits. Most States set the duration of UI benefits 

by the amount of earnings an individual has received during the base period. Currently, almost all States 

have established the maximum duration for regular UI benefits at 26 weeks. Regular UI benefits are paid by 

the State UI agencies from monies drawn down from the State’s account within the Unemployment Trust 

Fund. 

Extended UI Benefits 

The Federal/State Extended Unemployment Compensation Act of 1970 provides for the extension of the 

duration of UI benefits during periods of high unemployment. When the insured unemployment level 

within a State, or in some cases total unemployment, reaches certain specified levels, the State must 

extend benefit duration by 50%, up to a combined maximum of 39 weeks; certain States voluntarily 

extended the benefit duration up to a combined maximum of 46 weeks. Fifty percent of the cost of 

extended unemployment benefits is paid from the Extended Unemployment Compensation Account within 

the UTF, and 50% by the State, from the State’s UTF account. The American Recovery and Reinvestment 

Act of 2009 began temporary 100% Federal funding of extended benefits. P.L. 111-205, the Unemployment 

Compensation Extension Act of 2010, authorized 100% Federal funding of extended benefits to December 4, 

2010. 
Financial Section 

REQUIRED SUPPLEMENTARY INFORMATION 

(Unaudited) 

136 United States Department of Labor 

Emergency UI Benefits 

During prolonged periods of high unemployment, Congress may authorize the payment of emergency 

unemployment benefits to supplement extended UI benefit payments. Emergency benefits began in July 

2008, authorized under the Supplemental Appropriations Act, 2008. This emergency program was 

temporarily extended and additionally funded by the Recovery Act and has been modified several times, 

most recently by P.L. 111-205, the Unemployment Compensation Extension Act of 2010, which extended 

the expiration date of the program to November 27, 2010. Emergency benefits were last authorized in 

2002 under the Temporary Extended Unemployment Compensation Act. Payments in excess of $23 billion 

were paid under the program which ended in January 2005. Prior to that, emergency benefits were 

authorized in 1991 under the Emergency Unemployment Compensation Act. Emergency benefit payments 

in excess of $28 billion were paid over the three year period ended in 1994. 

Federal UI Benefits 

Unemployment benefits to unemployed Federal workers are paid from the Federal Employees 

Compensation Account within the Unemployment Trust Fund. These benefit costs are reimbursed by the 

responsible Federal agency and are not considered to be social insurance benefits. Federal unemployment 

compensation benefits are not included in this discussion of social insurance programs. 

Program Finances and Sustainability 

At September 30, 2010, total liabilities within the UTF exceeded total assets by $17.9 billion. Although at the 

present time there is a deficit, any future surplus of tax revenues and earnings on these revenues over benefit 

payment expenses is available to finance benefit payments in future periods when tax revenues may be insufficient. 

Treasury invests any accumulated surplus in Federal securities. The net value of these securities, including interest 

receivable, at September 30, 2010 was $18.9 billion. This interest is distributed to eligible State and Federal 

accounts within the UTF. Interest income from these investments during FY 2010 was $0.8 billion. Federal and 

State UI tax and reimbursable revenues of $45.2 billion and regular, extended and emergency benefit payment 

expense of $143.7 billion were recognized for the year ended September 30, 2010. 

As discussed in Note 1.K.1 to the consolidated financial statements, DOL recognized a liability for regular, extended 

and emergency unemployment benefits to the extent of unpaid benefits applicable to the current period and for 

benefits paid by States that have not been reimbursed by the UTF. Accrued unemployment benefits payable at 

September 30, 2010 were $5.1 billion. 

During FY 2010, both the FUA and EUCA borrowed from the general fund of the U.S. Treasury in the form of 

repayable advances. FUA had an outstanding repayable advances balance of $31.0 billion, of which $5.0 billion 

bear interest at 3.375% and $26.0 billion bear interest at 3.25%, as of September 30, 2010. EUCA had an 

outstanding repayable advances balance of $3.1 billion, which bears interest at 3.25%, as of September 30, 2010. 
Annual Financial Statements 

REQUIRED SUPPLEMENTARY INFORMATION 

(Unaudited) 

FY 2010 Agency Financial Report 137

Subsequent Events 

 This required supplementary information does not reflect the effects of the subsequent events described below. 

 

Subsequent to September 30, 2010, the Extended Unemployment Compensation Account (EUCA) of the 

Unemployment Trust Fund (UTF) borrowed as Advances from U.S. Treasury, $9.0 billion at interest rates ranging 

from 2.875% to 3.0%. During the same period, the Federal Unemployment Account (FUA) of the UTF borrowed as 

Advances from U.S. Treasury, $10.0 billion at interest rates ranging from 2.875% to 3.0%. 

P.L. 111-312, the Tax Relief, Unemployment Insurance Reauthorization, and Job Creation Act of 2010, was enacted 

on December 17, 2010. This Act, among other things, authorized continuing 100% Federal funding of extended 

unemployment benefits to January 4, 2012, and changed the expiration date of the emergency unemployment 

insurance program to January 3, 2012. 

Effect of Projected Cash Inflows and Outflows on the Accumulated Net Assets of the UTF 

The ability of the UI program to meet a participant’s future benefit payment needs depends on the availability of 

accumulated taxes and earnings within the UTF. The Department measures the effect of projected benefit 

payments on the accumulated net assets of the UTF, under an open group scenario, which includes current and 

future participants in the UI program. Future estimated cash inflows and outflows of the UTF are tracked by the 

Department for budgetary purposes. These projections allow the Department to monitor the sensitivity of the UI 

program to differing economic conditions, and to predict the program’s sustainability under varying economic 

assumptions. The significant assumptions used in the projections include total unemployment rates, civilian labor 

force levels, percent of unemployed receiving benefits, total wages, distribution of benefit payments by state, state 

tax rate structures, state taxable wage bases and interest rates on UTF investments. 

Presented on the following pages is the effect of projected economic conditions on the net assets of the UTF, 

excluding the Federal Employees Compensation Account. 
Financial Section 

REQUIRED SUPPLEMENTARY INFORMATION 

(Unaudited) 

138 United States Department of Labor 

Expected Economic Conditions 

Charts I and II graphically depict the effect of expected economic conditions on the UTF over the next ten years. 

Projected Cash Inflows and Outflows Under Expected Economic Conditions 

Chart I depicts projected cash inflows and outflows of the UTF over the next ten years under expected 

economic conditions. Both cash inflows and cash inflows excluding interest earnings are displayed. Current 

estimates by the Department are based on an expected unemployment rate of 9.27% during FY 2011, 

decreasing steadily to below 6% in FY 2015 and thereafter. Total cash outflows exceed total cash inflows 

through FY 2013, whereas total cash inflows exceed total cash outflows beginning in FY 2014 and through 

the end of the projected period. The net outflow decreases from $18.9 billion in FY 2011 to $0.5 billion in 

FY 2013. The net inflow increases from $7.2 billion in FY 2014 to $14.3 billion in FY 2016, and ranges 

between $13.4 billion to $6.6 billion thereafter. The net outflow occurs due to State unemployment 

benefits. The net inflow is sustained by the excess of Federal tax collections over Federal expenditures. 

These projections, excluding interest earnings, indicate decreasing net cash outflow from FY 2011 to FY 

2013, then net cash inflows at varied levels through 2020. 

Chart I 

40

60

80

100

120

2011 2012 2013 2014 2015 2016 2017 2018 2019 2020

$ - Billions

Excludes the Federal Employee Compensation Account

Unemployment Trust Fund

Cash Inflow and Outflow

Total Cash Inflows Cash Inflow Excluding Interest Total Cash Outflow
Annual Financial Statements 

REQUIRED SUPPLEMENTARY INFORMATION 

(Unaudited) 

FY 2010 Agency Financial Report 139

Effect of Expected Cash Flows on UTF Assets 

Chart II demonstrates the effect of these expected cash inflows and outflows on the net assets of the UTF 

over the ten year period ended September 30, 2020. Yearly projected total cash inflows, including interest 

earnings, and cash outflows, including interest payments, are depicted as well as the net effect of this cash 

flow on UTF assets. 

Total cash outflows exceed cash inflows for FYs 2011 through 2013 and total cash inflows exceed total cash 

outflows beginning in FY 2014 and all other years in the projected period. The excess of total cash inflows 

over total cash outflows peaks in FY 2016. Starting at $15.4 billion fund balance deficit at the beginning of 

FY 2011, net UTF assets decrease by $29.4 billion over the next three years to an $44.8 billion fund balance 

deficit by the end of FY 2013 and then increase by $73.2 billion over the next seven years to a $28.4 billion 

fund net assets balance by the end of FY 2020. The fund is in a deficit situation from FY 2011 through FY 

2016. 

Chart II 

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(40)

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0 

20 

40 

60 

80 

100 

120 

2011 2012 2013 2014 2015 2016 2017 2018 2019 2020

$ - Billions

Excludes the Federal Employee Compensation Account

Unemployment Trust Fund 

Ef fect of Net Cash Flow on Net Assets

Total Cash Inflows Total Cash Outflows Net Assets
Financial Section 

REQUIRED SUPPLEMENTARY INFORMATION 

(Unaudited) 

140 United States Department of Labor 

Recovery Scenarios 

Charts III and IV demonstrate the effect on accumulated UTF assets of projected total cash inflows and cash 

outflows of the UTF over the ten year period ending September 30, 2020, under two recovery scenarios. Each 

scenario uses an open group, which includes current and future participants in the UI program. Chart III assumes 

decreasing rates of unemployment beginning in FY 2011 and Chart IV assumes higher unemployment in FY 2011 

and then decreasing rates of unemployment beginning in FY 2012. 

 

Effect on UTF Assets of Recovery Scenario I 

The Department projects the effect of decreasing unemployment rates beginning in FY 2011 on the cash 

inflows and outflows of the UTF. Under this scenario, which utilizes a decreasing unemployment rate of 

8.30% beginning in FY 2011, net cash outflows including projected interest earnings and expenses from 

Federal sources are projected in FY 2011 and FY 2012. Net cash inflows are reestablished in FY 2013 and 

peak in FY 2017 with a drop in the unemployment rate to 5.2% for FYs 2017 through 2020. Starting at a 

$15.4 billion fund balance deficit at the beginning of FY 2011, net UTF assets decrease by $9.2 billion to a 

$24.6 billion fund balance deficit in FY 2012 and then increase by $65.2 billion over the next eight years to a 

$40.6 billion fund net assets balance by the end of FY 2020. The fund is in a deficit situation from FY 2011 

to FY 2015. 

Chart III 

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0 

20 

40 

60 

80 

100 

120 

2011 2012 2013 2014 2015 2016 2017 2018 2019 2020

$ - Billions

Excludes the Federal Employee Compensation Account

Unemployment Trust Fund 

Effect of Net Cash Flow on Net Assets

Total Cash Inflows Total Cash Outflows Net Assets
Annual Financial Statements 

REQUIRED SUPPLEMENTARY INFORMATION 

(Unaudited) 

FY 2010 Agency Financial Report 141

Effect on UTF Assets of Recovery Scenario II 

The Department also estimates the effects of an increasing unemployment rate of 10.38% in FY 2011 and 

decreasing unemployment rates beginning in FY 2012 on the cash inflows and outflows of the UTF. Net cash 

outflows including projected interest earnings and expenses from Federal sources are projected in FY 2011 

through FY 2013, with the fund in a deficit situation from 2011 to 2019. The net assets of the UTF decrease 

$68.0 billion from a $15.4 billion fund balance deficit at the beginning of FY 2011 to an $83.4 billion fund 

balance deficit in 2013. Net cash inflows are reestablished in FY 2014 and peak in FY 2017 with a drop in the 

unemployment rate to 5.3% and then slightly lower rates for FYs 2018 through 2020. By the end of FY 2020, 

this positive cash flow has increased the UTF fund balance to $8.6 billion. At the end of the projection 

period of recovery scenario II, net assets are $19.8 billion less than under expected economic conditions. 

Chart IV 

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0 

20 

40 

60 

80 

100 

120 

140 

2011 2012 2013 2014 2015 2016 2017 2018 2019 2020

$ - Billions

Excludes the Federal Employee Compensation Account

Unemployment Trust Fund 

Effect of Net Cash Flow on Net Assets

Total Cash Inflows Total Cash Outflows Net Assets

The three examples of expected economic conditions and two recovery scenarios demonstrate the counter 

cyclical nature of the UI program, which experiences net cash outflows during periods of recession to be 

replenished through net cash inflows during periods of recovery. In the three examples, State accounts 

without sufficient reserve balances to absorb negative cash flows are forced to borrow funds from the FUA 

to meet benefit payment requirements. State borrowing demands also deplete the FUA, which borrows 

from the ESAA and the EUCA until they are depleted. The FUA then requires advances from the general 

fund of the U.S. Treasury to provide for State borrowings. (See following discussion of State solvency 

measures.) 
142 United States Department of Labor (Dollars in thousands) 2011 2012 2013 2014 2015 2016 2017 2018 

Balance, start of year $ (15,430,104) $ (34,344,403) $ (44,268,606) $ (44,794,889) $ (37,607,974) $ (24,952,472) $ (10,639,924) $ 2,737,364 Cash inflow

State unemployment taxes 47,183,000 52,183,000 55,848,000 57,481,000 57,900,000 57,181,000 56,402,000 55,428,000 

Federal unemployment taxes 7,034,000 7,687,000 10,397,000 12,963,000 14,934,000 15,375,000 14,699,000 15,359,000 

General revenue appropriation 21,555,000 3,000 - - - - - - 

Interest on loans 1,376,000 2,146,000 2,442,000 2,594,000 2,589,000 2,454,000 2,237,000 2,006,000 

CMIA receipts 2,300 2,300 2,300 2,300 2,300 2,300 2,300 2,300 

Deposits by the Railroad Retirement Board 201,635 273,435 176,135 70,435 52,035 69,635 116,535 152,735 

Total cash inflow excluding interest 77,351,935 62,294,735 68,865,435 73,110,735 75,477,335 75,081,935 73,456,835 72,948,035 

Interest on Federal securities 334,421 247,098 260,165 332,350 478,898 731,021 1,033,760 1,288,926 

Total cash inflow 77,686,356 62,541,833 69,125,600 73,443,085 75,956,233 75,812,956 74,490,595 74,236,961 

Cash outflow

State unemployment benefits 90,100,000 66,110,000 62,929,000 59,304,000 56,253,000 54,568,000 54,342,000 56,192,000 

State administrative costs 4,922,000 4,641,000 4,689,000 4,740,000 4,837,000 4,952,000 5,071,000 5,191,000 

Federal administrative costs 194,524 198,924 203,441 208,078 213,839 219,730 226,753 233,915 

Interest on tax refunds 2,476 2,459 3,250 4,361 5,544 6,314 6,373 6,857 

CMIA interest payment - - - - - - - - 

Interest on advances 1,250,000 1,400,000 1,720,000 1,890,000 1,880,000 1,640,000 1,350,000 1,030,000 

Railroad Retirement Board withdrawals 131,655 113,653 107,192 109,731 111,348 117,181 114,364 119,898 

Total cash outflow 96,600,655 72,466,036 69,651,883 66,256,170 63,300,731 61,500,408 61,113,307 62,773,670 Excess of total cash inflow excluding

interest over total cash outflow (19,248,720) (10,171,301) (786,448) 6,854,565 12,176,604 13,581,527 12,343,528 10,174,365 

Excess of total cash inflow over total cash outflow (18,914,299) (9,924,203) (526,283) 7,186,915 12,655,502 14,312,548 13,377,288 11,463,291 

Balance, end of year $ (34,344,403) $ (44,268,606) $ (44,794,889) $ (37,607,974) $ (24,952,472) $ 2,737,364 (10,639,924) $ $ 14,200,655 

Total unemployment rate 9.27% 8.32% 7.35% 6.50% 5.85% 5.42% 5.20% 5.20% 

SUPPLEMENTARY SOCIAL INSURANCE INFORMATION

CASH INFLOW AND OUTFLOW OF THE 

UNEMPLOYMENT TRUST FUND EXCLUDING THE FEDERAL EMPLOYEES COMPENSATION ACCOUNT

FOR THE TEN YEAR PERIOD ENDING SEPTEMBER 30, 2020

(1) EXPECTED ECONOMIC CONDITIONS
(Dollars in thousands) 2011 2012 2013 2014 2015 2016 2017 2018 

Balance, start of year $ (15,430,104) $ (24,037,033) $ (24,593,350) $ (22,861,632) $ (17,758,204) $ (6,345,983) $ 5,898,428 $ 18,256,785 Cash inflow

State unemployment taxes 47,450,000 51,866,000 54,879,000 56,435,000 56,462,000 56,340,000 56,177,000 55,653,000 

Federal unemployment taxes 7,109,000 7,797,000 10,508,000 12,807,000 14,765,000 13,359,000 14,248,000 13,372,000 

General revenue appropriation 21,211,000 - - - - - - - 

Interest on loans 1,263,000 1,752,000 1,888,000 2,050,000 2,122,000 2,082,000 1,934,000 1,785,000 

CMIA receipts 2,300 2,300 2,300 2,300 2,300 2,300 2,300 2,300 

Deposits by the Railroad Retirement Board 201,635 273,435 176,135 70,435 52,035 69,635 116,535 152,735 

Total cash inflow excluding interest 77,236,935 61,690,735 67,453,435 71,364,735 73,403,335 71,852,935 72,477,835 70,965,035 

Interest on Federal securities 465,967 323,169 348,401 421,011 594,705 856,106 1,154,084 1,385,871 

Total cash inflow 77,702,902 62,013,904 67,801,836 71,785,746 73,998,040 72,709,041 73,631,919 72,350,906 

Cash outflow

State unemployment benefits 80,061,000 56,779,000 59,994,000 60,359,000 56,124,000 54,018,000 54,894,000 57,170,000 

State administrative costs 4,760,150 4,456,150 4,602,200 4,731,200 4,821,150 4,927,050 5,059,450 5,185,400 

Federal administrative costs 194,524 198,924 203,441 208,078 213,839 219,730 226,753 233,915 

Interest on tax refunds 2,502 2,494 3,285 4,309 5,482 5,486 6,178 5,970 

CMIA interest payment - - - - - - - - 

Interest on advances 1,160,000 1,020,000 1,160,000 1,270,000 1,310,000 1,180,000 970,000 740,000 

Railroad Retirement Board withdrawals 131,655 113,653 107,192 109,731 111,348 117,181 114,364 119,898 

Total cash outflow 86,309,831 62,570,221 66,070,118 66,682,318 62,585,819 60,464,630 61,273,562 63,455,183 Excess of total cash inflow excluding

interest over total cash outflow (9,072,896) (879,486) 1,383,317 4,682,417 10,817,516 11,388,305 11,204,273 7,509,852 

Excess of total cash inflow over total cash outflow (8,606,929) (556,317) 1,731,718 5,103,428 11,412,221 12,244,411 12,358,357 8,895,723 

Balance, end of year $ (24,037,033) $ (24,593,350) $ (22,861,632) $ (17,758,204) $ (6,345,983) $ 5,898,428 $ 18,256,785 $ 27,152,508 

Total unemployment rate 8.30% 7.32% 7.11% 6.67% 5.76% 5.31% 5.20% 5.20% 

U.S. DEPARTMENT OF LABOR

SUPPLEMENTARY SOCIAL INSURANCE INFORMATION

CASH INFLOW AND OUTFLOW OF THE 

UNEMPLOYMENT TRUST FUND EXCLUDING THE FEDERAL EMPLOYEES COMPENSATION ACCOUNT

FOR THE TEN YEAR PERIOD ENDING SEPTEMBER 30, 2020

(2) RECOVERY SCENARIO I UNEMPLOYMENT RATE

FY 2010 Agency Financial Report 143
(Dollars in thousands) 2011 2012 2013 2014 2015 2016 2017 2018 

Balance, start of year $ (15,430,104) $ (52,679,345) $ (76,373,129) $ (83,395,370) $ (80,405,025) $ (69,890,869) $ (53,055,154) $ (32,488,358Cash inflow

State unemployment taxes 47,238,000 52,946,000 56,973,000 58,745,000 59,038,000 58,990,000 58,543,000 56,634,000 

Federal unemployment taxes 6,960,000 7,572,000 10,285,000 12,888,000 15,107,000 17,515,000 18,692,000 16,930,000 

General revenue appropriation 22,116,000 9,000 - - - - - - 

Interest on loans 1,585,000 2,789,000 3,402,000 3,839,000 4,093,000 3,964,000 3,574,000 3,111,000 

CMIA receipts 2,300 2,300 2,300 2,300 2,300 2,300 2,300 2,300 

Deposits by the Railroad Retirement Board 201,635 273,435 176,135 70,435 52,035 69,635 116,535 152,735 

Total cash inflow excluding interest 78,102,935 63,591,735 70,838,435 75,544,735 78,292,335 80,540,935 80,927,835 76,830,035 

Interest on Federal securities 310,553 228,680 246,372 321,855 470,417 774,317 1,111,150 1,396,604 

Total cash inflow 78,413,488 63,820,415 71,084,807 75,866,590 78,762,752 81,315,252 82,038,985 78,226,639 

Cash outflow

State unemployment benefits 108,614,000 80,227,000 70,198,000 64,513,000 59,522,000 55,812,000 53,155,000 53,391,000 

State administrative costs 5,240,100 4,952,200 4,895,200 4,901,100 4,965,800 5,046,250 5,125,150 5,218,600 

Federal administrative costs 194,524 198,924 203,441 208,078 213,839 219,730 226,753 233,915 

Interest on tax refunds 2,450 2,422 3,215 4,336 5,609 7,193 8,105 7,558 

CMIA interest payment - - - - - - - - 

Interest on advances 1,480,000 2,020,000 2,700,000 3,140,000 3,430,000 3,280,000 2,840,000 2,340,000 

Railroad Retirement Board withdrawals 131,655 113,653 107,192 109,731 111,348 117,181 114,364 119,898 

Total cash outflow 115,662,729 87,514,199 78,107,048 72,876,245 68,248,596 64,479,537 61,472,189 61,310,971 Excess of total cash inflow excluding

interest over total cash outflow (37,559,794) (23,922,464) (7,268,613) 2,668,490 10,043,739 16,061,398 19,455,646 15,519,064 

Excess of total cash inflow over total cash outflow (37,249,241) (23,693,784) (7,022,241) 2,990,345 10,514,156 16,835,715 20,566,796 16,915,668 

Balance, end of year $ (76,373,129) (52,679,345) $ (83,395,370) $ (80,405,025) $ (69,890,869) $ (53,055,154) $ (32,488,358) $ (15,572,690

$ 

Total unemployment rate 10.38% 9.42% 8.25% 7.20% 6.35% 5.72% 5.30% 5.20% 

U.S. DEPARTMENT OF LABOR

SUPPLEMENTARY SOCIAL INSURANCE INFORMATION

CASH INFLOW AND OUTFLOW OF THE 

UNEMPLOYMENT TRUST FUND EXCLUDING THE FEDERAL EMPLOYEES COMPENSATION ACCOUNT

FOR THE TEN YEAR PERIOD ENDING SEPTEMBER 30, 2020

(3) RECOVERY SCENARIO II UNEMPLOYMENT RATE

144 United States Department of Labor 
Annual Financial Statements 

REQUIRED SUPPLEMENTARY INFORMATION 

(Unaudited) 

 

FY 2010 Agency Financial Report 145 

States Minimally Solvent 

Each State’s accumulated UTF net assets or reserve balance should provide a defined level of benefit payments over 

a defined period. To be minimally solvent, a State’s reserve balance should provide for one year’s projected benefit 

payment needs based on the highest levels of benefit payments experienced by the State over the last twenty years. 

A ratio of 1.0 or greater indicates a state is minimally solvent. States below this level are vulnerable to exhausting 

their funds in a recession. States exhausting their reserve balance must borrow funds from the Federal 

Unemployment Account (FUA) to make benefit payments. During FY 2009, the balances in the FUA were depleted 

and the FUA borrowed from the Treasury general fund and continued to do so in FY 2010. 

Chart V presents the State by State results of this analysis at September 30, 2010 in descending order by ratio. As 

the table below illustrates, 44 state funds were below the minimal solvency ratio of 1.00 at September 30, 2010. 

Chart V 

State Ratio State Ratio State Ratio

Louisiana 1.79 Utah 0.97 Colorado 0.00

Nebraska 1.40 Montana 0.85 Rhode Island 0.00

Mississippi 1.39 Oregon 0.81 Idaho 0.00

Wyoming 1.30 Puerto Rico 0.79 Texas 0.00

District of Columbia 1.15 Oklahoma 0.79 Minnesota 0.00

Washington 1.12 New Mexico 0.61 New Jersey 0.00

Alaska 1.08 South Dakota 0.59 New York 0.00

Maine 1.05 Iowa 0.58 Arkansas 0.00

North Dakota 1.02 West Virginia 0.33 Virgin Islands 0.00

Maryland 0.28 Illinois 0.00

Tennessee 0.25 Florida 0.00

Massachusetts 0.06 Pennsylvania 0.00

Kansas 0.05 Nevada 0.00

Hawaii 0.05 Missouri 0.00

New Hampshire 0.03 Wisconsin 0.00

Delaware 0.00 California 0.00

Arizona 0.00 Kentucky 0.00

Vermont 0.00 Ohio 0.00

Virginia 0.00 South Carolina 0.00

Georgia 0.00 Michigan 0.00

Alabama 0.00 North Carolina 0.00

Connecticut 0.00 Indiana 0.00

Minimally Solvent Not Minimally Solvent Not Minimally Solvent
Financial Section 

REQUIRED SUPPLEMENTARY INFORMATION 

(Unaudited) 

146 United States Department of Labor 

Black Lung Disability Benefit Program 

The Black Lung Disability Benefit Program provides for compensation, medical and survivor benefits for eligible coal 

miners who are disabled due to pneumoconiosis (black lung disease) arising out of their coal mine employment. The 

U.S. Department of Labor operates the Black Lung Disability Benefit Program. The Black Lung Disability Trust Fund 

(BLDTF) provides benefit payments to eligible coal miners disabled by pneumoconiosis when no responsible mine 

operator can be assigned the liability. 

Program Administration and Funding

Black lung disability benefit payments are funded by excise taxes from coal mine operators based on the sale of coal, 

as are the fund’s administrative costs. These taxes are collected by the Internal Revenue Service and transferred to 

the BLDTF, which was established under the authority of the Black Lung Benefits Revenue Act, and administered by 

the U.S. Department of the Treasury. Prior to October 3, 2008, the Black Lung Benefits Revenue Act provided for 

repayable advances to the BLDTF from the general fund of the Treasury, in the event that BLDTF resources were not 

adequate to meet program obligations. 

P.L. 110-343, Division B--Energy Improvement and Extension Act of 2008, enacted on October 3, 2008, in section 

113, (1) allowed for the temporary increase in coal excise tax rates to continue an additional five years beyond the 

current statutory limit and (2) restructured the BLDTF debt by refinancing the outstanding repayable advances 

(which had higher interest rates) with the proceeds from issuing discounted debt instruments similar in form to 

zero-coupon bonds (which had lower interest rates), plus a one-time appropriation. This Act also allowed that any 

debt issued by the BLDTF subsequent to the refinancing may be used to make benefit payments, other authorized 

expenditures, or to repay debt and interest from the initial refinancing. All debt issued by the BLDTF was effected 

as borrowing from the Treasury's Bureau of Public Debt. (See Notes 1J and 8) 

P.L. 111-148, Patient Protection and Affordable Care Act of 2010, enacted on March 23, 2010, in section 1556, 

amended the Black Lung Benefits Act and became effective immediately. Among other things, section 1556 affects 

claims for (1) total disability benefits filed by miners with long histories of employment in the coal industry and (2) 

survivors benefits filed by widows and other surviving dependents of totally disabled coal miners upon their death. 

The amendments apply to claims which were filed after 2004 and pending on this Act's effective date and 

thereafter. These amendments may make it easier for some coal miners and their surviving dependents to meet 

the eligibility requirements for total disability and survivors benefits. 

Program Finances and Sustainability

At September 30, 2010, total liabilities of the BLDTF exceeded assets by $6.2 billion. This deficit fund balance 

represents the accumulated shortfall of excise taxes necessary to meet benefit payments, administrative costs, and 

interest expense incurred prior to the debt refinancing pursuant to P.L. 110-343. Prior to enactment of P.L. 110-343, 

this shortfall was funded by repayable advances to the BLDTF, which are repayable with interest. Pursuant to P.L. 

110-343, any shortfall will be financed with debt instruments similar in form to zero-coupon bonds, with a maturity 

date of one year and bear interest at the Treasury 1-year rate. Outstanding debt at September 30, 2010 was $6.3 

billion, bearing interest rates ranging from 0.267% to 4.556%. Excise tax revenues of $594.8 million, benefit 

payment expense of $221.0 million and interest expense of $223.9 million were recognized for the year ended 

September 30, 2010. The interest expense is accrued and capitalized to the principal of the debt until the debt 

reaches its face value at the time of maturity. On September 30, 2010, the BLDTF issued debt in the amount of 

$60.0 million, bearing interest at 0.267% and maturing on September 30, 2011. At September 30, 2010, there were 

31 debt instruments with staggered maturities of September 30 for years 2011 through 2040, with a total carrying 
Annual Financial Statements 

REQUIRED SUPPLEMENTARY INFORMATION 

(Unaudited) 

 

FY 2010 Agency Financial Report 147 

value of $6,289.8 million and a total face value at maturity of $10,776.8 million. Of these 31 debt instruments, 30 

are from the October 2008 refinancing and one debt instrument was issued on September 30, 2010. 

As discussed in Note 1.K.3, DOL recognized a liability for disability benefits to the extent of unpaid benefits 

applicable to the current period. Accrued disability benefits payable at September 30, 2010 were $16.9 million. 

Although no liability was recognized for future payments to be made to present and future program participants 

beyond the due and payable amounts accrued at year end, future estimated cash inflows and outflows of the BLDTF 

are tracked by the Department for budgetary purposes. The significant assumptions used in the projections are coal 

excise tax revenue estimates, number of beneficiaries, life expectancy, medical cost inflation, Federal civilian pay 

raises, and the interest rate on new debt issued by the BLDTF. These projections are sensitive to changes in the tax 

rate and changes in interest rates on debt issued by the BLDTF. 

These projections, made over the thirty year period ending September 30, 2040, indicate that cash inflows from 

excise taxes will exceed cash outflows for benefit payments and administrative expenses for each period projected. 

Cumulative net cash inflows are projected to reach $13.3 billion by the year 2040. However, when payments from 

the BLDTF’s maturing debt are applied against this surplus cash inflow, the BLDTF’s cash flow turns negative in 2011 

and each of the subsequent periods included in the projections. Net cash outflows after payments on maturing 

debt are projected to reach $17.0 billion by the end of the year 2040, resulting in a projected deficit of $4.1 billion at 

September 30, 2040. (See Chart I) 

The net present value of future projected benefit payments and other cash inflow and outflow activities together 

with the fund’s deficit positions as of September 30, 2010, 2009, 2008, 2007, and 2006 are presented in the 

Statement of Social Insurance. Yearly cash inflows and outflows are presented in the table on the following page. 

The table presentation has been changed to (1) identify the maturity of obligations and reduction of debt as the 

debt that was refinanced in October 2008 and (2) include interest on annual borrowing. 

Chart I 

0

200

400

600

800

1,000

1,200

1,400

2011 2015 2019 2023 2027 2031 2035 2039

$ - Millions

BLACK LUNG DISABILITY TRUST FUND

CASH INFLOW AND OUTFLOW

Total Cash Outflow Total Cash Inflow Cash Outflow Before Repayment of Debt and Interest
(Dollars in thousands) 2011 2012 2013 2014 2015 2016 - 204

Balance, start of year $ (5,910,338) (6,238,612) $ (5,579,036) $ (5,249,566) $ (4,926,832) $ (4,610,7

$ 

Cash inflow

Excise taxes 629,000 638,000 645,000 650,000 658,000 10,107,0

Total cash inflow 638,000 629,000 645,000 650,000 658,000 10,107,0

 

Cash outflow

Disabled coal miners benefits 219,795 207,737 195,377 183,328 171,662 2,117,8

 

Administrative costs 59,152 61,150 61,150 61,150 61,150 1,041,1

Cash outflows before repayment of

 debt and interest 278,947 268,887 256,527 244,478 232,812 3,159,0

Cash inflow over cash outflow  before repayment of debt and interest 350,053 369,113 388,473 405,522 425,188 6,948,0

Maturity of obligations refinanced October 2008 400,905 431,486 452,439 472,849 492,609 8,466,5

 

Interest on annual borrowings 160 612 2,967 7,322 12,264 1,816,7

 

Total cash outflow 700,985 680,012 711,933 724,649 737,685 13,442,3

 

Total cash outflow over total cash inflow (51,012) (62,985) (66,933) (74,649) (79,685) (3,335,3

 

Reduction of debt refinanced October 2008 379,286 394,287 396,403 397,383 395,769 3,841,6

 

Balance, end of year $ (5,910,338) (5,579,036) $ (5,249,566) $ (4,926,832) $ (4,610,748) $ (4,104,3

$ 

U.S. DEPARTMENT OF LABOR

SUPPLEMENTARY SOCIAL INSURANCE INFORMATION

CASH INFLOW AND OUTFLOW OF THE BLACK LUNG DISABILITY TRUST FUND

FOR THE THIRTY-ONE YEAR PERIOD ENDING SEPTEMBER 30, 2040

148 United States Department of Labor 
Annual Financial Statements 

REQUIRED SUPPLEMENTARY INFORMATION 

(Unaudited) 

FY 2010 Agency Financial Report 149 

 

The preceding discussion of the Black Lung Disability Benefit Program does not reflect the effects of the subsequent 

event described below. 

The Division of Coal Mine Workers' Compensation (DCMWC) within the Office of Workers' Compensation Programs 

administers the Black Lung Program and the payment of benefits under the Black Lung Benefits Act. The Federal 

Coal Mine Health and Safety Act sets Black Lung benefits at 37.5% of the base salary of a Federal employee at level 

GS-2, Step 1. P.L. 111-322, the Continuing Appropriations and Surface Transportation Extensions Act of 2011, was 

enacted on December 22, 2010. This Act, among other things, provided that no Federal employee statutory pay 

adjustment would take effect during the period January 1, 2011 through December 31, 2012. As a result, because 

the Federal employee base salary will remain unchanged through 2012, the rates for Black Lung benefits will 

likewise remain unchanged through 2012. (See Note 23)

STATEMENT OF BUDGETARY RESOURCES

The principal Statement of Budgetary Resources combines the availability, status and outlay of DOL’s budgetary 

resources during FY 2010 and 2009. Presented on the following pages is the disaggregation of this combined 

information for each of the Department’s major budget accounts. 
Financial Section 

REQUIRED SUPPLEMENTARY INFORMATION 

(Unaudited) 

150 United States Department of Labor 

COMBINING STATEMENT OF BUDGETARY RESOURCES 

For the Year Ended September 30, 2010 

Employment Employment Office

and Training Standards of 

(Dollars in thousands) Administration Administration Job Corps

BUDGETARY RESOURCES

Unobligated balance, brought forward, October 1 2,310,218 $ 925,448 $ 766,909 $ 

Recoveries of prior year unpaid obligations 107,214 1,840 20,844 

Budget authority

Appropriations received 220,750,431 2,934,510 1,708,205 

Borrowing authority 60,000 29,050,000 - 

Spending authority from offsetting collections

Earned

Collected 2,687,605 41,572 7,901 

Change in receivables from Federal sources 458 (23,759) - 

Change in unfilled customer orders

Advance received - - - 

Without advance from Federal sources (822) - - 

Expenditure transfers from trust funds 4,715,245 34,844 - 

Total budget authority 5,693,200 254,556,884 1,716,106 

Nonexpenditure transfers, net (3,340) 4,263 8,850 

Temporarily not available pursuant to Public Law (38,626) - - 

Permanently not available

Redemption of Debt (2,889,021) (353,424) - 

All other (1,644,184) (10,341) (54,531) 

Total budgetary resources $ 252,437,771 $ 6,178,170 2,502,368 $ 

STATUS OF BUDGETARY RESOURCES

Obligations incurred

Direct $ 2,278,467 250,171,209 $ 1,738,399 $ 

Reimbursable 27,857 2,891,782 637

Total obligations incurred 250,199,066 5,170,249 1,739,036 

Unobligated balances available

Apportioned 1,653,268 599,242 738,910 

Exempt from apportionment 1 386,905 - 

Total unobligated balances available 1,653,269 986,147 738,910 

Unobligated balances not available 585,436 21,774 24,422 

Total status of budgetary resources $ 252,437,771 $ 6,178,170 2,502,368 $ 

CHANGE IN OBLIGATED BALANCE

Obligated balance, net 

Unpaid obligations, brought forward, October 1 16,643,118 $ 269,839 $ 582,354 $ 

Less uncollected customer payments from Federal sources, 

 brought forward, October 1 (2,317,856) (182) - 

Total unpaid obligated balance, net 14,325,262 269,657 582,354 

Obligations incurred, net 250,199,066 5,170,249 1,739,036 

Less gross outlays (249,770,370) (5,161,391) (1,845,855) 

Other - 150 - 

Less recoveries of prior year unpaid obligations, actual (107,213) (1,840) (20,844) 

Change in uncollected customer payments from Federal sources 417,918 23,759 - 

Obligated balance, net, end of period

Unpaid obligations 16,964,600 276,858 454,841 

Less uncollected customer payments from Federal sources (1,899,939) 23,577 - 

Total unpaid obligated balance, net, end of period 15,064,661 $ $ 454,841 300,435 $ 

NET OUTLAYS

Gross outlays 249,770,370 $ 5,161,391 $ 1,845,855 $ 

Less offsetting collections (5,174,371) (2,722,449) (7,901) 

Less distributed offsetting receipts (56,305,080) (20,233,057) (1,089)

Net outlays 188,290,919 $ $ (17,794,115) $ 1,836,865
Annual Financial Statements 

REQUIRED SUPPLEMENTARY INFORMATION 

(Unaudited) 

FY 2010 Agency Financial Report 151 

 

Occupational Bureau of Mine Safety Employee Benefits Veterans' Other

Safety and Health Labor and Health Security Employment Departmental

Administration Statistics Administration Administration and Training Programs Total

$ 8,617 15,813 $ 2,311 $ 5,892 $ 5,230 $ 84,197 $ 4,124,635 $ 

 4,460 16,166 817 464 1,321 9,426 162,552 

 533,183 558,620 357,293 154,861 45,971 490,151 227,533,225 

 - - - - - 29,110,000 - 

 9,060 1,928 1,625 7,682 34 216,291 2,973,698 

 516 1,590 - 883 - (661) (20,973) 

 - - - - 33,299 - 33,299 

 - - - - - (822) - 

 78,264 - - - 210,156 31,666 5,070,175 

 621,023 562,138 358,918 162,543 257,044 770,746 264,698,602 

 (3,486) 4,425 7,246 6,574 (65) (30,849) (6,382) 

 - - - - - (38,626) - 

 - - - - - (3,242,445) - 

 (3,287) (6,402) (196) (514) (3,334) (1,730,312) (7,523) 

$ 627,327 592,140 $ 369,096 $ 174,959 $ $ 260,196 $ 263,968,024 825,997 $ 

$ 610,071 568,077 $ 360,841 $ 163,027 $ 253,969 $ 443,362 $ 256,587,422 $ 

 9,431 2,752 1,148 7,444 - 3,189,059 248,008 

 619,502 570,829 361,989 170,471 253,969 691,370 259,776,481 

 1,265 1,969 5,645 2,964 2,207 62,427 3,067,897 

 - - - - - 386,996 90 

 1,265 1,969 5,645 2,964 2,207 62,517 3,454,893 

 19,342 6,560 1,462 1,524 4,020 72,110 736,650 

$ 627,327 592,140 $ 369,096 $ 174,959 $ $ 260,196 $ 263,968,024 825,997 $ 

$ 102,301 91,479 $ 32,599 $ 46,273 $ 73,960 $ 375,012 $ 18,216,935 $ 

 (8,113) - - - - (2,331,775) (5,624) 

 102,301 83,366 32,599 46,273 73,960 369,388 15,885,160 

 619,502 570,829 361,989 170,471 253,969 691,370 259,776,481 

 (603,020) (534,283) (355,961) (169,844) (236,568) (705,644) (259,382,936) 

 - - - - - 150 - 

 (4,460) (16,166) (817) (464) (1,321) (9,427) (162,552) 

 (516) (1,590) - - (17,190) 420,236 (2,145) 

 114,323 111,859 37,810 46,436 90,040 351,311 18,448,078 

 (516) (9,703) - - (17,190) (1,911,539) (7,768) 

$ 113,807 102,156 $ 37,810 $ $ 46,436 $ 72,850 $ 16,536,539 343,543 $ 

$ 603,020 534,283 $ 355,961 $ 169,844 $ 236,568 $ 705,644 $ 259,382,936 $ 

 (87,324) (1,928) (1,625) (7,682) (193,883) (278,450) (8,475,613) 

 - (227) - (77,899) (3,550) (76,620,902) - 

$ 515,696 532,355 $ 354,109 $ 84,263 $ $ 39,135 $ 174,286,421 427,194 $ 
Financial Section 

REQUIRED SUPPLEMENTARY INFORMATION 

(Unaudited) 

152 United States Department of Labor 

COMBINING STATEMENT OF BUDGETARY RESOURCES 

For the Year Ended September 30, 2009 

Employment Employment Office

and Training Standards of 

(Dollars in thousands) Administration Administration Job Corps

BUDGETARY RESOURCES

Unobligated balance, brought forward, October 1 1,582,993 $ 1,981,758 $ 535,878 $ 

Recoveries of prior year unpaid obligations 151,234 17,170 25,095 

Budget authority

Appropriations received 154,078,690 9,473,825 1,851,962 

Borrowing authority 7,950,000 6,495,717 - 

Spending authority from offsetting collections

Earned

Collected 1,585,050 47,728 8,435 

Change in receivables from Federal sources 387 (1) - 

Change in unfilled customer orders

Advance received (52,706) - - 

Expenditure transfers from trust funds 5,002,885 34,409 - 

Total budget authority 167,079,690 17,536,294 1,860,397 

Nonexpenditure transfers, net (109,057) 16,064 96,530 

Temporarily not available pursuant to Public Law (35,130) - - 

Permanently not available

Redemption of debt (10,483,557) - - 

All other (616,062) (5,740) (436,890) 

Total budgetary resources $ 168,088,798 $ 8,595,709 2,512,160 $ 

STATUS OF BUDGETARY RESOURCES

Obligations incurred

Direct $ 4,845,083 165,772,186 $ 1,754,939 $ 

Reimbursable 27,930 593 2,793,010 

Total obligations incurred 165,800,116 7,638,093 1,755,532 

Unobligated balances available

Apportioned 1,779,084 642,118 745,105 

Exempt from apportionment - 301,542 - 

Total unobligated balances available 1,779,084 943,660 745,105 

Unobligated balances not available 509,598 13,956 11,523 

Total status of budgetary resources $ 168,088,798 $ 8,595,709 2,512,160 $ 

CHANGE IN OBLIGATED BALANCE

Obligated balance, net 

Unpaid obligations, brought forward, October 1 8,154,190 $ 291,054 $ 256,014 $ 

Less uncollected customer payments from Federal sources, 

 brought forward, October 1 (1,176,445) (183) - 

Total unpaid obligated balance, net 6,977,745 290,871 256,014 

Obligations incurred, net 165,800,116 7,638,093 1,755,532 

Less gross outlays (156,949,874) (7,642,138) (1,614,768) 

Other (128,496) 128,496 - 

Less recoveries of prior year unpaid obligations, actual (151,234) (17,170) (25,095) 

Change in uncollected customer payments from Federal sources (1,107,686) 1 - 

Obligated balance, net, end of period

Unpaid obligations 16,724,702 269,839 500,179 

Less uncollected customer payments from Federal sources (2,284,131) (182) - 

Total unpaid obligated balance, net, end of period 14,440,571 $ $ 500,179 269,657 $ 

NET OUTLAYS

Gross outlays 156,949,874 $ 7,642,138 $ 1,614,768 $ 

Less offsetting collections (3,943,314) (1,566,752) (8,435) 

Less distributed offsetting receipts (18,096,067) (350) (6,502,766) 

Net outlays 134,910,493 $ $ 1,605,983 (427,380) $ 
Annual Financial Statements 

REQUIRED SUPPLEMENTARY INFORMATION 

(Unaudited) 

FY 2010 Agency Financial Report 153 

 

Occupational Bureau of Mine Safety Employee Benefits Veterans' Other

Safety and Health Labor and Health Security Employment Departmental

Administration Statistics Administration Administration and Training Programs Total

$ 9,431 14,009 $ 1,466 $ 3,000 $ 3,779 $ 25,114 $ 4,157,428 $ 

 6,366 10,854 2,209 1,794 5,067 42,280 262,069 

 518,918 513,042 347,003 143,419 26,330 510,517 167,463,706 

 - - - - - 14,445,717 - 

 8,434 2,004 1,518 13,170 141 194,474 1,860,954 

 - - - - 4,750 - 5,136 

 - - - - 29,575 - (23,131) 

 77,406 - - - 202,469 31,161 5,348,330 

 604,758 515,046 348,521 156,589 228,940 770,477 189,100,712 

 (537) 5,945 (30) 5,552 (16,170) - (1,703) 

 - - - - - (35,130) - 

 - - - - - (10,483,557) - 

 (1,222) (8,109) (149) (1,919) (630) (1,080,459) (9,738) 

$ 618,796 537,745 $ 352,017 $ 165,016 $ $ 237,156 $ 181,919,360 811,963 $ 

$ 601,599 520,698 $ 348,465 $ 146,590 $ 232,001 $ 498,129 $ 174,719,690 $ 

 8,580 1,235 1,241 12,534 - 3,075,035 229,912 

 610,179 521,933 349,706 159,124 232,001 728,041 177,794,725 

 2,909 69 - 3,953 59,395 - 3,232,633 

 - - - - - 301,633 91 

 2,909 69 - 3,953 59,486 - 3,534,266 

 12,903 8,617 2,242 1,939 5,155 24,436 590,369 

$ 618,796 537,745 $ 352,017 $ 165,016 $ $ 237,156 $ 181,919,360 811,963 $ 

$ 73,947 86,938 $ 34,378 $ 50,627 $ 61,596 $ 354,455 $ 9,363,199 $ 

 (8,113) - - - - (1,183,351) 1,390 

 73,947 78,825 34,378 50,627 61,596 355,845 8,179,848 

 610,179 521,933 349,706 159,124 232,001 728,041 177,794,725 

 (575,458) (506,538) (349,277) (161,684) (221,765) (657,418) (168,678,920) 

 - - - - - - - 

 (6,366) (10,854) (2,209) (1,794) (5,067) (42,280) (262,069) 

 - - - - - (1,148,424) (40,739) 

 102,302 91,479 32,598 46,273 66,765 382,798 18,216,935 

 (8,113) - - - - (2,331,775) (39,349) 

$ 102,302 83,366 $ 32,598 $ $ 46,273 $ 66,765 $ 15,885,160 343,449 $ 

$ 575,458 506,538 $ 349,277 $ 161,684 $ 221,765 $ 657,418 $ 168,678,920 $ 

 (85,840) (2,004) (1,518) (13,170) (202,610) (255,210) (6,078,853) 

 - (73) - (25,036) - (24,625,433) (1,141) 

$ 489,618 504,534 $ 347,686 $ 123,478 $ $ 19,155 $ 137,974,634 401,067 $ 
 
 

Other Accompanying Information

Top Management Challenges 

(Unaudited) 

 FY 2010 Agency Financial Report 157 

 

Top Management Challenges 

The Top Management Challenges identified by the Office of the Inspector General (OIG) for the Department of 

Labor (DOL) are discussed below. 

2010 Top Management Challenges Facing the Department of Labor 

For 2010, the OIG considers the following as the most serious management and performance challenges facing the 

Department: 

• Achieving the Goals and Protecting the Investment Provided by the American Recovery and Reinvestment 

Act 

• 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 

• Securing Information Technology Systems and Protecting Related Information Assets 

• Ensuring the Security of Employee Benefit Plan Assets 

• Ensuring DOL’s New Core Financial Management System Produces Reliable, Accurate, and Timely Financial 

Information 

For each challenge, the OIG presents the challenge, the OIG’s assessment of the Department’s progress in 

addressing the challenge, and what remains to be done. These top management challenges are intended to 

identify and help resolve serious weaknesses in areas that involve substantial resources and provide critical services 

to the public. The data and information contained in the Top Management Challenges report is as of November 15, 

2010. 

CHALLENGE: Achieving the Goals and Protecting the Investment Provided by the 

American Recovery and Reinvestment Act 

OVERVIEW: 

The American Recovery and Reinvestment Act (Recovery Act) was enacted on February 17, 2009, to create new jobs 

and save existing ones, spur economic activity, invest in long-term growth, and foster accountability and 

transparency in government spending. As of August 19, 2010, the Department received nearly $71 billion in 

Recovery Act funds. DOL has three key roles in the Recovery Act effort: providing worker training for these jobs, 

easing the burden of the recession on workers and employers by providing for extensions and expansions of 

unemployment benefits, and assisting and educating unemployed workers regarding expanded access to continued 

health benefits. The Employment and Training Administration (ETA) is responsible for virtually all of the Recovery 

Act funds provided to the Department. The mission of ETA is to contribute to the more efficient functioning of the 

U.S. labor market by providing high-quality job training, employment, labor market information, and 

unemployment insurance services primarily through state and local workforce development systems. 

CHALLENGE FOR THE DEPARTMENT: 

Ensuring program effectiveness and meeting Recovery Act requirements to stimulate the economy is a significant 

challenge for the Department. However, in several DOL programs, large amounts of Recovery Act funds remain 
Other Accompanying Information 

(Unaudited) 

158 United States Department of Labor 

unspent. We reviewed DOL Recovery Act programs on the Health Care Tax Credit (HCTC), Unemployment 

Insurance (UI) Modernization, and Job Corps Leasing, and we identified large amounts of unspent Recovery Act 

funds and questionable expenditures of other such funds. Our March 2010 audit of the HCTC National Emergency 

Grants found that just $8 million of the $150 million designated for the program had been awarded to states since 

the Recovery Act was signed into law on February 17, 2009. Similarly, as part of our September 2010 audit of UI 

modernization grants, nine states indicated in response to an OIG survey that they were unlikely to apply for $1.3 

billion of UI modernization benefits. 

Conversely, the need to spend funds quickly to meet Recovery Act requirements can lead to awards that may not 

be in the government’s best interest. For example, Job Corps’ largest single expenditure of Recovery Act funds was 

a 20-year lease totaling $82 million with the YWCA of Greater Los Angeles, Inc. for the construction of a new facility 

to house the Los Angeles Job Corps Center. Job Corps also agreed to pay 60% of fair market value at the end of the 

lease term if it opts to purchase the facility. The Recovery Act included provisions that specifically allowed Job 

Corps to use the multi-year lease option and advance payments to lease real property as long as construction began 

within 120 days of the Recovery Act’s enactment. To meet the 120-day requirement of the Act, OASAM issued a 

Request for Proposals that closed on April 2, 2009, and required construction to begin on or before June 16, 2009. 

This timetable gave the potential awardee less than 3 months to begin construction. Job Corps only received one 

proposal, which was from the existing center operator. While Job Corps did negotiate the proposed cost of the 

multi-year lease down from $105 million to $82 million, it did not perform a cost benefit analysis, claiming it was 

not required to do so. Through our analysis, we estimate that Government construction of the facility may have 

cost $31 million less than the $82 million multi-year lease. As a result, Job Corps may have lost the opportunity to 

put at least $31 million of Recovery Act funds to better use. 

DEPARTMENT’S PROGRESS: 

In last year’s top management challenges, the OIG stated that ETA would be challenged to demonstrate that 

Recovery Act grants were properly awarded. Our audit work over the past year found that ETA has announced, 

evaluated, and issued Recovery Act grants in accordance with relevant criteria. Also, monitoring guidelines and 

procedures were comprehensive, and grant agreements informed grantees of their responsibilities for Recovery Act 

reporting. However, funds provided by the Act for monitoring Recovery Act grants have expired as of September 

30, 2010, which impacts ETA’s ability to execute its Recovery Act grantee monitoring and oversight responsibilities 

and may increase the risk that a portion of the $717 million in Recovery Act grant funds may not be spent for their 

intended purposes. ETA has asked for funding to support an increase in grant monitoring staff as part of its FY 2011 

budget request. 

Regarding unused Recovery Act funds, Congress has rescinded $110 million of the $150 million appropriated for 

HCTC National Emergency Grants. According to ETA, approximately $14 million of the original $150 million has been 

obligated, leaving about $26 million available for future grants. 

WHAT REMAINS TO BE DONE: 

ETA needs to continue its efforts to identify and prioritize workloads and funding levels to ensure Recovery Act 

grants are adequately monitored, grant funds are spent properly, and grants achieve their intended purpose. Over 

the next two years, the OIG will focus its Recovery Act audit efforts on assessing how grantees and contractors 

performed and what was accomplished with Recovery Act funding. 

ETA also needs to consider whether unused Recovery Act funds should and could be put to better use. For the 

remaining $26 million available for HCTC National Emergency Grants, ETA should obtain estimates of the amount of 

HCTC National Emergency Grant funds needed by each state, an action ETA believes would be more prudent to 

pursue after January 1, 2011, when the status of the Trade Adjustment Assistance program (which is pending 

reauthorization) is clearer. 
Top Management Challenges 

(Unaudited) 

FY 2010 Agency Financial Report 159 

Regarding the lease with YWCA, management objected to the audit report’s estimate of potential savings that 

might have accrued from a direct land or building purchase as speculative, given that no other offeror came 

forward to offer a suitable building or parcel of land. Management also stated that a cost benefit analysis was not 

required because OMB waived certain budgetary reporting of the lease. We did not concur that this relieved the 

Department of conducting a sound cost/benefit analysis. ETA needs to work with contracting officials in OASAM to 

demonstrate that the multi-year lease with the YWCA to acquire a new facility at the LAJCC was the least expensive 

option to the Government, and if appropriate, renegotiate the multi-year lease agreement. 

CHALLENGE: Protecting the Safety and Health of Workers 

OVERVIEW: 

The Department administers the Occupational Safety and Health Act of 1970 (OSH Act) and the Federal Mine Safety 

and Health Act of 1977 (Mine Act), as amended by the Mine Improvement and New Emergency Response Act of 

2006. DOL’s effective enforcement of these laws is critical toward ensuring the workplace safety of our nation’s 

workers. 

The two DOL agencies primarily responsible for enforcing these laws are the Occupational Safety and Health 

Administration (OSHA) and the Mine Safety and Health Administration (MSHA). OSHA is responsible for ensuring 

safe and healthful working conditions for 130 million workers at more than seven million establishments. MSHA is 

responsible for the safety and health of more than 350,000 miners who work at more than 14,500 mines. 

CHALLENGE FOR THE DEPARTMENT: 

Enforcement plays an important part in OSHA’s efforts to reduce workplace injuries, illnesses, and fatalities. With 

4,340 fatal workplace injuries reported by the Bureau of Labor Statistics in 2009, OSHA’s challenges are how to best 

target its resources and how to measure the impact of its efforts. OSHA carries out its enforcement responsibilities 

through a combination of directed and complaint investigations, but can reach only a fraction of the seven million 

entities it regulates. Consequently, OSHA must strive to target the most egregious and persistent violators while 

protecting the most vulnerable worker populations. OSHA must also evaluate the success of its enforcement 

strategies. For example, when unsafe conditions are identified, OSHA inspectors issue citations with penalties. 

While the OSH Act requires OSHA to consider certain factors, such as the size of the company in finalizing penalty 

amounts, specific reductions are not mandated. OSHA policies establish reductions as an incentive to abate 

violations voluntarily. However, a recent OIG audit found that OSHA has not effectively evaluated the impact of 

hundreds of millions of dollars in penalty reductions as incentives to reducing workplace hazards. 

Regarding MSHA, the OIG’s reviews over the past several years revealed a pattern of weak oversight, inadequate 

policies, and a lack of accountability on the part of MSHA, which were exacerbated by years of resource shortages. 

MSHA’s challenge involves effectively managing existing resources and utilizing existing authorities to maximize its 

enforcement efforts while fulfilling other important duties. 

Historically, MSHA’s resource shortage negatively impacted its ability to meet statutory requirements to conduct 

inspections at the nation’s coal mines. In recent years, after Congress allocated supplemental funding to MSHA to 

hire additional mine inspectors, MSHA has emphasized completing 100% of its mandatory mine inspections. 

However, this has resulted in backlogs in other areas, such as the review of mine plans. 

Recruiting and maintaining a properly trained cadre of mine inspectors is also a challenge for MSHA. A recent OIG 

audit found that journeyman MSHA inspectors were not being provided required periodic training. In addition, 

retirements and other attritions make maintaining a sufficient number of trained mine inspectors an ongoing 

challenge. By 2014, 41% of MSHA’s enforcement personnel will be eligible to retire, and 25% are estimated to do 
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so. Consequently, MSHA must recruit and train the right personnel, as well as enough of them, to accomplish all of 

its critical statutory responsibilities. 

MSHA has also struggled to consistently and proactively utilize its authority to identify mine operators with the 

worst compliance records. In 1977, with the passage of the Mine Act, MSHA was given the authority to take 

enhanced enforcement actions when a mine operator demonstrates recurring safety violations. This Pattern of 

Violations (POV) authority is an important tool for MSHA’s enforcement activities; however, a recent OIG audit 

found that MSHA had not successfully used its POV authority in 32 years. Another challenge for MSHA’s 

enforcement activities is the large volume of citations contested by mine operators and the resulting backlog of 

cases currently before the Federal Mine Safety and Health Review Commission. 

Lastly, studies show that the incidence of Black Lung disease is rising and the disease is being found in younger 

miners. MSHA faces a challenge to reverse this trend through measures to reduce coal dust exposure. 

DEPARTMENT’S PROGRESS: 

OSHA has established a new program, the Severe Violator Enforcement Program (SVEP), which is designed to 

concentrate resources on inspecting employers who repeatedly violate the OSH Act. SVEP includes a requirement 

for mandatory follow-up inspections. As an example, for follow-up inspections of construction companies, which 

frequently move from location to location, SVEP requires that at least one other worksite of the cited employer be 

inspected if the initial worksite is closed. The Department has also introduced a new approach to measuring the 

performance of worker protection agencies. Central to this new approach is establishing regular processes for 

evaluating the success of enforcement strategies in helping to achieve desired outcomes. 

 

MSHA continues to identify and hire mine inspector candidates within authorized personnel levels, and began 

examining and implementing faster, more efficient methods of delivering training using online technologies. 

Temporary resource reallocations and procedural changes have reduced the number of overdue mine plan reviews 

by two-thirds since 2008. MSHA indicates it has continued to work with the Federal Mine Safety and Health 

Commission to identify ways to reduce the backlog of challenged citations. Enacted in July 2010, the Supplemental 

Appropriations Act, 2010 (Public Law 111-212) provided an appropriation of $18.2 million to the Department of 

Labor for the purpose of reducing existing case backlog before the Commission, and for other purposes. Of that 

amount, the Department has transferred $4.451 million to MSHA for backlog reduction project expenses. MSHA 

continues to revamp the process and criteria for identifying mines with POV. In addition, MSHA is working with 

Congress to receive additional enforcement authorities through legislative changes. Through its “End Black Lung – 

Act NOW” initiative, MSHA has conducted public informational events, produced and distributed new educational 

materials, and co-sponsored one-day workshops with National Institute for Occupational Safety and Health 

(NIOSH). MSHA’s rulemaking agenda includes work on a final rule regarding personal coal dust monitors and 

possible adjustments to coal dust exposure levels. 

WHAT REMAINS TO BE DONE: 

OSHA needs to monitor and evaluate the SVEP to ensure the program is being implemented as intended and is 

resulting in the identification and abatement of hazards having the desired results. As part of the Department’s new 

approach to measuring the success of enforcement strategies, OSHA needs to evaluate the impact of penalty 

reductions on comprehensive improvements to workplace safety and health. OSHA also needs to implement its 

planned new information system, replacing its current 35-year-old system, which is subject to errors that hamper 

OSHA’s enforcement efforts. In addition, adjustments to the new information system will likely be needed over the 

next several years to respond to program changes. 

MSHA must formalize the policy and procedural changes of recent years by updating its operational handbooks, 

implement a human capital strategy that will continue to address expected enforcement personnel losses during 

the next five years, find ways to further reduce the number of overdue mine plan reviews, reduce the impact of any 

backlog of challenged citations on the effectiveness of its enforcement program, simplify and make more 
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FY 2010 Agency Financial Report 161 

transparent its process and criteria for placing mines on POV status, and monitor and measure efforts to reduce the 

rise in Black Lung cases. 

CHALLENGE: Improving Performance Accountability of Workforce Investment Act Grants 

OVERVIEW: 

In FY 2009, ETA reported program costs totaling $3.4 billion for the Workforce Investment Act (WIA) Adult, 

Dislocated Worker, and Youth programs. WIA adult employment and training programs are provided through 

financial assistance grants to States and territories to design and operate programs for disadvantaged persons, 

including public assistance recipients. ETA also awards grants to States to provide reemployment services and 

retraining assistance to individuals dislocated from their employment. Youth programs are funded through grant 

awards that support program activities and services to prepare low-income youth for academic and employment 

success, including summer jobs. 

CHALLENGE FOR THE DEPARTMENT: 

Successfully meeting the employment and training needs of citizens requires selecting the best service providers, 

making expectations clear to grantees, ensuring that success can be measured, providing active oversight, and 

disseminating and replicating proven strategies and programs. DOL is challenged to ensure the grants it awards 

accomplish program objectives. For example, SWAs are required under WIA to conduct evaluations of their Title IB 

workforce investment activities (Adult, Dislocated Worker, and Youth programs). A recent OIG audit found that not 

all SWAs conduct these evaluations, and those who do conduct them, do not always report the identified best 

practices in their respective WIA Annual Reports to ETA. ETA also did not have a process for analyzing and sharing 

the results with other SWAs and stakeholders. Without a mechanism for capturing, analyzing, and sharing the 

evaluations, SWAs and other grantees are missing opportunities to know and learn from other programs which may 

lead to significant improvements in their own operations. 

ETA may face challenges in providing adequate oversight and monitoring for some of the grants it awards. Funds 

provided by the Recovery Act to ETA and used to monitor discretionary grants expired on September 30, 2010. The 

reduction in staff resources and funding for travel costs will impact ETA’s ability to fully execute its grant monitoring 

and oversight functions. ETA is also still working to improve the quality of WIA performance data reported by 

states. Reliable and timely performance data are needed to allow ETA to identify performance problems in time to 

correct them. 

DEPARTMENT’S PROGRESS: 

ETA has commissioned independent evaluations of demonstrations and initiatives. In response to an OIG audit, ETA 

issued policy guidance in September 2010, which clarifies the information states should submit regarding 

evaluation studies of WIA activities. 

With respect to grant monitoring, ETA has requested funding for 48 additional Recovery Act monitoring positions in 

the FY 2011 budget. In the meantime, it plans to assign the Recovery Act workload to a combination of both 

Recovery Act-funded and permanent Federal Project Officers. ETA has developed a Workforce Analysis report for 

each Regional Office on how the Recovery Act grants will be absorbed into ongoing operations. ETA also indicated 

it has used its remaining Recovery Act administrative funds to secure contract support for administrative tasks 

related to grants management. ETA stated this will free up permanent staff time for grants monitoring. 

WHAT REMAINS TO BE DONE: 

ETA needs to develop a process to analyze evaluation results so that it can improve delivery of services nationally 

and be a proactive clearinghouse to the SWAs for best practices. ETA has indicated it will: 1) develop guidelines for 

Regional Office staff to initially review SWA evaluations to determine which ones to pass on to its national office for 

final review; 2) share best practices, tools, and replicable models identified through state evaluations based on 
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162 United States Department of Labor 

rigorous research practices through its online technical assistance platform (www.Workforce3 One.org); and 3) 

explore opportunities, depending on funding availability, to improve the functionality of the Workforce3 One.org 

website. ETA also needs to complete the Data Validation component of its Core Monitoring Guide, provide training 

to ensure that its Regional Administrators and Federal Project Officers understand how to use the new component, 

and ensure data validation reviews are being done as part of regional monitoring in FY 2011. 

CHALLENGE: Ensuring the Effectiveness of the Job Corps Program 

OVERVIEW: 

Education, training, and support services are provided to approximately 60,000 students at 124 Job Corps centers 

located throughout the United States and Puerto Rico. Job Corps centers are operated for DOL by private 

contractors, and by other Federal Agencies through interagency agreements. The program was appropriated nearly 

$1.7 billion in FY 2010. 

CHALLENGE FOR THE DEPARTMENT: 

Placement and Recruitment Outcomes – Job Corps has been challenged to meet its placement and recruitment 

goals over the past several years. The number of Job Corps graduates placed in jobs, continuing their education, 

and/or entering the military has declined from 91% for the year ended June 30, 2005, to 76% for the year ended 

June 30, 2010. In addition, in June 2009, Government Accountability Office (GAO) reported that Job Corps achieved 

between 95 and 98% of the planned enrollment for male residential students during program years 2005 through 

2007, but about 80% or less of the planned enrollment for female residential students. GAO recommended that Job 

Corps modify its recruiting methods and offer more career training that is both attractive to females and leads to 

careers that will enable them to become self sufficient. 

Safety and Health Issues – Ensuring the quality of life at centers, including healthy living conditions and the sense of 

safety, is a continuing challenge for Job Corps. OIG audits continued to identify unsafe or unhealthy conditions and 

the lack of required safety inspections at some centers. We also found that some centers did not hold required 

behavior review board meetings to evaluate student misconduct and initiate disciplinary action; and underreported 

significant incidents occurring at the centers. 

Performance and Financial Reporting – Ensuring the integrity of performance and financial data reported by center 

operators is a challenge for Job Corps. OIG audits have found that weak controls at centers have resulted in the 

overstatement of performance results, as well as unallowable costs charged to Job Corps. This is a particular 

challenge for Job Corps as most centers are operated by contractors through performance-based contracts with 

incentive fees and bonuses that are tied directly to contractor performance. Under such contracts, there is a risk 

that contractors will overstate performance results. Regarding financial activity, examples of problems identified by 

OIG audits include questioned costs of $1.8 million related to a contractor’s indirect costs, and $65,553 that 

another contractor charged for the Center Director’s personal housing and travel expenses. 

DEPARTMENT’S PROGRESS: 

In FY 2010, Job Corps stated it developed new female-oriented marketing and recruitment materials and increased 

its career technical training offerings to attract females, including high-growth industries such as health care and 

green jobs. Job Corps also created and distributed new materials and DVDs to assist with recruitment efforts. 

Job Corps stated it has published several Information Notices and Program Instructions on safety issues, sent 

quarterly memoranda to the Regional Directors regarding major hazards identified during centers’ quarterly 

inspections, and provided technical assistance in response to inquiries about center abatement action plans. Job 

Corps also reported that centers continued to provide training and support to students on issues such as conflict 
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FY 2010 Agency Financial Report 163 

resolution, abuse, and student leadership. Job Corps is in the process of clarifying its behavior management 

policies. 

Job Corps stated that it added “Improving Data Integrity” to Regional Directors’ performance standards, and 

conducted data integrity audits concurrently with onsite compliance/quality assessments. 

WHAT REMAINS TO BE DONE: 

Job Corps needs to evaluate the drop in graduate placements and identify strategies to reverse this trend. Job Corps 

stated it is closely examining ways to improve the graduate placement rate but noted that the economic climate is a 

factor in employment results. Job Corps also needs to evaluate the success of its newly developed training 

programs and its efforts to attract female students, and make adjustments where needed. In addition, Job Corps 

needs to take actions to ensure centers provide a safe and conducive learning environment while supporting 

student success and program retention. Finally, Job Corps needs to provide proactive, consistent, and rigorous 

oversight of contractors at all centers. 

CHALLENGE: Safeguarding Unemployment Insurance 

OVERVIEW: 

ETA partners with the states to administer unemployment benefit programs. State UI provides benefits to workers 

who are unemployed and meet the eligibility requirements established by their respective states. UI benefits are 

largely financed through employer taxes imposed by the states and deposited in the Unemployment Trust Fund 

(UTF) from which the states pay the benefits. The states administer these programs under an agreement with DOL 

in accordance with their state laws and regulations. ETA funds SWAs who administer the UI program through grant 

agreements. These grant agreements are intended to ensure that SWAs efficiently administer the UI program and 

comply with Federal laws and regulations. In addition, the SWAs are required to have disaster contingency plans in 

place to enable them to administer benefits in the aftermath of a disaster. 

CHALLENGE FOR THE DEPARTMENT: 

The current economic downturn has made controlling overpayments more difficult, as the number of claims filed 

has greatly increased and new programs had to be implemented quickly, which ETA stated caused states to shift 

resources from detecting improper payments to processing claims. For the 2010 Improper Payment and 

Information Act (IPIA) reporting period (July 2009 to June 2010), ETA reported a total overpayment rate of 10.59%, 

which equates to more than $15.2 billion in UI overpayments – an increase from the $11.4 billion reported for the 

2009 IPIA period. ETA estimates that about $3.4 billion of these overpayments are attributable to fraud – an 

increase of $600 million from the $2.8 billion reported in FY 2009. OIG investigations continue to uncover UI fraud 

committed by individuals, as well as identity theft schemes designed to illegally obtain UI benefits. OIG’s review of 

ETA’s compliance with Executive Order 13520 and its required Report on UI Improper Payments identified 

improvements needed to measure and to mitigate UI improper payments. 

ETA is also challenged to ensure that SWAs have adequate information technology (IT) contingency plans in place 

that provide for the continuation of services in the aftermath of disasters. Our prior audit found that ETA had not 

ensured that SWA partners had established and maintained adequate IT contingency plans. Specifically, 50 out of 

51 plans lacked critical elements needed to ensure the continued availability of the UI systems. 

DEPARTMENT’S PROGRESS: 

In March 2010, the Department implemented the State Information Data Exchange System (SIDES), which enables 

communication and transmission of UI separation information requests from UI agencies to multi-state employers 

and third-party administrators. In May 2010, the Unemployment Compensation Program Integrity Act draft 
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164 United States Department of Labor 

legislation was delivered to Congress, and if enacted, the legislation would permit states to use up to 5% of 

recovered unemployment compensation overpayments to deter and detect benefit overpayments. The legislation 

would also give employers incentive to provide timely, accurate, and complete information about why their former 

employees no longer work for them – information critical for states to determine eligibility. In addition, three more 

SWAs began using the National Directory of New Hires (NDNH) to identify persons who continued to collect UI 

payments after obtaining employment. ETA also agreed to conduct annual verification of SWAs’ IT contingency 

plans to verify both plan existence and reliability. ETA stated they provided funding to assist states to develop or 

update UI IT contingency plans. Thirty-one states were provided funding totaling more than $4 million for this 

initiative. 

WHAT REMAINS TO BE DONE: 

ETA can further improve its oversight of the states’ detection and prevention of UI, extended benefits, and Disaster 

Unemployment Assistance overpayments by fully implementing SIDES; increasing the frequency of SWA on-site 

reviews; and ensuring that California implements NDNH (California is the only state not to have done so, and it 

alone represents 13% of the UI overpayments nationally). ETA stated that California will implement NDNH by 

September 2011. ETA is continuing to pursue legislation to define the “Date of Hire” and mandate its reporting by 

employers; and continuing to promote States’ use of a variety of other databases (e.g., Social Security, Department 

of Corrections) to prevent and detect improper UI benefit payments. ETA also needs to provide additional, more 

detailed information on its efforts to reduce improper payments in its next Report on UI Improper Payments. 

Finally, in FY 2011, ETA needs to continue working with the states on their development of well-documented IT 

contingency plans. 

CHALLENGE: Improving the Management of Workers’ Compensation Programs 

OVERVIEW: 

The Department has responsibility for managing the Energy Employees Occupational Illness Compensation Act 

Program (Energy workers’ program) and the Federal Employees’ Compensation Act (FECA) Program. Both of these 

programs are within DOL’s Office of Workers’ Compensation Programs (OWCP). 

The Energy workers’ program was created to provide monetary compensation and/or medical benefits to civilian 

employees who incurred an occupational illness, such as cancer, as a result of their exposure to radiation or other 

toxic substances while employed in the nuclear weapons and testing programs of the U.S. Department of Energy 

and its predecessor agencies. In certain circumstances, these employees’ survivors may be eligible for 

compensation. Since the program began in 2001 and through August 26, 2010, DOL reports it has paid more than 

$6 billion in compensation and medical benefits to more than 61,400 claimants nationwide. 

The FECA provides wage-loss compensation and pays medical expenses for covered Federal civilian and certain 

other employees who incur work-related occupational injuries or illnesses as well as survivors benefits for a 

covered employee’s employment-related death. This program is administered by the Department, impacting all 

Federal agencies’ budgets and employees. In FY 2010, Federal employees filed 127,526 new injury claims and 

19,861 claims for loss compensation. FECA benefit expenditures totaled nearly $2.8 billion for wage-loss 

compensation and medical treatment to more than 250,000 beneficiaries in FY 2010. Most of these costs were 

charged back to individual agencies for reimbursement to OWCP’s Federal Employees’ Compensation Fund. 
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FY 2010 Agency Financial Report 165 

CHALLENGE FOR THE DEPARTMENT: 

The overall challenge for the Energy workers’ program centers on the timeliness of its claim decisions. For the FECA 

program, minimizing improper payments and fraud continues to be its primary challenge. FECA fraud opportunities 

continue to exist, and certain ones are made more likely by FECA’s inability to match FECA compensation recipients 

against social security wage records. 

The Energy Workers Compensation program, though administered by the DOL, requires the pre-adjudication input, 

assistance, and determinations of three other major Federal agencies and a Federal advisory board. Complex 

regulatory requirements and the difficulty of locating employment and other records, as well as the inability of sick, 

often aging, claimants to fully understand their rights and responsibilities, contribute to the lengthy decision 

process. Furthermore, the NIOSH must prepare a complicated and time consuming dose reconstruction of the 

amount of radiation to which an employee with cancer was exposed. The Department has no regulatory authority 

to control the completion time of the NIOSH process. 

The FECA program must ensure it makes proper payments, while also being responsive and timely to eligible 

claimants. The challenges facing the FECA program include moving claimants off the periodic rolls when they can 

return to work or their eligibility ceases, preventing ineligible recipients from receiving benefits, and preventing 

fraud by service providers and by individuals who receive FECA benefits while working. The OIG recognizes that it is 

difficult to identify and address improper payments and/or fraud in the FECA program, and we have previously 

reported OWCP does not have the legal authority to match FECA compensation recipients against Social Security 

wage records. Currently, OWCP must obtain written permission each time from each individual claimant in order to 

check records. Having direct authority to perform the match would enable OWCP to identify individuals who are 

collecting FECA benefits while working and collecting wages. 

DEPARTMENT’S PROGRESS: 

The Division of Energy Employees Occupational Illness Compensation indicates it has implemented new procedures 

to reduce the time it takes to develop impairment claims and it is revamping its procedural guidance. In addition, 

the Department has set up procedures to measure its timeliness of performance starting from the point of 

application to the final decision and payment. Furthermore, DOL now publishes graphs on its Web site that show 

processing times for various types of cases, including those sent to NIOSH for completion of a dose reconstruction. 

DOL has sponsored town hall meetings to inform workers and their survivors about available program benefits, and 

its Traveling Resource Center goes out monthly to assist individuals with the filing of their claims. DEEOIC continues 

to work with pre-decisional components to streamline and improve the issuance of final decisions. 

The Department completed the rollout of its FECA benefit payment system, the Integrated Federal Employee 

Compensation System. This system is designed to track due dates of medical evaluations, revalidate eligibility for 

continued benefits, use data mining to prevent improper payments, boost efficiency, and improve customer 

satisfaction. The Department has sought legislative authority to allow it access to Social Security Administration 

wage records. In addition, the OIG continued to provide training to DOL and to other Federal agencies in the 

detection and prevention of fraud against the FECA program. 

WHAT REMAINS TO BE DONE: 

The Department needs to continue its efforts to further reduce case processing times. While average processing 

times in the Energy Workers program have improved over the past several years, it still takes more than 18 months 

to reach a final decision on a Part B case. Part B covers current or former workers who have been diagnosed with 

cancers, beryllium disease, or silicosis, and whose illness was caused by exposure to radiation, beryllium, or silica. 

In addition to the need for access to SSA wage records, the Department needs to continue to seek legislative 

reforms to the FECA program to enhance incentives for employees who have recovered to return to work, address 

retirement equity issues, discourage unsubstantiated or otherwise unnecessary claims, and make other benefit and 
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administrative improvements. Through the enactment of these proposals, the Department estimates savings to the 

government over 10 years to be $437 million. 

CHALLENGE: Maintaining the Integrity of Foreign Labor Certification Programs 

OVERVIEW: 

The Department’s Foreign Labor Certification (FLC) programs are administered by the ETA. These programs are 

intended to provide U.S. employers access to foreign labor to meet worker shortages under terms and conditions 

that do not adversely affect U.S. workers. The permanent labor certification program allows an employer to hire a 

foreign worker to work permanently in the United States, if a qualified U.S. worker is unavailable and the 

employment of the foreign worker will not adversely affect the wages and working conditions of similarly employed 

U.S. workers. The H-1B program allows the Department to certify employers’ applications to hire temporary foreign 

workers in specialty occupations such as medicine, biotechnology, and business. The H-2B program permits 

employers to hire foreign workers to come temporarily to the United States and perform temporary nonagricultural labor on a one-time, seasonal, peak load, or intermittent basis. To obtain certification, employers must 

show that there are insufficient qualified U. S. workers available and willing to perform the work at the prevailing 

wage paid for the occupation. In addition, employers are required to pay any foreign worker the wage rate that 

prevails in the area of employment for the occupation and to comply with all laws governing such employment. 

CHALLENGE FOR THE DEPARTMENT: 

ETA is challenged in ensuring the integrity of the FLC programs it administers. OIG investigations (initiated on 

referrals from ETA and other law and non-law enforcement entities, as well as pro-active OIG efforts) continue to 

uncover schemes carried out by immigration attorneys, labor brokers, and transnational organized crime groups, 

some with possible national security implications. OIG investigations have repeatedly revealed schemes involving 

fraudulent applications filed with DOL on behalf of fictitious companies, and those wherein fraudulent applications 

were filed using the names of legitimate companies without the companies’ knowledge. Additionally, OIG 

investigations have uncovered complex schemes involving fraudulent DOL FLC documents filed in conjunction with 

or in support of similarly falsified identification documents required by other Federal and state organizations. 

Additional challenges ETA faces in maintaining the integrity of its foreign labor certification programs include 

statutory limits on its authority in the H-1B program, making system improvements in its H-1B Labor Condition 

Application processing system to better identify incomplete and/or obviously inaccurate applications, and 

uncertainty regarding the Department’s authority to debar individuals or entities. 

DEPARTMENT’S PROGRESS: 

ETA’s Office of Foreign Labor Certification (OFLC), Fraud Detection and Prevention Unit, which targets application 

fraud by reviewing applications for inconsistencies, errors, and omissions, continues to work closely with the OIG to 

identify and reduce fraud in the FLC process. 

WHAT REMAINS TO BE DONE: 

The Department needs to continue working with OIG to identify and reduce fraud, ensure appropriate training is 

provided to OFLC staff, and evaluate the results of its certification processes to assess their effectiveness. The 

Department needs to make adjustments to enhance integrity of its iCert H-1B Labor Condition Application 

processing system to incorporate missing electronic controls. Additionally, the Department should ensure 

debarments are considered, and decisions documented, for anyone convicted of FLC violations, and FLC 

debarments are reported to appropriate DOL personnel for inclusion in the government-wide exclusion system. To 

this end, ETA needs to work with the Office of the Solicitor to resolve this matter. 
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FY 2010 Agency Financial Report 167 

CHALLENGE: Securing Information Technology Systems and Protecting Related 

Information Assets 

OVERVIEW: 

DOL systems contain vital, sensitive information that is central to the Department’s mission and to the effective 

administration of its programs. DOL systems are used to determine and house the Nation’s leading economic 

indicators, such as the unemployment rate and the Consumer Price Index. They also maintain critical data related 

to worker safety and health, pension, and welfare benefits, job training services, and other worker benefits. The 

Congress and the public have voiced concerns over the ability of government agencies to provide effective 

information security and to protect critical data. The administration has called upon federal agencies to bring 

about greater use of technology to consolidate data center operations, use cloud computing infrastructures and 

services, and make use of Web 2.0 technologies, including blogs and social-networking services. 

CHALLENGE FOR THE DEPARTMENT: 

Overall, management of IT systems is a continuing challenge for DOL. Keeping up with new threats, IT 

developments, providing assurances that IT systems will function reliably, and safeguarding information assets will 

continue to challenge the Department today and in the future. The administration’s goal of expanding the use of 

technology to create and maintain an open and transparent government, while safeguarding systems and 

protecting sensitive information, has added to the challenge. 

The FY 2010 Federal Information Security Management Act (FISMA) audit identified access controls, inventory of 

sensitive IT assets, oversight of third-party systems, and remediation of known vulnerabilities as significant 

deficiencies. The OIG has reported on access control weaknesses over the Department’s major information 

systems since FY 2001. These weaknesses represent a significant deficiency over access to key systems and may 

permit unauthorized users to obtain or alter sensitive information, including unauthorized access to financial 

records. Furthermore, the security of sensitive information that can be accessed remotely or stored on mobile 

computers/devices is a continuing challenge to the Department and in the Federal government overall. 

Management of these areas will likely become more challenging in the future as cloud computing is implemented. 

Consolidating data centers and moving mission critical systems to the cloud increases the risk of exposing personal 

identifiable information (PII) and unauthorized information exchanges, including critical and sensitive pre-decisional 

budget and policy information. While acknowledging the ongoing opportunity to improve controls, management 

has expressed its disagreement with these FISMA audit findings, in particular the seriousness of the issues 

identified by the OIG. 

In light of these challenges, the OIG continues to recommend the creation of an independent Chief Information 

Officer (CIO) to provide exclusive oversight of all issues affecting the IT capabilities of the Department. While the 

Administration has moved to establish a separate CIO and Chief Technology Officer, DOL continues to manage its IT 

systems with a CIO who must balance IT with other important responsibilities, such as serving as the Chief 

Acquisition Officer (CAO) and Privacy Officer. The administration has clearly signaled that to be effective in meeting 

its objectives and goals going forward, such as implementing an open and transparent government, it will take a 

greater level of dedication to IT management and governance than in the past. 

DEPARTMENT’S PROGRESS: 

The Department is participating on several Federal Councils, Committees and Forums (e.g., Federal Chief 

Information Officer Council, Information Security and Identity Management Committee, the Chief Information 

Security Officer Forum) to assist in the development and implementation of policies, procedures, and standards 

that will address these challenges. In FY 2010, the Department focused its continuous monitoring program on the 

implementation of NIST 800-53 Rev 2 minimum security controls and on testing and evaluating access control and 

configuration management policies and procedures. Additionally, the Department established a Social Media 

Governance Work group that developed a Social Media policy and Handbook. 
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WHAT REMAINS TO BE DONE: 

The Department needs to establish an independent CIO to provide exclusive oversight of all issues affecting the IT 

capabilities of the Department. DOL management recognizes the challenges associated with protecting the 

Department’s information and information systems and is committed to strengthening its security posture. As 

such, the Department currently has plans in place to improve upon it’s security controls testing and evaluation 

process by performing agency specific customized testing that will focus on the agencies’ high-risk vulnerabilities 

and control weaknesses and to pursue a technical solution for logging computer readable data extracts. 

Additionally, the Department will continue its current enterprise IT efforts to strengthen DOL’s operating 

environment to include: infrastructure optimization, trusted internet connection, logical access control system, and 

a DOL risk management and compliance profile program. Social networking technologies will require the 

Department to develop new approaches to continuous monitoring of computer usage and providing information 

security assurance as the Department and its agencies begin taking advantage of Web 2.0, including blogging, Wiki, 

Facebook, MySpace, and Twitter as part of replacing old ways of communicating. 

CHALLENGE: Ensuring the Security of Employee Benefit Plan Assets 

OVERVIEW: 

The mission of the Department’s Employee Benefits Security Administration (EBSA) is to protect the security of 

retirement, health, and other private-sector employer-sponsored benefits for America’s workers, retirees, and their 

families. EBSA oversees benefit security for an estimated 708,000 private retirement plans, 2.8 million health plans, 

and similar numbers of other welfare benefit plans, such as those providing life or disability insurance. Benefits 

under EBSA’s jurisdiction consist of approximately $5 trillion in assets covering more than 150 million participants 

and beneficiaries. EBSA is charged with overseeing the administration and enforcement of the fiduciary, reporting, 

and disclosure provisions of Title I of the Employee Retirement Income Security Act (ERISA). 

CHALLENGE FOR THE DEPARTMENT: 

Protecting benefits and benefit plan assets generally against fraud, misconduct, and negligence remains an ongoing 

challenge for the Department. OIG investigations have shown that benefit plan assets remain vulnerable to labor 

racketeering and/or organized crime influence. These pension plans, health plans, and welfare benefit plans 

comprise trillions of dollars in assets covering more than 150 million American workers. Dishonest benefit plan 

service providers, including accountants, investment advisors, and plan administrators, continue to be a strong 

focus of OIG investigations, as well as corrupt union officials and/or organized crime members. 

EBSA Has Limited Authority to Oversee Plan Audits – Employee benefit plan audits by independent public 

accountants (IPAs) must provide a first-line defense for plan participants against financial loss. Ensuring that audits 

by IPAs meet quality standards adds to the Department’s challenge because the Department’s authority to require 

plan audits to meet standards remains limited. EBSA does not have the authority to suspend, debar, or levy civil 

penalties against employee benefit plan auditors who perform substandard audits. In addition, ERISA allows plan 

administrators to exclude investments held by certain regulated institutions, such as banks and insurance 

companies, from the scope of a plan audit, resulting in the auditor’s disclaimer of opinion on the financial 

statements, which seriously impairs the usefulness of the audit in protecting employee benefit plan assets. 

EBSA Lacks Ability to Assess Enforcement Program Effectiveness – EBSA lacks the ability to assess the effectiveness 

of its civil enforcement programs. Our audits have found that EBSA could not determine whether its civil 

enforcement projects, such as the Multiple Employer Welfare Arrangements project and the Rapid ERISA Action 

Team (REACT) project, were increasing compliance with ERISA, or whether the projects were decreasing the risk 

that workers will lose benefits. We also found that EBSA could not clearly demonstrate it was directing resources to 

the enforcement areas with the most impact on its mission to deter and correct ERISA violations. Each EBSA 

regional office differed in its interpretation of its enforcement program impact and desired outcomes. As a result, 
Top Management Challenges 

(Unaudited) 

FY 2010 Agency Financial Report 169 

the allocation of resources differed among the regional offices, and agency resources may not have been directed 

at areas with the most impact. 

Multiple Challenges Stem from Implementing the Patient Protection and Affordable Care Act (Health Care Reform 

Act) –The broad changes required by the Health Care Reform Act will challenge the Department to develop in 

excess of thirty new health plan regulations and provide ongoing technical assistance, incorporate new 

requirements into employee benefit enforcement programs, institute new statutorily mandated research and 

health plan surveys, and broaden assistance and educational programs for employee benefit plan participants and 

beneficiaries. These new and extensive health care requirements will pose major challenges for the Department. 

DEPARTMENT’S PROGRESS: 

The Department has previously sought legislative changes, such as expanding the authority of EBSA to address 

substandard benefit plan audits, and ensuring that auditors with poor records are not allowed to continue 

performing plan audits; these changes have not been enacted by Congress. In addition, the Department has 

unsuccessfully sought recommended legislative changes to either eliminate or modify the limited-scope audit 

exception to strengthen the protections afforded plan participants and beneficiaries. EBSA is working on new 

approaches to these issues and developing possible legislative language. In an effort to address inadequate 

assessments of the effectiveness of its enforcement program, EBSA, as part of the Department’s FY 2011- 2016 

Strategic Plan, will be implementing a Sample Investigation Program in 2011, which will review randomly selected 

employee benefit plans for compliance with ERISA. EBSA has also published eight interim final regulations under the 

Health Care Reform Act, as well as other sub-regulatory guidance documents and model notices. 

WHAT REMAINS TO BE DONE: 

EBSA needs to continue work to obtain legislative change to address deficient benefit plan audits, to ensure that 

auditors with poor records do not perform any additional plan audits, and to repeal the limited scope audit 

exception. EBSA will need to evaluate the results of the Sample Investigation Program to determine what changes 

are needed to improve program effectiveness, and continue its efforts to develop guidance to support its 

implementation of the Health Care Reform Act. 

CHALLENGE: Ensuring DOL’s New Core Financial Management System Produces Reliable, 

Accurate, and Timely Financial Information 

OVERVIEW: 

From FY 1989 to FY 2010, the DOL has relied upon the Department of Labor Accounting and Related Systems 

(DOLAR$) as the financial system of record for the department. DOLAR$ was implemented prior to all of the 

modern-day laws and regulations that drive Federal accounting, financial management, financial reporting, and 

information security. As a result, DOLAR$ was enhanced and extended numerous times to meet the Department’s 

internal and external reporting requirements; however, DOLAR$ antiquated technology did not allow DOL to 

efficiently and effectively meet its current and future financial and accounting needs. In July 2008, the Department 

awarded a contract for the development of the New Core Financial Management System (NCFMS). NCFMS was 

planned to be fully implemented and operational by mid-October 2009, but migration of data from DOLAR$ to 

NCFMS did not occur until January 2010. 

CHALLENGE FOR THE DEPARTMENT: 

The implementation of NCFMS has presented the Department with several challenges. The number of actual users 

is significantly higher than planned. Initial estimates were 500 total users, but as of October 2010, the count is 

more than 2,600. It remains a challenge to support this larger than expected user base. 
Other Accompanying Information 

(Unaudited) 

170 United States Department of Labor 

The Department is currently unable to produce auditable financial statements on schedule. The Department is 

challenged to clean up inaccurate financial data from DOLAR$ and interfacing systems. Until these actions are 

completed, the system will continue to provide incorrect financial and budgetary information. 

While many of the problems the Department has encountered with NCFMS can be attributed to the migration of 

data from DOLAR$, new problems have been introduced due to the significant change in business processes and 

the users’ lack of understanding of the new system. In NCFMS, certain key processes are performed differently than 

they were in DOLAR$, because NCFMS incorporates the various OMB, Treasury and other Federal financial 

requirements, processes and controls. 

DEPARTMENT’S PROGRESS: 

The Department has indicated that NCFMS is now providing all of DOL with day-to-day financial transaction 

processing, budget execution, and reporting. Initially, integration and data migration issues required some manual 

workarounds to release grants and procurements. Additional data migration activities have substantially improved 

processing of these transactions, and the issuance of grants, travel payments and procurements is being 

consistently performed accurately and timely by NCFMS. 

Initial NCFMS training was started in the summer of 2009; and based on feedback from attendees, the training was 

reformatted and given again with an agency focus in the fall of 2009. Computer Based Training and Quick Reference 

Guides were available in January 2010 prior to the NCFMS go-live, and continue to be used. 

DOL stated it has been working with its service provider to scale the hardware, software, help desk, training, 

operations, and onsite support staff. According to DOL, this surge in support has resulted in the reduction of 

transaction backlogs, the lowering of late payment penalties and the increase in the accuracy of the data as 

transactions are getting processed more timely. 

WHAT REMAINS TO BE DONE: 

DOL needs to continue to work closely with OMB, Treasury and the OIG to address data quality and accuracy of 

reporting. The Department needs to enhance training materials on NCFMS and continue to train the NCFMS user 

community on its full capabilities. In addition, standard operating procedures and other such tools for NCFMS 

should be reviewed and revised on an ongoing basis to ensure that newly hired personnel have references on how 

to use the system. The first 9 months saw substantial increases in the number of late payment penalties as staff 

adjusted to the new business process. While DOL states it has nearly reached pre-implementation late payment 

rates, DOL needs to improve operational efficiencies in 2011 beyond the benchmarks of the previous system. 

Changes from Last Year 

Changes to the Top Management Challenges from FY 2009 include the addition of the challenge related to the 

implementation of the Department’s NCFMS. 

Improving Procurement Integrity was previously discussed in our FY 2009 Top Management Challenges. While the 

enactment of the Recovery Act greatly increased the amount of acquisition activity in the Department, our audit 

work found that, overall, the awards were announced, evaluated, and selected in accordance with relevant criteria. 

Additionally, Job Corps has addressed concerns expressed in previous audits regarding the lack of adequate 

segregation of duties between its Regional Director and Contracting Officer responsibilities by placing those 

functions in two different reporting structures. 

While we have removed procurement integrity from the FY 2010 Top Management Challenges, we remain 

concerned that the Department has decided against appointing a CAO whose primary duty is acquisition 

management, as required by the Services Acquisition Reform Act of 2003. Audits of the Department’s procurement 

activities will remain a priority for the OIG. 
Top Management Challenges 

(Unaudited) 

FY 2010 Agency Financial Report 171 

Management’s Response to the 2010 Top Management Challenges 

The Department of Labor continues to streamline and modernize its programs and increase transparency. These 

efforts have been possible because of a dedicated team of professionals working every day in support of the 

Department’s mission to promote the welfare of job seekers, wage earners, and retirees of the United States. 

We have made significant improvements in worker safety and health and strengthened the management of benefit 

and compensation programs in difficult economic times. Information technology systems are more secure and core 

programs operate more effectively for the benefit of the American people. Overall, management of the 

Department’s programs and resources is stronger today than at this time last year. 

Nonetheless, management understands that ongoing improvements in many of the areas identified by the Office of 

Inspector General (OIG) are necessary for continued success of the Department’s programs and services. To that 

end, management has reviewed OIG’s presentation of the issue, current status, progress, and next steps for each 

identified challenge. OIG has fairly represented the Department’s views on these challenges, and as such the 

Department has no specific additional comments. OIG has recognized the Department’s progress in the last year in 

each of the ten identified areas and the Department will continue to work collaboratively with OIG to address and 

resolve these challenges. While some improvements are outside the Department’s immediate control, 

management will continue to pursue legislative options and work with stakeholders where appropriate to pursue 

resolution of issues underlying many of these challenges. 

The Department appreciates OIG’s recognition of procurement improvements that have resulted in that item’s 

removal from the Top Management Challenges list. The Department also recognizes that issues resulting from the 

deployment and transition to the New Core Financial Management System have resulted in a new management 

challenge in FY 2010. Management remains committed to sound financial management and will make every effort 

to address OIG’s concerns and ensure the ongoing reliability of the Department’s financial data. 

As we move into FY 2011, the Department will continue to institute changes and improvements with OIG’s Top 

Management Challenges in mind as it works toward fulfilling the Secretary’s vision of good jobs for everyone.
Other Accompanying Information 

(Unaudited) 

172 United States Department of Labor 

Summary of Financial Statement Audit and Management Assurances 

The following tables provide a summary of the Department’s FY 2010 financial statement audit and its management 

assurances.

Summary of Financial Statement Audit 

Audit Opinion Unqualified 

Restatement No 

Material Weaknesses Beginning 

Balance 

New Resolved Consolidated Ending 

Balance 

Lack of Sufficient Controls over Financial Reporting 1 1 

Lack of Sufficient Controls over Budgetary Accounting 1 1 

Improvements Needed in the Preparation of Journal Vouchers 1 1 

Lack of Adequate Controls over Access to Key Financial and Support Systems 1 1 

Total Material Weaknesses 0 4 0 0 4 

Summary of Management Assurances 

Effectiveness of Internal Control over Financial Reporting (FMFIA § 2)

Statement of Assurance Qualified 

Material Weaknesses Beginning 

Balance 

New Resolved Consolidated Reassessed Ending 

Balance 

Weaknesses over Financial Reporting 1 1 

Weaknesses over Preparation and Review of Journal Vouchers 1 1 

Weaknesses over Budgetary Accounts Reconciliation 1 1 

Total Material Weaknesses 0 3 0 0 0 3 

Effectiveness of Internal Control over Operations (FMFIA § 2)

Statement of Assurance Unqualified 

Material Weaknesses Beginning 

Balance 

New Resolved Consolidated Reassessed Ending 

Balance 

Total Material Weaknesses 0 0 0 0 0 0 

Conformance with financial management system requirements (FMFIA § 4)

Statement of Assurance Financial management systems do not substantially conform 

Non-Conformances Beginning 

Balance 

New Resolved Consolidated Reassessed Ending 

Balance 

Federal Financial Management System Requirements, Internal 

Controls, Preparation of Financial Statements 

 

1 

 

1 

Total non-conformances 0 1 0 0 0 1 

Compliance with Federal Financial Management Improvement Act (FFMIA)

Agency Auditor 

Overall Substantial Compliance No No 

 1. System Requirements No No

 2. Accounting Standards No No

 3. USSGL at Transaction Level No No
Improper Payments Information Act Reporting Details 

(Unaudited) 

FY 2010 Agency Financial Report 173 

Improper Payments Information Act Reporting Details

The Improper Payments Information Act (IPIA) of 2002, as implemented by OMB Circular A-123, Appendix C, 

Requirements for Effective Measurement and Remediation of Improper Payments, requires Federal agencies to 

review their programs and activities annually, identify programs that may be susceptible to significant improper 

payments, perform testing of programs considered high risk, and develop and implement corrective action plans for 

high risk programs. 

The Department’s review for FY 2010 identified one program, the Unemployment Insurance (UI) benefit program, 

to be at risk of significant improper payments in accordance with OMB criteria (programs with annual improper 

payments exceeding both $10 million and 2.5 % of annual program payments). One additional program, the 

Workforce Investment Act (WIA) grant program, is classified as high risk in OMB’s Circular A-123, Appendix C, due 

to its level of expenditures, although the Department’s risk assessment does not support such a high risk 

designation. 

In FY 2010, the Department performed detailed testing for the UI and WIA programs to estimate the level of 

improper payments and their major causes. The Department has taken corrective actions to address the causes and 

reduce improper payments in these programs and has established improper payment reduction targets in 

accordance with OMB guidance. 

The target UI improper payments error rate for FY 2010 was 9.9%, whereas the actual error rate is 11.2%. This 

difference is primarily due to increases in overpayments to claimants who continued to claim benefits after they 

returned to work, claimants ineligible for benefits because they voluntarily quit their jobs or were discharged for 

cause, and claimants who failed to meet active work search requirements. These 3 causes accounted for 64% of 

overpayments in FY 2009 and 65% of overpayments in FY 2010 and represent approximately 70% of the increase in 

the overpayment rate. Corrective actions to address these causes are described in Section III. The higher actual 

error rate for WIA in FY 2010 compared to the program’s annual target is primarily due to including the results of 

DOL Office of Inspector General audits and other monitoring activities in the measurement methodology and higher 

incidence of error. 

 

 Target and Actual Improper Payments Rates for the Department’s At‐Risk Programs 

DOL Program FY 2008 FY 2009 FY 2010 FY 2011

Target Actual Target Actual Target Actual Target

Unemployment Insurance 11.5% 10.0% 10.0% 10.3% 9.9% 11.2% 9.8%

Workforce Investment Act 0.19% 0.07% 0.07% 0.2% 0.07% 0.2% 0.07%

I. Risk Assessment 

The Department’s FY 2010 risk assessment of its various programs included the following: 

• Reviewed prior three year’s results of IPIA risk assessments and detailed tests. In addition to testing the 

two programs (UI and WIA) designated as high risk, DOL performed detailed testing on all its other 

significant programs in the last 3 years. These programs included Black Lung Disability Trust Fund, Federal 

Employees’ Compensation Act, Energy Employees Occupational Illness Compensation Program, State 

Unemployment Insurance and Employment Service Operations, Payroll Costs and Non Payroll Costs. The 

results of this detailed testing showed that these programs were low risk. 

• Reviewed DOL OIG and Government Accountability Office (GAO) audit reports issued for DOL programs to 

determine whether the reports indicate that control weaknesses or other issues could potentially impact 

the amount of improper payments for DOL programs. 
Other Accompanying Information 

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174 United States Department of Labor 

• Reviewed results of the Department’s OMB Circular A-123 internal control assessment to determine 

whether control weaknesses were identified that could potentially impact the amount of improper 

payments for DOL programs. 

• Reviewed DOL programs’ funding levels for FY 2010 for significant changes in program funding that may 

impact the amount of improper payments. 

Outlays for State UI, Unemployment Compensation for Federal Employees (UCFE), Unemployment Compensation 

for Ex-Service Members (UCX), Extended Benefits (EB), Emergency Unemployment Compensation 2008 (EUC08) and 

Federal Additional Compensation (FAC) increased sharply in FY 2009 and FY 2010 to an estimated $119 billion and 

$156 billion, respectively, compared with just over $42 billion in FY 2008, reflecting the adverse labor market 

conditions. FY 2009 and FY 2010 UI outlays include approximately $24.9 billion and $32.7 billion provided by the 

American Recovery and Reinvestment Act of 2009 (Recovery Act) for benefit payments to unemployed individuals 

by extending the period of eligibility for benefits and providing additional weekly benefits. For WIA, the Recovery 

Act provided additional resources primarily for formula grants to states and for other discretionary grants; the 

Recovery Act outlays in FY 2009 and FY 2010 include approximately $0.8 billion and $2.2 billion, respectively. 

The additional funds are disbursed/monitored through established systems and processes as utilized in the past. In 

addition, the Department has taken and will continue to take various actions to minimize and manage the risk 

associated with the Recovery Act programs, including the following: 

• Issued specific guidance on the use of the funds distributed through the Recovery Act programs. 

• Conducted outreach to states and other eligible grant applicants to communicate policies and guidelines 

and is utilizing the regional office Federal Project Officers to conduct and document quarterly desk reviews 

of financial obligations, expenditures and program performance. Grantees identified as “high risk grantees” 

through these reviews are given priority attention for on-site monitoring. 

• Trained grantees on Federal grant requirements, performance expectations, fiscal and program 

requirements, and allowable use of funds. 

• Closely monitor the draw-down of UI Recovery Act funds from the specific accounts and has systems in 

place for reporting information required for monitoring and evaluating the operations of these programs. 

• Conduct program reviews to ensure that the various activities included in the Recovery Act are properly 

implemented, including the use of these funds according to various operating instructions/guidance 

provided to the states. 

II. Statistical Sampling

The following sampling was performed for the two programs designated as high risk: 

Unemployment Insurance

Sampling Process: Improper payment rates are estimated from the Benefit Accuracy Measurement (BAM) 

program. BAM includes the three largest permanently authorized unemployment compensation (UC) programs: 

State UI4

, UCFE, and UCX. The Department reports two overpayment rates -- the Annual Report rate and the 

Operational rate, as well as an underpayment rate. Executive Order 13520 required “high-priority” federal 

programs to develop supplemental measures. The Department, in consultation with the Office of Management and 

Budget, developed two supplemental measures -- the Operational rate, which includes those fraud and nonfraud 

recoverable overpayments that state agencies are expected to identify and establish for recovery, and the 

Employment Service (ES) registration rate, which measures the percentage of UI claimants who were required to 

 

4

 Included in the UI program are the 50 states and Puerto Rico, US Virgin Islands and the District of Columbia (referred to as 

states/areas). The US Virgin Islands does not participate in BAM. 
Improper Payments Information Act Reporting Details 

(Unaudited) 

FY 2010 Agency Financial Report 175 

register with the state ES, but who were not actively registered during the paid week selected for the BAM audit. 

The Department reports these two supplemental measures quarterly for publication on the Department of the 

Treasury Payment Accuracy Web site (http://www.paymentaccuracy.gov/). The Operational rate is also reported 

annually as part of the IPIA reporting requirements. 

BAM investigators in each state conduct comprehensive audits for randomly selected weekly samples of paid and 

denied claims. Effective January 2008, all paid claims sampled for BAM investigation must be matched with the 

National Directory of New Hires (NDNH) database to improve the ability to detect overpayments due to individuals 

who claim benefits after returning to work, the largest single cause of UI overpayments. The universe (population) 

includes paid and denied claims under the State UI, UCFE, and UCX programs. However because the claims 

processes and eligibility requirements are very similar for the additional benefits paid to unemployed individuals 

under the EB, EUC08, and FAC programs, the estimated improper payment rates are assumed to generally reflect 

the accuracy of these benefit payments. Overpayment and underpayment rates for FY 2010 shown in the Improper 

Payment Reduction Outlook Table are for the period July 1, 2009, to June 30, 2010. Data are shown for this period 

rather than the fiscal year because a higher percentage of BAM investigations have been completed and will, 

therefore, produce more accurate estimates. For the period July 1, 2009, to June 30, 2010, state agencies 

completed audits for 22,093 paid claims cases, a completion rate of 99.8 %. Additional information about the BAM 

methodology can be found at: http://www.oui.doleta.gov/unemploy/bam/2009/bam-cy2009.pdf 

Workforce Investment Act 

Sampling Process: For FY 2010, the Department used a separate methodology (similar to its previous 

measurements) to estimate the improper payments rate in the WIA grant program because grant programs are 

administered differently than benefit programs. Unlike the benefit programs, data are not readily available to allow 

the Department to directly sample grant payments to develop a statistically valid estimate of improper payments. 

This is because the grant programs’ funding stream makes it very difficult to assess the improper payment rate on 

payments to final recipients. The Department provides grants to states, cities, counties, private non-profits, and 

other organizations to operate programs, and relies significantly on Single Audit Act Reports (as required by the 

Single Audit Act of 19965

) to monitor funding to all grant recipients. Based on a review of the definition of 

questioned costs in OMB Circular A-133 and OMB's IPIA implementation guidance, the Department determined 

that questioned costs can be used as a proxy for improper payments. Therefore, these Single Audit Act Reports, 

along with other data in FY 2010, were utilized to determine the improper payment rate for the WIA grant program. 

The Department reviewed FY 2008 (most recent available) Single Audit Act Reports with DOL-related findings from 

the Federal Audit Clearinghouse (which is the national repository of Single Audit Act Reports) and identified all WIA 

program questioned costs included in such reports. As additional evidence that no other audit reports included 

questioned costs for the DOL grants programs, the Department selected and reviewed random samples of audit 

reports classified in the Clearinghouse database as not having any questioned costs. In addition to using the Single 

Audit Act Reports, the Department performed additional procedures to assess the level of improper payments 

which included a review of (1) the results of the monitoring work performed by the ETA staff who are responsible 

for managing the WIA program and (2) the Government Accountability Office (GAO) and DOL Office of Inspector 

General (OIG) audit reports issued for the WIA program. To determine an approximate rate of improper payments 

for the grant programs, the Department divided the average annual amount of questioned costs from these sources 

by the direct program outlays. The resulting improper payment rate (assumed to be representative of the FY 2010 

rate) was applied to the WIA program outlays for FY 2010 to determine the estimated improper payment amount 

 

5 The Single Audit Act of 1996 provides for consolidated financial and single audits of state, local, non-profit entities, and Indian 

tribes administering programs with Federal funds. Non-Federal entities that expend $500,000 or more of Federal awards in a 

year are subject to a consolidated financial single audit; any non-Federal entities that do not meet this threshold are not 

required to have a single audit. All non-Federal entities are required to submit all single audit reports to a Federal Audit 

Clearinghouse (Clearinghouse) that is administered by the Census Bureau.
Other Accompanying Information 

(Unaudited) 

176 United States Department of Labor 

for FY 2010. The Department is performing additional procedures to assess the risk of improper payments and to 

determine if a new measurement methodology could be developed and used for future reporting on WIA improper 

payments. 

III. Corrective Actions

Unemployment Insurance

Many errors in the UI program are due to eligibility errors that can be prevented or detected early through state 

use of third-party verification resources, such as matching claimant records with new hire and Social Security data. 

The leading cause of overpayments is claimants who have returned to work and continue to claim UI benefits. Early 

detection of these overpayments -- which represented 27 % of all overpayments in FY 2010 -- allows agencies to 

stop payments sooner and to recover these overpayments more readily. Matching the Social Security Numbers 

(SSNs) of UI claimants with the National Directory of New Hires (NDNH) and State Directory of New Hires (SDNH) 

databases is the most effective tool in identifying these improper payments. For the period July 2009 to June 2010, 

Benefit Payment Control (BPC) operations reported using new hire matching to detect and establish for recovery 

$155 million in overpayments. During the same period, BAM identified an estimated $319 million in overpayments 

through matching with the NDNH or SDNH. The Department is developing standard operating procedures for state 

BPC operations to ensure that states are effectively utilizing the NDNH as part of their integrity activities. The 

recently enacted Claims Resolution Act of 2010 (P.L. 111-29) included a provision that requires employers to report 

the first day of earnings for new hires to the NDNH. This additional information will facilitate the more timely 

identification of claimants who have returned to work and continue to claim UI benefits. 

The second largest cause of overpayments is errors in handling separation issues, which represented 20 % of all 

overpayments in FY 2010. To reduce improper payments due to separation issues, the Department is working with 

the state agencies to facilitate their participation in the State Information Data Exchange System (SIDES) -- an 

automated employer response system to standardize the collection of information on employee separations from 

employers and third-party administrators (TPAs) to improve the accuracy of claimant eligibility determinations. The 

Department is aggressively promoting state planning a phased implementation of state participation in SIDES. The 

development and testing of SIDES is complete, and SIDES became operational in February, 2010. Currently, 

Colorado, Georgia, Ohio, and Utah and a third party administrator (TPA), Automated Data Processing, Inc., are 

participating in this initiative. A total of 18 other states are in varying phases of implementation. 

The Department continues outreach activities to promote the use of SIDES and provide technical assistance for 

SIDES implementation to the states. ETA, in conjunction with the National Association of State Workforce Agencies 

(NASWA) and the Information Technology Support Center (ITSC), conducted a training session in June, 2010. 

Participants from 12 states and 4 TPAs (AZ, CT, IA, KS, MD, MI, MS, NC, NY, RI, TX, UT, VA, Barnette Associates, 

Paychex, UCTA, and Corporate Cost Control) attended the training session. Pending the availability of resources, 

the Department will provide Supplemental Budget Request opportunities to states that have not yet committed to 

SIDES implementation. 

Most of the improper UI payments not caused by benefit year earnings or separation errors are due to the claimant 

not meeting one or more of the continued eligibility requirements, such as conducting an active work search, 

registering with the state employment service, and being able and available for work. The Department has been 

focused on new strategies designed to get at the most prevalent root causes of improper payments: 1) claimants 

continuing to claim benefits after returning to work; 2) incomplete and/or untimely employment separation 

information from employers or their third party administrators; and failure to register claimants with the state’s 

employment service as required by the state’s law. The strategies include a new state performance measure 

focused on improper payment prevention, enhanced use of the National Directory of New Hires, development of a 

claimant messaging campaign and intensive technical assistance to high impact states. 
Improper Payments Information Act Reporting Details 

(Unaudited) 

FY 2010 Agency Financial Report 177 

The Department In FY 20 has been providing SBRs to states to support state technology investments related to UI 

integrity. In FY 2010 $10.7 million were provided to states for technology based integrity activities to improve the 

prevention, detection, and collection of UI overpayments. These activities, when implemented, can result in 

significant reduction in overpayments and increased recovery of those made. Additionally, In FY 2005, the 

Department began providing states funds to conduct Reemployment and Eligibility Assessment (REAs) with UI 

beneficiaries to reduce improper payments both by speeding claimants' return to work and by detecting and 

preventing eligibility violations. During FY 2010, the Department provided $50 million in funding to support REA 

activities in 33 states and the District of Columbia. A total of 40 states have received funding to implement REA 

programs. 

Workforce Investment Act

The improper payment rate estimate work indicated that the major types of errors found in the WIA program are 

primarily administrative in nature, including cash management, unallowable costs and insufficient documentation 

for participant and vendor payments. The grant management and monitoring processes focus on these items to 

reduce and prevent improper payments. ETA currently uses a multi-step approach to ensure proper administration 

and effective program performance of WIA grants. First, ETA starts its review/oversight process by conducting a 

structured initial risk assessment of all new grants and grantees at the time of the award. Second, ETA Federal 

Project Officers (FPOs) conduct quarterly desk reviews of the financial and program performance of each grant. 

The results of these activities are recorded in the Grants e-Management System (GEMS), an electronic tracking and 

grant management system. This serves as an early warning system to detect potential financial management 

and/or programmatic performance issues and allows ETA to target technical assistance more effectively. Finally, 

ETA staff (FPOs, financial management and others) conduct periodic onsite reviews of grantees. ETA attempts to 

conduct an onsite review of each grantee at least once every three years, but actual review schedules are based on 

the results of the risk assessments and desk reviews. Onsite reviews are conducted using ETA's Core Monitoring 

Guide as well as program specific and technical guide supplements designed to provide a more detailed review of 

program requirements and financial activities. Results of the onsite monitoring activities are also cataloged in the 

GEMS system. For grantees with large numbers of sub-recipients (e.g., WIA formula grantees), the onsite review 

conducted using the formula program supplement to the Core Guide includes an assessment of the grantee's subrecipient monitoring activities. In addition, ETA conducts onsite review of local areas as part of its review of the 

state grantee. The results of the onsite monitoring are also catalogued in the GEMS system. ETA now has the 

capability to review trends or issues that arise in a more comprehensive and consistent manner. Whenever 

deficiencies or problems are identified as a result of a desk review, onsite review, or an independent audit, ETA 

immediately begins working with the grantee to obtain appropriate corrective actions. Corrective actions 

undertaken by the grantee are tracked by ETA and follow-up technical assistance and reviews are scheduled as 

needed. 

The ETA Division of Policy Review and Resolution processes each grant at closeout, reviewing final grantee reports, the 

grant closeout package, FPO recommendations, and other documents available to them to determine whether the 

objectives of the grant were accomplished and that all funds were expended as authorized. Expenditures which are 

questioned are resolved through the normal determination process and disallowed costs are forwarded for collection. 

The Audit Resolution staff receives grantee A-133 audit reports (Single Audit Act reports) which report questioned costs 

and/or administrative weaknesses in need of correction. These items are followed up using the same determination 

process noted above, disallowed costs are forwarded for collection, and resolution reported back to the OIG. In addition, 

these units participate in special grantee reviews and provide fiscal policy training for grantee and Federal staff. 
Other Accompanying Information 

(Unaudited) 

178 United States Department of Labor 

IV. Improper Payment Reduction Outlook FY 2009– FY 2013 ($ in millions) 

Program FY 2009 FY 2010 FY 2011 FY 2012 FY 2013 

 

Outlays 

 

IP % 

 

IP $ 

 

Outlays 

 

IP% 

 

IP$ 

Est 

Outlays

 

IP % 

 

IP $ 

Est 

Outlays

 

IP % 

 

IP $ 

Est 

Outlays 

 

IP % 

 

IP $ 

Unemployment 

Insurance 

 

$119,249 

 

$156,000 $90,977 $66,780

 

$63,859 

Operational Rate 5.2% $6,201 5.7 % $8,892 5.1% $4,640 5.1% $3,406 5.1% $3,257

Annual Report Rate 

Over- payment 

 

9.6% 

 

$11,448 

 

10.6% $16,536 9.05% $8,233 8.95%

 

$5,977 

 

8.85% $5,652

 Underpayment 0.7% $835 0.6% $936 0.71% $646 0.71% $474 0.71% $453

 

Workforce 

Investment Act 

$4,300 0.2% $8.6 $5,875 0.2% $11.8 $4,496 0.07% $3.1 $3,723 0.07% $2.6 $3,700 0.07% $2.6

Notes: 

Actual UI outlays in FY 2009 and FY 2010 include approximately $24.9 and $32.7 billion, respectively, of Recovery Act benefit payments 

under the EB, FAC and EUC08 programs. Recovery Act UI modernization incentive and administrative cost payments to states are not 

included. For WIA, the FY 2009 to 2011 outlays include $0.8, $2.2 and $0.8 billion, respectively, of Recovery Act grants. 

The rates were determined as described in the preceding pages and applied to the outlays for the fiscal year. UI rates are estimates 

based on a statistical survey of State UI, UCFE, and UCX payments. Because the claims processes and eligibility requirements are very 

similar for the EB, EUC08, and FAC programs, the estimated improper payment rates are assumed to generally reflect the accuracy of 

these benefit payments. These rates, which include full and partial overpayments, overestimate the improper payments relating to FAC 

outlays (about 7 % of total outlays in FY 2009 and 2010), as the FAC payments are payable in full to claimants entitled to at least $1 in 

unemployment compensation. FY 2010 rates exclude Georgia BAM data, which are currently under review by DOL to resolve BAM 

coding and methodology issues. 

Only an estimated 2.31 % and 2.37 % of UI benefits were overpaid due to fraud in FY 2009 and FY 2010, respectively. Overpayments 

due to fraud are included as part of both the Annual Report and Operational overpayment rates. 

Recovery of Improper Payments 

State Benefit Payment Control (BPC) operations identify UI overpayments for recovery through such methods as 

crossmatching claimant SSNs with State and National Directories of New Hires, wage record files submitted each 

quarter by employers, matches with other databases, such as Workers Compensation and State Corrections, and 

other sources such as appeals, reversals and tips and leads. States collect overpaid claims through offsets of UI 

benefits, state income tax offsets, and direct cash reimbursement from the claimant. The identification of 

overpayments for recovery for the WIA program is primarily done through ETA’s onsite monitoring activities, the 

Single Audit Act reports and Office of Inspector General (OIG) program audits. From FY 2004 through FY 2010 

approximately $4,456 million has been recovered for the UI and the WIA programs. 

V. Recovery Auditing 

Recovery auditing is a control technique to identify improper contractor payments and initiate recovery actions 

where appropriate. Recovery auditing involves data analysis and detailed reviews of the documentation supporting 

contract payments, including purchase orders, invoices, vendor statements/correspondence, procurement records, 

contracts, contract modifications, payment transaction records, etc. 

Prior to FY 2008 the Department performed statistical sampling of non-payroll costs consisting of department 

expenses, including contract payments, related to the operation and administration of programs' and headquarters' 

activities. Such testing found these costs to be at low risk for improper payments. In FY 2008, the Department 
Improper Payments Information Act Reporting Details 

(Unaudited) 

FY 2010 Agency Financial Report 179 

performed a recovery audit of the contract payments made in FY 2007 and in FY 2010, the Department performed a 

recovery audit of the contract payments made in FY 2008, FY 2009 and the first quarter of FY 2010. The work was 

performed by a contractor together with DOL staff. The recovery audit procedures included analysis of the 

payment database and review of supporting documentation for various selected payments. Excluded from the 

review were payments to other Federal departments and payments for travel reimbursements to and on behalf of 

employees. 

 Recovery Audit Results (in millions) 

Agency Amount 

Subject to 

Review for FY 

2010 Reporting 

Actual Amount 

Reviewed and 

Reported in FY 

2010 

Amounts 

Identified for 

Recovery in FY 

2010 

Amounts 

Recovered in 

FY 2010 

Amount 

Identified for 

Recovery in 

Prior Years 

Amounts 

Recovered in 

Prior Years 

DOL $4,087 $4,087 $5.9 $5.6 $0 $0

VI. Management Accountability 

The Employment and Training Administration (ETA) is responsible for Federal oversight of state unemployment 

insurance (UI) programs, including oversight of state activities to reduce and recover improper UI benefit payments. 

ETA has taken/continues to take the following steps to hold Federal managers accountable for reduction and 

recovery of improper UI payments by states. In FY 2010, ETA will continue to focus on the following integrity 

related activities and ensure the annual performance standards for managers include the completion of significant 

milestones for the projects listed below. 

• ETA requires states to measure and report the percent, dollar amount, and reasons for improper payments. 

These data are derived from investigations of a statistically valid sample of payments using Federally 

prescribed procedures. ETA reviews these data for validity, analyzes data for each state, and makes the 

data available publicly on the ETA Web site – 

http://www.oui.doleta.gov/unemploy/bam/2009/bam-cy2009.pdf. Data review, analysis and publication are 

included in the performance plan of the Administrator of ETA’s Office of Unemployment Insurance (OUI) 

and in the elements and standards of numerous staff in that office. 

• ETA has implemented a core performance measure for detection of overpayments by state UI programs. 

States that fail to meet the performance criterion submit corrective action plans. Analysis of state 

performance and monitoring of states’ corrective actions continue to be an evaluation factor in OUI 

managers’ performance plans. ETA is developing an additional performance measure that will require 

states to reduce by 50 percent those overpayments attributable to individuals who continue to claim 

multiple weeks of UI benefits after they return to work. 

• ETA has promoted and continues to promote cost effective methods for states to prevent, detect, and 

recover improper UI benefit payments. Development, delivery, and/or successful implementation of these 

initiatives by states have been and continue to be factors on which the OUI administrator and managers are 

evaluated. A few of the most noteworthy are: 

• National Directory of New Hires: The Department’s activities with respect to facilitating state 

implementation of the NDNH crossmatch to address the largest cause of UI improper payments -- 

earnings while benefits are being paid -- are discussed in Section III (Corrective Actions). 

• Separation Information Data Exchange System: This initiative will improve the accuracy of claimant 

eligibility determinations, which is the second largest cause of improper payments by enabling 

state agencies to obtain more timely and complete information regarding the reasons that UI 

applicants were separated from work. The Department’s activities are discussed in Section III 

(Corrective Actions). 

• Treasury Offset Program (TOP): The “SSI Extension for Elderly and Disabled Refugees Act” (P.L. 110-

328) included provisions to permit states to recover certain Unemployment Compensation debts 
Other Accompanying Information 

(Unaudited) 

180 United States Department of Labor 

due to fraud from Federal income tax refunds under TOP. The recently enacted Claims Resolution 

Act of 2010 (P.L. 111-29) includes provisions that expand the use of TOP to recover nonfraud 

overpayments if the UC debt is due to failure to report earnings. The Department issued 

Unemployment Insurance Program Letter (UIPL) No. 11-11 on March 8, 2011, to notify states of 

these changes. 

The Department continues to work with Department of Treasury officials to develop program 

requirements and procedures for state access to TOP. On January 28, 2011, Treasury published the 

interim rule concerning the use of TOP to collect covered UC debt in the Federal Register at 76 Fed. 

Reg. 5070. UIPL No. 02-09, Change 1, informed the state workforce agencies of the due process 

and TOP system access requirements, including the completion of a certification agreement, 

security, and connectivity issues. The Department will issue Change 2 to UIPL No. 02-09, which will 

inform states of amendments to the procedures to implement TOP to recover UC debt as well as 

provide the most current and accurate information on those procedures. New York and Wisconsin 

have begun accessing TOP. Additional states are expected to participate in TOP during FY 2011. 

• UI Integrity Legislation ‐ The Department has prepared legislation, which is currently under review, to 

allow states to redirect a small percentage of recovered overpayments to fund integrity activities and 

will require employers to report rehired employees, in addition to new hires, as part of their NDNH 

submission. Specific provisions of the proposed legislation are discussed in section VIII - Statutory or 

Regulatory Barriers. 

• Claimant Messaging Campaign to Deter Continued Claims Filing After Return to Work ‐ ETA is working 

with the ITSC to secure contractor support to: 1) inventory current state practices; 2) develop 

messaging tools and products for state use; and 3) disseminate tools and products and provide 

technical assistance to communicate to claimants that their eligibility for UI ends when they have 

returned to work.

• Work Collaboratively with the Partnership Fund for Integrity Innovation to Explore More Timely Data 

Sources Indicating Claimant’s Return to Work - ETA will explore data available through Early Warning 

Services, a proprietary service administered by a bank consortium, that could help detect when payroll 

checks are deposited in bank accounts, indicating a claimant has returned to work. 

• Aggressive and Targeted Technical Assistance and Monitoring of States with the Highest Percentage of 

ES Registration Improper Payments - ETA will inform targeted states by letter of plans for ETA to work 

with them aggressively to lower this portion of their improper payment rate. Targeted states will be 

contacted personally by the UI Administrator and ETA Regional Administrator to examine state specific 

causes for the problem and to request a formal plan from the state to address it. 

• Federal/State Workgroup to Identify State Improper Payment Prevention Strategies - Working with the 

NASWA, ETA has convened a workgroup to develop recommendations for new innovative options to 

reduce improper payments. The workgroup held its initial meeting in December 2010 and will conclude 

its work by September 30, 2011. 

• Enhance the State Quality Service Planning (SQSP) Process To Incorporate New Elements Related to 

Prevention of Improper Payments‐ ETA has drafted a new section of the SQSP requiring states to 

identify state specific root causes and to provide strategies for addressing them. The new performance 

measure focused on the prevention of benefit year earnings overpayments (discussed above) will be 

incorporated into the FY 2013 SQSP process by requiring states to provide corrective action plans if 

they fail to meet the performance standard. 

• National Integrity Conference: In order to provide a forum for disseminating successful practices for 

preventing, detecting and recovering UI overpayments, the Department hosted a National 

Unemployment Insurance Integrity Professional Development Conference in April 2010. The next 

conference is scheduled for 2012. 

• In order to improve the adjudication on non-monetary eligibility issues, the Department conducted 

three sessions of Nonmonetary Determinations Benefits, Timeliness and Quality Training over the past 

fiscal year. One session was an in-person session with over 30 trainees in the Philadelphia Region. 
Improper Payments Information Act Reporting Details 

(Unaudited) 

FY 2010 Agency Financial Report 181 

There were also two sessions of the Nonmonetary Benefits, Timeliness and Quality E-learning Course 

with 20 trainees in each session. An on-line adjudication course has also been developed, and is 

currently available for interested staff. 

As part of its monitoring and oversight responsibilities of the State's UI operations, the Department takes an 

active role in facilitating and promoting strategies to reduce improper payments and meet the payment 

accuracy and recovery targets set by the Office of Management and Budget. However, it should be noted that 

these strategies require the cooperation and implementation by individual states, including changes to state 

laws and regulations. The Department has no explicit authority over how states establish priorities in 

administering their UI programs and, therefore, can only make recommendations and provide technical 

assistance in the use of these strategies. 

ETA has revised and expanded its training for grant managers and is currently implementing an expansion of 

GEMS to include all WIA grants. GEMS tracks the grant managers’ grant review actions and provides the grant 

manager financial and other information useful in managing the grants. The ETA Division of Policy Review and 

Resolution has requirements in its closeout grant officer performance standards relating to the requirement to 

follow-up on Single Audit Act, OIG or GAO audit findings and questioned costs relating to WIA grants, and the 

Director of the Office of Grant and Contract Management has overall responsibility for ensuring that these 

procedures are followed. 

VII. Information Systems and Infrastructure 

Unemployment Insurance

State and Federal information systems and infrastructure were upgraded to accommodate the additional Federal 

compensation programs and extensions to other unemployment compensation programs included in the Recovery 

Act. 

As a result of ETA monitoring, states modified computer matching procedures to improve the productivity of NDNH 

as a resource to detect improper payments. ETA is also working closely with the state agencies to develop the 

information systems and infrastructure to support SIDES, which is discussed in Section III, Corrective Actions. 

Workforce Investment Act

ETA currently has multiple technology projects underway in an effort to improve grants management. The WIA 

program utilizes these tools to execute the risk management process to assess and monitor grantees. They include 

the web-based EBSS (Enterprise Business Support System), with GEMS. EBSS is the Enterprise Business Support 

System, a web-based solution used to track and manage grants. A component of the EBSS is the automated grant 

cost reporting system that captures grant costs and obligations, which improves fiscal integrity. The combination of 

the two is part of the cradle-to-grave E-grants solution for the entire Department. The GEMS system, mentioned 

also in Section III of this appendix is an online grants management tool meant to provide web accessible, 

customizable, role based context access to grant related information from multiple sources. The utilization of the 

GEMS system by the Federal Project Officers and program management and financial staff allows ETA a more 

coordinated and comprehensive repository of grant specific information. A GEMS technology project has recently 

been undertaken to provide for a report writing module and the cataloging of the Core Monitoring Guide and 

supplements. This will allow ETA staff to customize and target their oversight efforts. 

VIII. Statutory or Regulatory Barriers

Unemployment Insurance

The UI program has several statutory barriers to reducing improper payments. First, States administer the UI 

program and set operational priorities. The Department has limited authority to ensure they pursue improper 
Other Accompanying Information 

(Unaudited) 

182 United States Department of Labor 

payment reduction activities. Second, the "immediate deposit" requirement (Sec. 3304(a)(3), Federal 

Unemployment Tax Act (FUTA) and Sec 303(a)(4), Social Security Act (SSA)) and the "withdrawal standard" (Sec. 

3304(a)(4), FUTA and Sec 303(a)(5), SSA) preclude the use of recovery auditing techniques and affect recovery 

efforts. 

Unemployment Compensation (UC) integrity legislation is under review and will be submitted to the Congress. The 

draft legislation, if enacted, will help states reduce improper benefit payments. This will ensure that benefits are 

available for eligible UI claimants, thus contributing to the DOL strategic goal to “Ensure income support when work 

is impossible or unavailable.” 

The key provisions of the Integrity Act are: 

• Permits states to use up to 5% of UC overpayments recovered to augment administrative funding to deter, 

detect, and recover benefit overpayments. 

• Permits states to use up to 5% of contributions collected due to employer fraud or tax evasion, including 

misclassification of employees, to augment administrative funding for activities related to these purposes. 

• Requires states to assess a penalty of not less than 15% of the amount overpaid on any claim for benefits 

that is determined to be due to the claimant’s fraud. 

• Prohibits states from relieving an employer of benefit charges if the employer’s (or its agent’s) fault has 

caused an inappropriate payment and if the employer (or agent) has established a pattern of failing to 

respond timely or adequately to requests for information. 

• Requires employers to report employees re-hired within 60 days of their last employment to the NDNH. 

This change will significantly expand the number of employee records available for matching and can be 

expected to increase the number of detections, and potential prevention, of overpayments due to claimant 

who continue to claim benefits after they return to work. 

ETA will also pursue the following regulatory changes to facilitate the redirection of resources and activities 

towards improving UI program integrity. 

• Require a percentage of state UI administrative grants be dedicated for integrity activities. 

• Revise the regulation governing the BAM program (20 CFR 602.43) to remove the prohibition on the use of 

sanctions or incentives to achieve specific improper payment rates. 

Workforce Investment Act 

No statutory or regulatory barriers exist that limit WIA's ability to address and reduce improper payments. The WIA 

program has the legal authority to establish receivables and implement actions to collect those receivables.
FY 2010 Agency Financial Report 183 

Acronyms 

ACSI American Customer Satisfaction Index 

BLS Bureau of Labor Statistics 

CAM Cost Analysis Manager 

CFO Chief Financial Officer 

DOL U.S. Department of Labor 

DOLAR$ Department of Labor Accounting and 

Related Systems 

DVOP Disabled Veterans’ Outreach Program 

EBSA Employee Benefits Security 

Administration

ERISA Employee Retirement Income Security 

Act 

ESA Employment Standards Administration 

ETA Employment and Training Administration 

 

FASAB Federal Accounting Standards Advisory 

Board 

FECA Federal Employees’ Compensation Act 

FFMIA Federal Financial Management 

Improvement Act 

FMFIA Federal Managers’ Financial Integrity Act 

FLSA Fair Labor Standards Act 

FTE Full Time Equivalent 

FUTA Federal Unemployment Tax Act 

FY Fiscal Year 

GAO U.S. Government Accountability Office 

GPRA Government Performance and Results 

Act 

GSA General Services Administration 

HVRP Homeless Veterans’ Reintegration 

Program 

ILAB Bureau of International Labor Affairs 

IPIA Improper Payments Information Act 

IRS Internal Revenue Service 

IT Information Technology 

LMRDA Labor-Management Reporting and 

Disclosure Act 

LPD Lost Production Days 

LVER Local Veterans’ Employment 

Representative 

MSHA Mine Safety and Health Administration 

NCFMS New Core Financial Management System

OASAM Office of the Assistant Secretary for 

Administration and Management 

OASP Office of the Assistant Secretary for 

Policy 

OCFO Office of the Chief Financial Officer 

OCIA Office of Congressional and 

Intergovernmental Affairs 

ODEP Office of Disability Employment Policy 

OFCCP Office of Federal Contract Compliance 

Programs 

OFLC Office of Foreign Labor Certification 

OIG Office of Inspector General 

OLMS Office of Labor-Management Standards 

OMB Office of Management and Budget 

OPA Office of Public Affairs 

OSHA Occupational Safety and Health 

Administration 

OWCP Office of Workers’ Compensation 

Programs 

PBGC Pension Benefit Guaranty Corporation 

PMA President’s Management Agenda 

PPI Producer Price Index 

PY Program Year 

RAPIDS Registered Apprenticeship Partners 

Information Data System 

RECA Radiation Exposure Compensation Act 

SOL Office of the Solicitor 

SSA Social Security Administration 

SWA State Workforce Agencies 

TAA Trade Adjustment Assistance 

TAP Transition Assistance Program 

UI Unemployment Insurance 

USPS U.S. Postal Service 

UTF Unemployment Trust Fund 

VA U.S. Department of Veterans Affairs 

VETS Veterans’ Employment and Training 

Service 

WB Women’s Bureau 

WHD Wage and Hour Division 

WIA Workforce Investment Act 

FY 2009 Performance and Accountability Report 185 

U.S. Department of Labor 

www.dol.gov