Audit Report

OIG-16-043

Treasury Established Appropriate Conference, Travel, and Award 

Policies

May 20, 2016

Office of

Inspector General

Department of the Treasury

Contents

Treasury Established Appropriate Conference, Travel, and Award Policies Page i

(OIG-16-043)

Audit Report

Background................................................................................................ 3

Audit Results.............................................................................................. 6

Treasury Bureaus’ Conference Policies Complied with 

Applicable Regulations and Guidance ................................................... 6

Treasury Bureaus’ Travel Policies Complied with the 

Federal Travel Regulation.................................................................... 7

Treasury Bureaus’ Employee Award Policies Complied with

Applicable Laws and Regulations ......................................................... 8

Concluding Remarks.................................................................................... 9

Appendices

Appendix 1: Objective, Scope, and Methodology........................................ 11

Appendix 2: Management Response ......................................................... 14

Appendix 3: Major Contributors to This Report .......................................... 15

Appendix 4: Report Distribution ............................................................... 16

Abbreviations

BEP Bureau of Engraving and Printing

BPD Bureau of the Public Debt

CDFI Community Development Financial Institutions Fund

CFO chief financial officer

CFR Code of Federal Regulations

DO Departmental Offices

FinCEN Financial Crimes Enforcement Network

FMS Financial Management Service

FTR Federal Travel Regulation

Mint United States Mint

OCC Office of the Comptroller of the Currency

OIG Office of Inspector General

OMB Office of Management and Budget

OPM Office of Personnel Management

TD Treasury Directive

Treasury Department of the Treasury

TTB Alcohol and Tobacco Tax and Trade Bureau
Page ii

This Page Intentionally Left Blank
OIG Audit

Report

The Department of the Treasury

Office of Inspector General

Treasury Established Appropriate Conference, Travel, and Award Policies Page 1

(OIG-16-043)

May 20, 2016

Brodi Fontenot

Assistant Secretary for Management

This report presents the results of our audit of policies and 

procedures of the Department of the Treasury (Treasury) that 

govern Federal spending for conferences, travel, and employee 

awards. We conducted this review in response to congressional 

interest1and public concerns that arose after several Inspectors 

General reported on excessive spending and mismanaged 

government conferences in Federal agencies.

2

Our audit objective was to determine whether Treasury has policies 

and procedures in place to facilitate compliance with applicable 

Federal laws, regulations, and executive orders on conferences,

travel, and employee award programs. We also compared those

policies and procedures to guidance from the Office of 

Management and Budget (OMB) and the Office of Personnel 

Management (OPM), as well as Treasury Directives (TDs). The 

scope of our review was fiscal years 2010 to 2012.

We reviewed the conference, travel, and employee award policies 

of eight Treasury bureaus:

 Alcohol and Tobacco Tax and Trade Bureau (TTB)

 

1 H.R. 6020 (112th Congress), Financial Services and General Government Appropriations Bill, 2013, 

included a requirement for certain Inspectors General to report whether their agencies or departments 

have policies and procedures to ensure compliance with Federal laws, regulations, and executive 

orders on travel, conferences, and employee awards. The requirement was not passed into law.

2 U.S. General Services Administration Office of Inspector General (OIG), 2010 Western Regions 

Conference, Apr. 2, 2012; Department of Veterans Affairs OIG, Administrative Investigation of the 

FY 2011 Human Resources Conferences in Orlando, Florida (12-02525-291), Sep. 30, 2012; and 

Treasury Inspector General for Tax Administration, Review of the August 2010 Small Business/SelfEmployed Division’s Conference in Anaheim, California (Reference Number: 2013-10-037), May 31, 

2013.
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 Bureau of Engraving and Printing (BEP)

 Legacy Bureau of the Public Debt (BPD)

 Departmental Offices (DO)3

 Financial Crimes Enforcement Network (FinCEN)

 Legacy Financial Management Service (FMS)

 Office of the Comptroller of the Currency (OCC)

 United States Mint (Mint)

We did not review the policies and procedures of the Internal 

Revenue Service (IRS), as the Treasury Inspector General for Tax 

Administration is responsible for its oversight, or the Community 

Development Financial Institutions Fund (CDFI).

4 We also did not 

review the policies and procedures of the Bureau of the Fiscal 

Service, which was formed from consolidating and redesignating 

the legacy BPD and the legacy FMS in October 2012.5 However,

we did review the policies and procedures for the predecessor 

components, BPD and FMS. We conducted our fieldwork from 

January 2013 to July 2013. Appendix 1 contains a detailed 

description of our audit objective, scope, and methodology.

In brief, we found that the bureaus we reviewed had established 

conference policies and procedures; however, at the time of our 

fieldwork, five of the eight bureaus’ conference policies lacked 

certain important topics related to planning, hosting, and/or

reporting on conferences. On May 6, 2013, Treasury revised its 

directive on conferences and required all Treasury bureaus to 

update their policies.6 Treasury bureaus have since updated their 

conference policies using the new directive. In addition, we found 

 

3 Throughout this report, we refer to these eight Treasury entities as bureaus although DO is not a 

bureau. DO includes offices that form policy and manage Treasury: Domestic Finance, Economic 

Policy, General Counsel, International Affairs, Legislative Affairs, Management, Public Affairs, Tax 

Policy, Terrorism and Financial Intelligence, and the Treasurer of the United States.

4 Treasury OIG performed a separate audit of CDFI’s compliance with applicable laws and regulations 

on travel incurred between July 2010 and June 2012. In the audit report CDFI Fund Needs Better 

Controls Over Travel (OIG-14-043; Jan. 29, 2014), we reported that CDFI’s controls to prevent and 

detect potentially wasteful spending on travel and to ensure compliance with government-wide and 

departmental travel rules and regulations were weak; audit exceptions were found with 129 of 130 

travel claims reviewed. We also found an instance where CDFI’s former Director and staff incurred 

costs for a trip to Hawaii that were neither reasonable nor necessary given the facts and 

circumstances surrounding the travel purpose.

5 Treasury Order 136-01, “Bureau of the Fiscal Service,” Oct. 7, 2012.

6 TD 12-70, “Hosted or Sponsored Conference Planning and Approval,” May 6, 2013.
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that the Treasury bureaus established policies for travel and 

employee awards that complied with applicable Federal laws, 

regulations, and executive orders. Since the bureaus have updated 

their conference policies to address the identified deficiencies and 

comply with applicable laws, regulations and guidance, we make

no recommendations in this report.

In a written response, provided as Appendix 2, Treasury 

management concurred with the report’s findings. 

As a follow on to this audit, we plan to conduct and assess 

compliance with established conference, travel, and employee 

award policies at select Treasury bureaus. In this regard, we are 

performing an audit at TTB and plan to report our findings and 

conclusions from that audit in a separate report to the TTB 

Administrator.

Background

The Administration’s efforts to reduce excessive spending and 

waste for conferences, travel, and employee awards are included in 

multiple directives and memoranda. In June 2011, to cut waste, 

streamline government operations, and reinforce the gains from 

performance and management reform, the President ordered the 

chief financial officers (CFOs) at all executive departments and 

agencies to be responsible for achieving cost savings, which would 

include each agency's share of the $2.1 billion in administrative 

cost savings identified in the fiscal year 2012 budget.7

OMB defines a conference as “a meeting, retreat, seminar, 

symposium or event that involves travel,”8and conference 

expenses as including transportation, per diem expenses, room 

rentals, audiovisual costs, light refreshments, registration fees, and 

other expenses listed in the Federal Travel Regulation (FTR). In

September 2011, OMB instructed agencies to conduct a thorough 

review of policies and controls associated with conference-related 

 

7 Executive Order 13576, “Delivering an Efficient, Effective, and Accountable Government,” June 13, 

2011.

8 OMB Memorandum 12-12, “Promoting Efficient Spending to Support Agency Operations,” May 11, 

2012.
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activities and expenses to ensure they were appropriate and

effective.9Further, in November 2011, the President directed

agencies to develop plans to limit spending on travel and 

conferences.10

Treasury conducts and participates in conferences for various 

purposes, including employee training, information sharing, and 

mission support. The FTR provides guidance for planning and

conducting conferences, and TD 12-70 provides guidance for

approving and reporting on conferences sponsored by Treasury 

bureaus.

The FTR states that when planning a conference, the agency must 

minimize all conference costs, including administrative costs, 

conference attendees’ travel costs, and conference attendees’ time 

costs.

11 While the FTR serves as the principal guidance, Treasury 

bureaus’ internal policies provide bureau-specific provisions for 

conferences. 

In May 2012, OMB instructed agencies to (1) initiate senior level 

review and approval of planned conferences costing more than 

$100,000, (2) prohibit spending in excess of $500,000 on a single 

conference unless a waiver is obtained, and (2) publically report 

conference expenses for events costing more than $100,000.12

TD 12-70 incorporates this OMB guidance with even more 

stringent thresholds for reporting. Treasury reports conferences 

with expenses exceeding $20,000 on its internal online database, 

and those with expenses exceeding $100,000 on its public 

website for all bureaus except OCC.13

 

9 OMB Memorandum 11-35, “Eliminating Excess Conference Spending and Promoting Efficiency in 

Government,” Sep. 21, 2011.

10 Executive Order 13589, “Promoting Efficient Spending,” Nov. 9, 2011.

11 FTR Part 301-74, Conference Planning.

12 OMB Memorandum 12-12.

13 TD-12-70 specifically exempts OCC from compliance. Treasury officials told us that since 

12 USC §1—Office of the Comptroller of the Currency, (b)(1), prohibits the Secretary of the Treasury 

from intervening in matters or proceedings before the Comptroller of the Currency and many OCC 

conferences are related to its bank examination function, requiring compliance with TD 12-70 would 

appear to encroach on OCC’s autonomy.
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The FTR serves as the authoritative guidance for all Federal 

agencies’ policies on travel by Federal civilian employees and 

others authorized to travel at government expense. It covers areas 

such as (1) per diem expenses, (2) travel authorization, (3) voucher 

approval, and (4) reimbursement policies. The Administrator of the 

U.S. General Services Administration promulgates the FTR. The 

FTR is codified in Title 41 of Code of Federal Regulations (CFR), 

Chapters 300 through 304. The principal purpose of the regulation

is to assure that official travel is made responsibly, while 

minimizing administrative costs and communicating policies in a 

clear manner to Federal agencies and employees. 

Treasury provides additional travel guidance by issuing directives

covering topics such as the use of travel charge cards, approval 

requirements for first-class and business-class transportation, and 

travel by persons assigned outside of the United States.

14

Chapters 43, 45, and 54 of 5 United States Code (USC), provide

the statutory basis for Treasury bureaus’ employee award policies

and sections within 5 CFR implement these statutes.15 OPM

guidance provides specific guidelines for Federal agencies to 

establish employee awards policies covering incentives to and 

recognition of employees, individually and as members of groups,

for their performance and contributions to their agencies'

missions.

16

Prescribed awards include both monetary and non-monetary 

awards such as:

 performance award – cash award based on an employee’s 

performance evaluation rating;

 quality step increase – a raise in pay from one of the 10 

steps within a pay grade to the next;

 

14 TD 12-24, “Acceptance of Payments for Travel Expenses from a Non-Federal Source,” Mar. 14, 

2012; TD 12-27, “Delegation of Authority to Approve Certain Travel and Related Expenses for 

Personnel Assigned Outside the United States,” Feb. 25, 2011; TD 74-12, “Use of Government 

Contractor-Issued Travel Charge Cards,” Oct. 20, 2011; TD 74-13, “First-Class and Business-Class 

Travel,” Mar. 16, 2012; and TD 74-15, “Performing Temporary Duty at or Near the Permanent Duty 

Station or Residence,” Sep. 21, 2011.

15 5 CFR, Part 451, Subpart A, Agency Awards; 5 CFR, Part 531, Subpart E, Quality Step Increases.

16 OPM Guidance: Incentives and Employee Recognition, September 2005.
Treasury Established Appropriate Conference, Travel, and Award Policies Page 6

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 special act award – a cash award given for a specific 

accomplishment;

 on-the-spot award – cash award for a significant 

accomplishment of short duration;

 time-off award – an award of paid leave for an 

accomplishment; and

 honorary recognition – a non-cash award for an 

accomplishment.

Audit Results

Treasury Bureaus’ Conference Policies Complied with 

Applicable Regulations and Guidance

The FTR and TD 12-70 provide the principal guidance for Treasury 

bureaus to develop policies in the areas of conference approval, 

planning, and reporting, among others. The Executive Orders and 

the OMB Memoranda, mentioned in the Background section of this 

report, provide further guidance. In particular, Executive Order 

13589 encourages agencies to devise strategic alternatives to 

government travel, including local or technological alternatives, 

such as teleconferencing and video-conferencing. It also directs

agencies to make all appropriate efforts to conduct business and 

host or sponsor conferences in space controlled by the Federal 

government, wherever practicable and cost-effective. OMB

Memorandum 11-35 requires the Deputy Secretary of an agency to 

approve conference-related activities and expenses.

After Executive Order 13589 was issued, and before we started 

this audit, Treasury’s Acting Deputy CFO at the time identified 16 

key topics to be included in the bureau conference policies and 

communicated them to Treasury’s bureau CFOs.

17 These topics 

were consistent with conference-related provisions of the FTR, the 

Executive Order, and OMB guidance.

Treasury issued TD 12-70 in November 2012 and revised it in May 

2013. The revised TD 12-70 incorporated the 16 topics identified 

by the Acting Deputy CFO, and specified the approver levels 

 

17 Memorandum for Bureau Chief Financial Officers, “Travel and Conference Policies,” Nov. 29, 2011.
Treasury Established Appropriate Conference, Travel, and Award Policies Page 7

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depending on the threshold conference costs, as well as reporting 

requirements. Additionally, in May 2013, Treasury issued Treasury

Directive Publication 12-70 to provide further explanations and 

directions to the bureaus to help implement TD 12-70. We used TD 

12-70 as the primary criteria for our conference policy review.

When we began our work, we found that five of the eight bureaus 

omitted one or more topics related to conference planning, hosting,

and reporting in their policies. Specifically we noted that policies 

for these bureaus did not address the following.

 One bureau did not address the use of external services 

when planning conferences.

 One bureau did not address the requirement to consider 

alternative means of accomplishing collaboration, including 

the use of remote tools, and also to host or sponsor 

conferences in space controlled by the Federal government.

 One bureau did not address the requirements that 

conference-related costs, including supplies and services, 

must be purchased by authorized officials through 

appropriate procurement vehicles, such as purchase cards,

contracts, or purchase orders, and that travel cards may be 

used only for travel-related expenditures incurred by 

individual travelers.

 Four bureaus did not address the reporting and record 

keeping requirement that conferences with total costs of 

$20,000 or greater must be entered into an online tracking 

database within 15 days after the conference.

Subsequent to the completion of our fieldwork, we followed up and 

found that the five bureaus with incomplete conference policies 

had updated these policies to comply with the FTR and TD 12-70.

Treasury Bureaus’ Travel Policies Complied with the 

Federal Travel Regulation

The FTR is the authoritative guidance for travel by Federal civilian 

employees and others authorized to travel at government’s 

expense. Table 1 shows Treasury bureaus’ travel policies and their

effective dates.
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Table 1: Treasury bureaus’ travel policies and effective dates

Source: Treasury bureaus.

We compared travel policies for the eight bureaus in our scope to 

key provisions of the FTR including (1) per diem rates, (2) travel 

authorization, (3) voucher approval, and (4) reimbursement. The 

policies for each of the eight bureaus complied with the FTR.

Treasury Bureaus’ Employee Award Policies Complied 

with Applicable Laws and Regulations

5 USC, Chapter 45, states that agencies may pay a cash award to, 

grant time-off to, and incur necessary expense for the honorary 

recognition of, an employee and requires OPM to prescribe 

regulations governing such authority. Five (5) USC, Chapter 43,

provides for recognizing and rewarding employees whose 

performance so warrants. Treasury bureaus, in general, grant 

incentive awards to recognize employees for noteworthy 

performance, significant accomplishment, productivity increase, 

operational improvement, cost reduction, and other exceptional 

benefits to the government.

All bureau policies stated in some form that awards are to be 

granted to individuals and groups for contributions toward meeting 

 

18 ARC is the Administrative Resource Center, a shared service provider, which at the time of our 

fieldwork, was organizationally situated within the legacy BPD. ARC is now part of the Bureau of the 

Fiscal Service.

BEP BPD DO FinCEN FMS MINT OCC TTB

Name of 

Bureau

Travel 

Policy

Travel 

Hand 

Book

ARC 

Travel 

Guide18

TD 12-24, 

74-12,

74-13; &

74-15

ARC 

Travel 

Guide & 

Delegation 

Order 

100.35

Travel 

Policy and 

Procedures

Mint-Wide 

Policy 

Memoranda

Federal 

Travel 

Regulation 

Supplement

ATF 

Travel 

Orders 

1500.1B, 

1500.7, 

& 1540.1

Effective 

Date(s)

10/2007 8/2012

3/11/2008

10/20/2011

3/21/2008

4/6/2001

11/18/2010

6/23/2011 3/2009

5/6/2003

7/25/2007

2/4/2009

2/8/2008

8/19/2009

11/2012

10/1983

12/2001

11/2003
Treasury Established Appropriate Conference, Travel, and Award Policies Page 9

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organizational goals and improving the efficiency, effectiveness, 

and economy of the government.

Table 2 shows Treasury bureaus’ employee award policies and 

their effective dates.

Table 2: Treasury bureaus’ employee award policies and effective dates

Source: Treasury bureaus.

We reviewed bureaus’ policies covering monetary awards, 

including performance-based awards, quality step increase, special 

act, and on-the-spot awards; and non-monetary awards, including 

honorary and time-off awards. We compared these policies to the 

related provisions of the implementing CFRs and the OPM guidance

covering the types of awards, justification of award, award limits, 

and award approvals, among others. The bureaus’ policies on these 

types of awards complied with the CFR provisions and the OPM 

guidance.

Concluding Remarks

Treasury bureaus have established policies for conference, travel, 

and employee awards. While we found certain omissions in 

conference policies at five of the eight bureaus, we noted that

subsequent to the completion of our fieldwork, these bureaus 

updated their policies to comply with the FTR and TD 12-70.

Accordingly, we make no recommendations in this report.

BEP BPD DO FinCEN FMS MINT OCC TTB

Name 

of 

Awards 

Policy

Awards 

Program 

Interim 

Guidance

Awards 

Guidance & 

Personnel 

Directive 

451-1

Performance 

Management 

Program 

Handbook

Awards and 

Recognition 

Program 

Directive: 

910.04

Personnel 

Administration 

Part VII

Chapter 451

U.S. Mint 

Directive 

451.A

Policy & 

Procedures 

Manual 

3110-7

(Rev)

Bureau

Order

2470.1

Effective 

Date 4/16/2012 9/28/2011,

5/2/2006

10/1/2007 11/02/2010 9/2009 10/2011 10/7/2010 3/17/2008
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* * * * * * *

We appreciate the courtesies and cooperation provided to our 

staff during the audit. If you wish to discuss this report, you may 

contact me at (202) 927-6345 or Myung Han, Audit Manager, at 

(202) 927-4878. Appendix 3 lists the major contributors to this 

report.

/s/

James L. Lisle, Jr.

Director, Fiscal Service Audits
Appendix 1

Objective, Scope, and Methodology

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Our audit objective was to determine whether Treasury has

appropriate policies and procedures to facilitate compliance with 

applicable Federal laws, regulations, and executive orders on 

conferences, travel, and employee awards programs.

To accomplish our objective, we performed the following audit 

procedures.

 We interviewed Treasury bureau officials responsible for 

establishing policies for conferences, travel, and employee 

awards.

 We reviewed the conference, travel, and employee award 

policies of eight Treasury bureaus against criteria developed 

based upon applicable laws, regulations and guidance. The 

bureaus whose policies were reviewed follow.

o Alcohol and Tobacco Tax and Trade Bureau 

o Bureau of Engraving and Printing 

o Legacy Bureau of the Public Debt 

o Departmental Offices 

o Financial Crimes Enforcement Network 

o Legacy Financial Management Service 

o Office of the Comptroller of the Currency 

o United States Mint 

 To develop criteria to evaluate Treasury bureaus’ conference

policies, we reviewed the following.

o 41 Code of Federal Regulations (CFR) §301-74, 

Conference Planning

o 41 CFR Appendix E to Chapter 301, Suggested Guidance 

for Conference Planning

o Executive Order 13589: Promoting Efficient Spending, 

November 9, 2011

o OMB Memorandum 11-35, Eliminating Excess Conference 

Spending and Promoting Efficiency in Government, 

September 21, 2011

o OMB Memorandum 12-12, Promoting Efficient Spending 

to Support Agency Operations, May 11, 2012

o Treasury Directive (TD) 12-70, Hosted or Sponsored 

Conference Planning and Approval, May 6, 2013
Appendix 1

Objective, Scope, and Methodology

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 To develop criteria to evaluate Treasury bureaus’ travel policies, 

we reviewed the following.

o Key provisions of Federal Travel Regulations at 41 CFR

§301-51, Paying Travel Expenses, which address travel 

card use requirements for official travel

o TD 12-24, Acceptance of Payments for Travel Expenses 

from a Non-Federal Source, March 14, 2012

o TD 12-27, Delegation of Authority to Approve Certain 

Travel and Related Expenses for Personnel Assigned 

Outside the United States, February 25, 2011

o TD 74-12, Use of Government Contractor-Issued Travel 

Charge Cards, October 20, 2011

o TD 74-13, First-Class and Business-Class Travel,

March 21, 2008, reaffirmed March 16, 2012

o TD 74-15, Performing Temporary Duty at or Near the 

Permanent Duty Station or Residence, 

September 21, 2011.

 To develop criteria to evaluate Treasury bureaus’ employee 

award policies, we reviewed the following.

o 5 United States Code (USC), Chapter 43, Performance 

Appraisal

o 5 USC, Chapter 45, Incentive Awards

o 5 USC, Chapter 54, Merit Pay and Cash Awards, Section 

5404, Human Capital Performance Payments

o 5 CFR, Part 451, Subpart A, Agency Awards

o 5 CFR, Part 531, Subpart E, Quality Step Increases;

o OPM Operating Manual, Chapter 1, The Guide to 

Processing Personnel Actions, September 12, 2010

o OPM Guidance: Incentives and Employee Recognition, 

September 2005

We performed our audit fieldwork in Washington, DC, between 

January 2013 and July 2013.

We conducted this performance audit in accordance with generally 

accepted government auditing standards. Those standards require 

we plan and perform the audit to obtain sufficient, appropriate 

evidence to provide a reasonable basis for our findings and 
Appendix 1

Objective, Scope, and Methodology

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conclusions based on our audit objective. We believe the evidence 

obtained provides a reasonable basis for our findings and 

conclusions based on our audit objective.
Appendix 2

Management Response

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Appendix 3

Major Contributors to This Report

Treasury Established Appropriate Conference, Travel, and Award Policies Page 15

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Myung G. Han, Audit Manager

Horace A. Bryan, Auditor-in-Charge

Joshua P. Dreis, Auditor

Daniel Jensen, Referencer
Appendix 4

Report Distribution

Treasury Established Appropriate Conference, Travel, and Award Policies Page 16

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Department of the Treasury

Deputy Secretary

Office of Strategic Planning and Performance Management

Office of Fiscal Assistant Secretary

Office of the Deputy Chief Financial Officer, Risk and Control 

Group

Alcohol and Tobacco Tax and Trade Bureau

Administrator

Bureau of Engraving and Printing

Director

Bureau of the Fiscal Service

Commissioner

Financial Crimes Enforcement Network

Director

Office of the Comptroller of the Currency

Comptroller

United States Mint

Principal Deputy Director

Office of Management and Budget

OIG Budget Examiner

Treasury OIG Website

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