AGENCY FINANCIAL REPORT

U.S. DEPARTMENT OF COMMERCE

2017

FISCAL YEAR
This report can be found on the Internet at 

http://www.osec.doc.gov/ofm/OFM_Publications.html.

If you have questions or comments regarding 

this report, please contact the Department’s 

Office of Financial Management 

by phone at (202) 482-1207 or 

by email at AFRcomments@doc.gov.

Office of Financial Management

U.S. Department of Commerce

1401 Constitution Avenue NW

Washington, DC 20230
AGENCY FINANCIAL REPORT

U.S. DEPARTMENT OF COMMERCE

2017

FISCAL YEAR
HISTORY AND ENABLING LEGISLATION 

The Department of Commerce was originally established by 

Congressional Act on February 14, 1903 as the Department 

of Commerce and Labor (32 Stat. 826; 5 U.S.C. 591) and was 

subsequently renamed the U.S. Department of Commerce by 

President William H. Taft on March 4, 1913 (15 U.S.C. 1512). 

The defined role of the new Department was “to foster, promote, 

and develop the foreign and domestic commerce, the mining, 

manufacturing, and fishery industries of the United States.” 

MISSION

The Department of Commerce creates the conditions for 

economic growth and opportunity by promoting innovation, 

entrepreneurship, competitiveness, and stewardship.

The Department is composed of 12 bureaus and Departmental 

Management.

■ Bureau of Industry and Security (BIS) 

■ Economic Development Administration (EDA) 

■ Economics and Statistics Administration (ESA) 

● Bureau of Economic Analysis (BEA) 

● Census Bureau

■ International Trade Administration (ITA) 

■ Minority Business Development Agency (MBDA) 

■ National Institute of Standards and Technology (NIST)

● National Technical Information Service (NTIS) 

■ National Oceanic and Atmospheric Administration (NOAA)

■ National Telecommunications and Information 

Administration (NTIA) 

■ U.S. Patent and Trademark Office (USPTO) 

■ Departmental Management (DM)

STRATEGIC GOALS

Strategic Goal 1: Trade and Investment

Strategic Goal 2: Innovation 

Strategic Goal 3: Data

Strategic Goal 4: Environment

Strategic Goal 5: Operational Excellence

LOCATION

The Department is headquartered in Washington, D.C., at the 

Herbert Clark Hoover Building, which is located on eight acres 

of land covering three city blocks. The Department also has field 

offices in all states and territories and maintains offices in more 

than 86 countries worldwide.

EMPLOYEES 

As of September 30, 2017, the Department had approximately 

47 thousand employees. 

BUDGET AUTHORITY

The Department’s FY 2017 net budget authority was approximately 

$9.53 billion.

INTERNET 

The Department’s Internet address is www.commerce.gov.

THE DEPARTMENT AT A GLANCE
TABLE OF CONTENTS

How to Use this Report IV

Management’s Discussion and Analysis 1

Mission and Organization 2

The Department of Commerce Process for Strategic Planning and Performance Reporting 3

FY 2017 Performance Summary 6

Looking Forward 10

Management Controls 12

Secretary’s Statement of Assurance 12

Federal Managers’ Financial Integrity Act (FMFIA) of 1982 13

Federal Financial Management Improvement Act (FFMIA) of 1996 14

Biennial Review of Fees 14

Report on Audit Follow-up 14

Financial Management and Analysis 16

Analysis of FY 2017 Financial Condition and Results 24

Summary of Stewardship Information 33

Financial Section 35

Message from the Chief Financial Officer (Unaudited) 36

Independent Auditors’ Report 37

Principal Financial Statements 47

Consolidated Balance Sheets 48

Consolidated Statements of Net Cost 49

Consolidated Statements of Changes in Net Position 50

Combined Statements of Budgetary Resources 51

Consolidated Statements of Custodial Activity 52

Notes to the Financial Statements 53

Required Supplementary Information (Unaudited) 109

Required Supplementary Stewardship Information (Unaudited) 117

Other Information (Unaudited) 127

Office of Inspector General Summary on Top Management and Performance Challenges 128

Summary of Financial Statement Audit and Management Assurances 134

Payment Integrity 135 

Fraud Reduction Report 145

Reduce the Footprint 146

Civil Monetary Penalties’ Adjustments for Inflation 147

Grants Oversight and New Efficiency (GONE) Act Requirements 151

Undisbursed Balances in Expired Grant Accounts 153

Glossary of Acronyms 157

Acknowledgements 161

FY 2017 AGENCY FINANCIAL REPORT | III
HOW TO USE THIS REPORT

T

his Agency Financial Report (AFR) for the fiscal year ended 

September 30 (FY) 2017 provides the Department of Commerce’s 

financial and summary performance information in accordance with 

OMB Circular A-136, Financial Reporting Requirements.

The Department has chosen to produce an AFR. The Department will 

provide performance results in the FY 2019 Congressional Budget in 

conjunction with performance plan information as the “FY 2019 Annual 

Performance Report” for each bureau and will post it on the Department’s 

website at http://www.osec.doc.gov/bmi/budget/.

The Department’s annual AFR is available on the Department’s website at 

http://www.osec.doc.gov/ofm/OFM_Publications.html. The Department 

welcomes feedback on the form and content of this report.

This report is organized into the following major components:

Management’s Discussion and Analysis (MD&A)

This section provides an overview of the financial and summary-level performance information contained in 

the Performance Summary, Financial Section, and Other Information. The MD&A includes an overview of the 

summary of the performance process and current status of systems, information on management controls and 

the Department’s financial management, analysis of FY 2017 financial condition and results, and a summary of 

stewardship information.

Financial Section

This section contains details of the Department’s finances in FY 2017. A message from the Department’s Chief 

Financial Officer (CFO) (unaudited) is followed by the independent auditors’ report, audited financial statements 

and notes, required supplementary information (unaudited), and required supplementary stewardship information 

(unaudited).

Other Information (Unaudited)

This section provides the Office of Inspector General’s (OIG) summary on top management and performance 

challenges, a summary of financial statement audit and management assurances, payment integrity information, 

a fraud reduction report, a real property “Reduce the Footprint” report, a schedule of civil monetary penalties’ 

adjustments for inflation, a summary of Grants Oversight and New Efficiency (GONE) Act requirements, a summary 

of undisbursed balances in expired grant accounts, a glossary of acronyms, and acknowledgements. 

I V | FY 2017 AGENCY FINANCIAL REPORT

MANAGEMENT’S DISCUSSION AND ANALYSIS
Management’s Discussion

and Analysis
MISSION AND ORGANIZATION

MISSION

To create the conditions for economic growth and opportunity. 

2 | FY 2017 AGENCY FINANCIAL REPORT

MANAGEMENT’S DISCUSSION AND ANALYSIS
THE DEPARTMENT OF COMMERCE PROCESS FOR STRATEGIC 

PLANNING AND PERFORMANCE REPORTING

BACKGROUND ON FEDERAL AGENCY STRATEGIC PLANNING

FY 2017 was exceptional in many ways. Mid-fiscal year a new administration moved into the White House and assumed 

leadership of federal agencies. FY 2017 is also the first year that all major federal agencies are developing and issuing new 

strategic plans on the same schedule. The Government Performance and Results Modernization Act (GPRMA) of 2010 

requires agencies to publish new strategic plans one year after a new administration begins. The process of developing the 

plans for FY 2018 – FY 2022 began in the spring of calendar year 2017. Drafts were provided to the Office of Management 

and Budget (OMB) in September 2017. Final FY 2018 – FY 2022 plans will be published in February of 2018. 

The FY 2014 – FY 2018 Strategic Plan broadly guides activities through FY 2017. However, the focus after the inauguration in 

January was on defining and refining the priorities and policies of the new administration. Some priorities were articulated 

during the campaign; others are being developed as the new team governs. Many leadership positions are filled well into 

the administration’s first year and new principals will modify and refine plans as they work with the agencies they lead.

GPRMA also requires agencies to establish Agency Priority Goals (APGs). APGs set two-year targets for initiatives that 

are significant and would benefit from a well-orchestrated sprint. Most major departments have three to five APGs that 

are selected by top leadership and approved by OMB, an extension of the White House. APGs belong to an administration 

and may or may not be a priority of a new team. However, they typically are significant and continue to be monitored 

but may lose the APG designation. During the summer of 2017, new APGs were proposed, but they will not be formally 

adopted until 2018.

The Strategic Plan and APG implementation monitoring process described later in this section continued through the end 

of calendar year 2016. Progress and barriers to progress are important information to use in the development of new plans 

and APGs. However, in 2017, emphasis and executive attention has focused on creating a program/policy framework for the 

next four years. With the exception of top priority actions, strategic plan monitoring will be more bureau-based until a new 

plan is adopted. When a new plan is published, the Department-level review process will be modified to accommodate 

the preferences of the Secretary and Deputy Secretary.

ORGANIZATION OF THE DEPARTMENT OF COMMERCE STRATEGIC PLAN

The FY 2014 – FY 2018 Department of Commerce Strategic Plan, the plan in effect during FY 2017, is organized by goal 

areas, strategic objectives, strategies, and performance indicators. This structure is standard for federal agencies and is 

established in guidance from OMB. The goal areas are major elements of the Department mission, i.e., Trade and Investment, 

Innovation, Environment, Data, and Operational Excellence. Strategic objectives (three to five per goal area) state specific 

important outcomes the Department aims to achieve, e.g., “Strengthen fair competition in international trade.” Strategies are 

approaches that will be used to achieve a strategic objective, e.g., “Monitor and ensure compliance with trade agreements.” 

Performance indicators are measures of success, e.g., “Number of trade agreement compliance cases resolved successfully.” 

The FY 2018 – FY 2022 Strategic Plan that is being developed will have the same structure, but goal area, strategic objective, 

strategy, and performance indicator content will change.

FY 2017 AGENCY FINANCIAL REPORT | 3

MANAGEMENT’S DISCUSSION AND ANALYSIS
ROUTINE MONITORING OF THE STRATEGIC PLAN

The Department’s Strategic Plan Review and Implementation (SPRI) meetings have been one forum for monitoring the 

strategic plan and refining strategies and tactics on an ongoing basis. Monthly SPRI meetings included the administrationappointed bureau leaders, the Deputy Secretary, and principals of the Office of the Secretary. The Secretary attended 

intermittently. The Deputy Secretary chaired the reviews. At every meeting, a goal area and related objectives and priorities 

were discussed. Progress, challenges, and risks were identified and benefited from the collective talents and resources 

of the group. Strategies and tactics were at times revised or enhanced to accelerate progress or reduce risks. 

The Strategic Plan was also monitored and advanced through weekly Operating Committee meetings. These meetings 

included the Secretary, the Deputy Secretary, policy principals, and the bureau leaders responsible for results under 

discussion. Discussion and reporting followed a prescribed format and follow-up actions were assigned. 

Performance indicator data on APGs and Cross-Agency Priority Goals (address multi-agency priorities) have been posted to 

a public website www.performance.gov. This is a legal requirement, and will continue into the new administration. Before 

the data and explanations are published, the tracking information is reviewed by bureau leadership and OMB. 

Internal bureau-centric metric review processes vary in approach and schedule but are systematic. Data on mission support 

initiatives (Human Resources, Acquisition, Financial Management, etc.) are tracked on an online dashboard and reviewed at 

quarterly meetings with the Chief Financial Officer/Assistant Secretary for Administration (CFO/ASA). The various “CXO” 

Councils (Human Resources, Information Technology, Acquisition, CFO) also review dashboards of metrics.

ANNUAL STRATEGIC REVIEW PROCESS

As required by OMB guidance, in the spring of FY 2016, the Department conducted a review of progress on the 19 strategic 

objectives in the FY 2014 – FY 2018 Strategic Plan. The results of the reviews are summarized in the Annual Performance 

Report that will be issued in FY 2018. The strategic reviews generated an “evidence agenda” that sets priorities for research 

and program evaluation needed to evolve service delivery and increase return on investment in programs. Evidence 

(research) on the quality of service and program impact is informing the development of the new strategic plan.

The chart on the following page summarizes the strategic goals and objectives established in the FY 2014 – FY 2018 

Strategic Plan. The complete plan can be viewed online at https://www.commerce.gov/sites/commerce.gov/files/media/

files/2014/doc_fy2014-2018_strategic_plan.pdf.

The FY 2018 – FY 2022 Department of Commerce Strategic Plan will build on what the Department achieved and learned 

in FY 2014 – FY 2018.

4 | FY 2017 AGENCY FINANCIAL REPORT

MANAGEMENT’S DISCUSSION AND ANALYSIS
TRADE AND INVESTMENT

1.1. Increase opportunities for U.S. companies by opening markets globally 

(ITA, NOAA, NTIA, USPTO)

1.2. Increase U.S. exports (BIS, EDA, ESA, ITA, MBDA, NIST, OS)

1.3. Increase high-impact inward foreign direct investment into the United States 

(EDA, ESA, ITA)

1.4. Strengthen fair competition in international trade for U.S. firms and 

workers (ITA)

INNOVATION

2.1. Accelerate advanced manufacturing (EDA, NIST)

2.2. Strengthen the Nation’s digital economy (ITA, NIST, NTIA, USPTO)

2.3. Catalyze innovation ecosystems (EDA, ESA, ITA, MBDA, NIST, OS, USPTO)

ENVIRONMENT

3.1. Advance the understanding and prediction of changes in the environment 

(NIST, NOAA)

3.2. Build a Weather-Ready Nation (ESA, NOAA)

3.3. Strengthen the resiliency of communities and regions (EDA, ESA, NIST, NOAA)

3.4. Foster healthy and sustainable marine resources, habitats, and ecosystems 

(NOAA)

3.5. Enable U.S. businesses to adapt and prosper by developing environmental 

and climate informed solutions (ESA, ITA, NIST, NOAA)

DATA

4.1. Deliver increasing amounts of data to governments, businesses, and the 

public in formats that are easier to access and use (OS, All Bureaus)

4.2. Position the Department of Commerce to meet society’s future data needs (ESA)

4.3. Create a data-driven government (EDA, ESA, ITA, MBDA)

OPERATIONAL EXCELLENCE

5.1. Empower and engage Commerce employees (OS, All Bureaus)

5.2 Support a service-oriented culture that responds to the needs of external 

and internal customers (OS, All Bureaus)

5.3 Manage for results (OS, All Bureaus)

5.4 Improve facilities, support services, and IT products and services to drive 

mission success (OS, All Bureaus)

Expand the U.S. economy 

through increased 

exports and inward 

foreign investment that 

lead to more and better 

American jobs

Foster a more innovative 

U.S. economy—one that is 

better at inventing, improving, and commercializing 

products and technologies

Help communities 

and businesses prepare 

for and prosper in a 

changing environment

Maximize the positive 

impacts of Commerce 

data on society

Strengthen the Department’s 

capacity to achieve its 

objectives, maximize 

return on program 

investments, and deliver 

quality, timely service

1

2

3

4

5

Note: ESA includes the Bureau of Economic Analysis and the Census Bureau.

SUMMARY OF STRATEGIC GOALS AND OBJECTIVES

FY 2017 AGENCY FINANCIAL REPORT | 5

MANAGEMENT’S DISCUSSION AND ANALYSIS
FY 2017 PERFORMANCE SUMMARY

OVERVIEW

The performance indicators below are a representative sample of the 170 measures that are tracked at the Departmental level. 

The indicators presented in this report were selected based on significance, the availability of FY 2017 data, and accessibility 

(easy to understand without a technical background). Full year data on FY 2017 were not available for all measures by the 

publication deadline. The Department’s full set of performance metrics, trends, and results can be found in the Annual 

Performance Plan and Report that is part of the annual budget submission to Congress. (http://osec.doc.gov/bmi/budget/)

1. TRADE AND INVESTMENT 

The Agency Priority Goal (APG) in the Trade and Investment goal area has been “Percentage of Global Markets’ clients 

that achieved their export objectives.” Global Markets is a business unit of the International Trade Administration (ITA). It 

assists U.S. businesses (ITA’s clients) to start exporting or increase exports. This measure reflects Global Markets’ emphasis 

on customer service. In FY 2017, the target of 73 percent was exceeded; 78 percent of clients achieved their objectives. 

The percentage of clients highly likely to recommend Global Markets assistance, 86 percent, compares favorably to the 

service ratings of well-regarded private sector companies.

In FY 2017, ITA increased emphasis on enforcement of trade agreements and conventions. They far exceeded their target of 

responding to 298 business petitions regarding unfair practices; they worked with over one thousand businesses. Results 

on this measure will vary a lot year to year depending on the demand for counseling. “Commercial advocacy wins” are 

instances where ITA has helped a U.S. business win a contract with a foreign government or used diplomacy to remove a 

barrier to U.S. exports. There were 459 “wins” in FY 2017.

Performance Measure

FY 2013

Actual

FY 2014

Actual

FY 2015

Actual

FY 2016

Actual

FY 2017

Target

FY 2017

Actual

Percentage of Global Markets clients that achieved 

their export objectives

67% 73% 73% 78% 73% 78%

Percentage of clients highly likely to recommend 

Global Markets

78% 83% 84% 86% 82% 86%

Number of clients assisted by Global Markets 18,126 17,593 25,029 26,852 28,000 30,110

Number of antidumping and countervailing duty petition 

counseling sessions

N/A N/A N/A 655 298 1,038

Number of commercial advocacy wins N/A 343 287 472 330 459

N/A = Not Available

2. INNOVATION

The Department supports innovation with cutting-edge research by the scientists at the National Institute of Standards and 

Technology (NIST). NIST also makes its facilities available to researchers from industry. In FY 2017, 442 businesses used NIST 

equipment to test ways to improve their products. The National Telecommunications and Information Administration (NTIA) 

6 | FY 2017 AGENCY FINANCIAL REPORT

MANAGEMENT’S DISCUSSION AND ANALYSIS
provides highly used research and information on broadband use and developments. One way NTIA measures its reach 

is by counting document downloads. It also provides consulting to communities on how broadband can be leveraged to 

expand their business base. In FY 2017, NTIA assisted 400 communities.

Performance Measure

FY 2013

Actual

FY 2014

Actual

FY 2015

Actual

FY 2016

Actual

FY 2017

Target

FY 2017

Actual

Number of businesses using NIST research facilities N/A 514 444 435 325 442

Number of times NTIA research publications are downloaded N/A 7,707 8,960 8,800 8,000 8,089

Communities that NTIA assisted in gaining economic benefits 

from broadband

N/A N/A 337 449 250 400

N/A = Not Available

The U.S. Patent and Trademark Office (USPTO) missed the target for reducing the time for first action on a patent application; 

this will be addressed by increased use of technology and process improvements. USPTO has continued to reduce the 

patent backlog and the time required for a final patent determination (an APG). USPTO’s efforts to improve cycle-time and 

patent quality help reduce the time from invention to commercialization of a product.

Performance Measure

FY 2013

Actual

FY 2014

Actual

FY 2015

Actual

FY 2016

Actual

FY 2017

Target

FY 2017

Actual

Patent first action pendency (months) 18.2 18.4 17.3 16.2 14.8 16.3

Patent total action pendency (months) 29.1 27.4 26.6 25.3 24.8 24.2

Patent backlog 584,998 605,646 553,221 537,655 485,300 526,579

3. ENVIRONMENT

The National Oceanic and Atmospheric Administration (NOAA) advances U.S. resilience to extreme weather and works with 

individual communities toward that end. As shown in the metric below many hometowns are benefiting from increased 

resilience. NOAA has an admirable record for peer-reviewed research; NOAA research focuses on weather, climate, and 

the oceans. As indicated in the last measure in the matrix below, they also have an admirable record of success supporting 

populations of endangered species. The Fish Stock Sustainability Index measures progress in maintaining fishing at levels 

that will permit future generations to fish. 

Performance Measure

FY 2013

Actual

FY 2014

Actual

FY 2015

Actual

FY 2016

Actual

FY 2017

Target

FY 2017

Actual

Percentage of U.S. coastal states and territories 

demonstrating annual improvement in resilience to 

weather and climate hazards

57% 54% 60% 74% 66% 69%

Annual number of peer-reviewed publications related to 

environmental understanding and prediction 

1,676 1,759 1,860 1,697 1,700 1,678

Number of protected species designated as threatened, 

endangered or depleted with stable or increasing 

population levels

30 37 31 31 30 30

Fish Stock Sustainability Index 719.0 746.0 761.5 754.0 754.0 756.5

FY 2017 AGENCY FINANCIAL REPORT | 7

MANAGEMENT’S DISCUSSION AND ANALYSIS
NOAA skill and lead time for predicting weather can and does save lives. The “skill score” is a measure of accuracy and 

it hit an all-time high for temperature forecasts. Lead time for warnings is very important for extreme weather. Winter 

storm warning lead time is now 22 hours. NOAA is using “super-computing” to perfect the models and extend warning 

lead times. Accurate flash flood predictions are also needed for public safety. NOAA is working to improve the models 

that predict dangerous flooding. To this end, it opened the National Water Center in 2014. The National Water Center 

leverages interagency (U.S. Geological Survey, Army Corps of Engineers) expertise to improve water resource forecasts.

Performance Measure

FY 2013

Actual

FY 2014

Actual

FY 2015

Actual

FY 2016

Actual

FY 2017

Target

FY 2017

Actual

U.S. temperature forecast skill 26 26 25 24 26 34

Winter storm warning – Lead time (hours) 22 22 21 21 20 22

Severe weather warnings for flash floods – Accuracy 78% 78% 79% 80% 76% 78%

4. DATA

The FY 2014 – FY 2018 Strategic Plan presents data as a national asset that can increase competitiveness and save lives 

(e.g., weather data). In FY 2017, the Department continued to make more of its data sets available in API format, i.e., a 

format that facilitates linking data sets. NOAA and the Census Bureau data support industries that package the information 

for local and regional consumption.

The Census Bureau is planning a 2020 Decennial Census that will hinge on a centralized, state of the art information 

technology (IT) architecture. This IT investment will eventually support all of the Census Bureau’s survey products. The 

Census Bureau and the Bureau of Economic Analysis (BEA) continue to meet their deadlines for data releases that are the 

basis of critical government and business decisions.

Performance Measure

FY 2013

Actual

FY 2014

Actual

FY 2015

Actual

FY 2016

Actual

FY 2017

Target

FY 2017

Actual

Percentage of data processed and delivered to the user 

community (relative to all data transmitted to NOAA from 

NOAA-managed satellites)

99.5% 99.7% 99.35% 99.3% 98.5% 99.49%

Percentage of key activities for cyclical census programs 

completed on time to support effective decision-making 

by policymakers, businesses, and the public

90% 90% 100% 100% 90% 100%

Percentage of key data products for Census Bureau programs 

released on time to support effective decision-making of 

policymakers, businesses, and the public (Economic Indicators)

100% 100% 100% 100% 100% 100%

Percentage of key data products for Census Bureau programs 

released on time to support effective decision-making of 

policymakers, businesses, and the public (Other Key Products: 

Econ, Geo, and Demo)

90% 86% 87% 84% 90% 85%

BEA timely releases of economic statistics 62 65 65 74 74 74

8 | FY 2017 AGENCY FINANCIAL REPORT

MANAGEMENT’S DISCUSSION AND ANALYSIS
5. OPERATIONAL EXCELLENCE 

There are many granular measures in the Operational Excellence goal area that help identify support services that need 

improvement, e.g., measures of customer satisfaction with individual processes and services, cycle-times, and cost effective 

new practices. Strategic level measures are often milestones for implementing new approaches to major functions, e.g., 

organizational development, IT architecture, and acquisition. New approaches reflect government-wide initiatives/reforms 

in the President’s Management Agenda, which states the administration’s priorities for improved operations. 

As these proceed, the Department monitors employee survey results (see below) to assess if the culture supports excellence. 

The survey data below is the percent of staff who responded positively on the questions in the index. Both index scores 

are above the federal averages (69 for engagement; and 58 for results). 

One-way environmental responsibility is monitored is by tracking the Department’s use of renewable energy. There has 

been steady improvement for five years. Enterprise acquisition practices are assessed in part through savings. That 

measure shows notable progress.

Performance Measure

FY 2013

Actual

FY 2014

Actual

FY 2015

Actual

FY 2016

Actual

FY 2017

Target

FY 2017

Actual

Federal Employee Viewpoint Survey – Employee 

Engagement Index

70 70 68 69 69 71

Federal Employee Viewpoint Survey – Results Oriented 

Culture Index

61 61 60 60 61 62

Commerce use of renewable energy as a percentage of total 

facility electricity use

4.9% 6.2% 7.7% 10% 7.5% 14.6%

Savings achieved through effective acquisition practices $21M $18M $17M $35M $18M $36M

FY 2017 AGENCY FINANCIAL REPORT | 9

MANAGEMENT’S DISCUSSION AND ANALYSIS
LOOKING FORWARD

The Department of Commerce is committed to creating the conditions for economic growth and opportunity. Much work 

has been completed and the Department remains committed to addressing continuing challenges, as well as new and 

emerging issues, as it strives to achieve the Department’s strategic objectives.

Despite many gains and achievements, the Department recognizes areas of major potential impact on the effectiveness 

and efficiency of its programs and operations. The Department has undertaken and planned extensive actions to address 

these challenges, and is committed to making further progress. 

As a new decade draws closer on the horizon, the Department will continue to work with businesses, universities, 

communities, and the Nation’s workers to promote job creation, economic growth, and sustainable development. Departmental 

leadership is dedicated to making informed decisions when establishing program priorities as the Nation navigates familiar 

territories, and builds on core achievements; all while facing great uncertainty and emerging challenges. Balancing risk 

and opportunity in key programs, operations, and strategies will be a key contribution to the overall improved standards 

of living for Americans.

BALANCING RISK AND OPPORTUNITY 

Departmental managers and leaders handle complex and risky mission and mission support activities, such as preparing 

for and responding to natural disasters, and managing safe information technology (IT) systems. While it is not possible to 

eliminate all uncertainties in these types of projects, there are strategies that can help plan and manage them. 

One such strategy used at the Department is Enterprise Risk Management (ERM). Recognized and cited by the 

U.S. Government Accountability Office (GAO) as a good practice for managing risk, the Department’s ERM effort provides 

ways to better anticipate and manage risk across the organization. Successful ERM programs find ways to develop an 

organizational culture that allows employees to openly discuss and identify risks, as well as potential opportunities to 

enhance organizational goals or value. For example, Departmental officials sought to embed a culture of risk awareness 

across the Department by defining cascading roles of leadership and responsibility for ERM across the Department and 

for its 12 bureaus. Additionally, the Department leveraged this forum to share bureau best practices; develop a common 

risk lexicon; and address cross-bureau risks, issues, and concerns regarding ERM practice and implementation. These 

roles should support the ERM program and promote a risk management culture. They also help promote transparency, 

oversight, and accountability for a successful ERM.

Consideration of the Department’s changing priorities and emerging risks is particularly valuable in helping the Department 

to focus its oversight efforts. The Department’s ERM Framework is designed to facilitate a risk-based approach to its dayto-day business. The Department annually utilizes several processes and sources to identify, manage, and mitigate fraud 

risks. These process and sources include, but are not limited to, the Agency Risk Profile, GAO High-Risk List, and Mission 

Critical Programs and Activities List.

1 0 | FY 2017 AGENCY FINANCIAL REPORT

MANAGEMENT’S DISCUSSION AND ANALYSIS
EMERGING CHALLENGES 

The underlying strength of the Department is the ability of its bureaus to work together and share expertise to drive economic 

growth. This same collaborative effort is leveraged to address the challenging areas that remain a priority for Department 

leadership. Securing Department systems and information, deploying a Nationwide Public Safety Broadband Network, 

and modernizing the Department’s legacy IT systems and improving data quality are examples of areas for improvement 

that benefit from collaborative solutions. The Department is dedicated to developing processes to facilitate this need, 

which include conducting Milestone Review Boards (MRBs). The MRB is a Department-level multi-disciplinary meeting 

that reviews performance indicators and progress against milestones. The board meetings direct further data collection 

and/or course corrections to keep critical projects on track. A balance of oversight and proactive risk management will be 

an ongoing process to address these challenge areas.

FY 2017 AGENCY FINANCIAL REPORT | 1 1

MANAGEMENT’S DISCUSSION AND ANALYSIS
T

he Department’s management is responsible for establishing and maintaining effective internal control 

and financial management systems that meet the objectives of the Federal Managers’ Financial Integrity 

Act (FMFIA). During FY 2017, the Department assessed its internal control over the effectiveness and 

efficiency of operations and compliance with applicable laws and regulations in accordance with Office of 

Management and Budget (OMB) Circular A-123, Management’s Responsibility for Enterprise Risk Management 

and Internal Control. Based on the results of this evaluation, the Department can provide reasonable assurance 

that its internal control over the effectiveness and efficiency of operations and compliance with applicable laws 

and regulations as of September 30, 2017 was operating effectively and no material weaknesses were found 

in the design or operation of the internal controls. 

In addition, the Department conducted its assessment of the effectiveness of internal control over financial 

reporting, which includes safeguarding of assets and compliance with applicable laws and regulations, 

in accordance with the requirements of Appendix A of OMB Circular A-123. Based on the results of this 

evaluation, the Department can provide reasonable assurance that its internal control over financial reporting 

as of June 30, 2017, was operating effectively and no material weaknesses were found in the design or 

operation of the internal control over financial reporting. Furthermore, no material weaknesses related to 

internal control over financial reporting were identified between July 1 and September 30. 

Based on reviews conducted by the Department, it has been able to determine that its financial systems are 

in conformance with government-wide requirements.

Ellen Herbst

Chief Financial Officer and

Assistant Secretary for Administration

Department of Commerce

November 14, 2017

Wilbur L. Ross, Jr.

Secretary of Commerce

November 14, 2017

MANAGEMENT CONTROLS

1 2 | FY 2017 AGENCY FINANCIAL REPORT

MANAGEMENT’S DISCUSSION AND ANALYSIS
FEDERAL MANAGERS’ FINANCIAL INTEGRITY ACT (FMFIA) OF 1982

The objective of the Department’s management control system is to provide reasonable assurance that: 

● Obligations and costs are in compliance with applicable laws;

● Assets are safeguarded against waste, loss, unauthorized use, or misappropriation; 

● Revenues and expenditures applicable to the Department’s operations are properly recorded and accounted 

for, permitting accurate accounts, reliable financial reports, and full accountability for assets; and 

● Programs are efficiently and effectively carried out in accordance with applicable laws and management policy. 

During FY 2017, the Department reviewed its management control system in accordance with the requirements of 

FMFIA, and OMB and Departmental guidelines. 

SECTION 2 OF FMFIA – INTERNAL MANAGEMENT CONTROLS

Section 2 of FMFIA requires that federal agencies report, on the basis of annual assessments, any material weaknesses 

that have been identified in connection with their internal and administrative controls. Based on their FY 2017 evaluations, 

the Department’s 12 bureaus submitted, signed, and certified their Statements of Assurance and can provide reasonable 

assurance that its’ internal control over the effectiveness and efficiency of operations and compliance with applicable 

laws and regulations was operating effectively and no material weaknesses were found in the design or operation of the 

internal controls. 

The efficiency of the Department’s operations is continually evaluated using information obtained from reviews conducted 

by the U.S. Government Accountability Office (GAO) and the Office of Inspector General (OIG), evaluations conducted by 

other federal agencies such as the Office of Personnel Management, and other specifically requested studies. The diverse 

reviews that took place during FY 2017 that were key to the organization provide assurance that Department systems and 

management controls comply with standards established under FMFIA. In FY 2017, the OIG conducted an examination 

of the Department’s compliance with the Digital Accountability and Transparency Act of 2014 (DATA Act). The examination 

covered the Department’s second quarter FY 2017 DATA Act submission. The DATA Act, in part, requires federal agencies to 

report financial and award data in accordance with government-wide financial data standards. These data are now publicly 

available on the website beta.USASpending.gov. The DATA Act also requires the OIG of each federal agency to review a 

sample of the submitted data and then report on the completeness, timeliness, quality, and accuracy of the data, as well as 

the agency’s implementation and use of the required standards. The OIG found that the transactions in the examined files 

were not presented, in all material respects, in accordance with the data characteristics defined in the U.S. Department of 

the Treasury’s Inspectors General Guide to Compliance Under the DATA Act. As a result, the OIG noted a material weakness 

related to controls over the DATA Act submission processes, and a significant deficiency related to access controls over 

the Department’s grant and procurement systems.

SECTION 4 OF FMFIA – INTERNAL CONTROLS OVER FINANCIAL MANAGEMENT SYSTEMS 

The Department has reported no material weaknesses under FMFIA Section 4 in recent years. Based on reviews conducted 

by the Department and its bureaus for FY 2017, the financial systems in the Department are compliant with GAO principles 

and standards, the requirements of the Chief Financial Officers (CFO) Act, and OMB requirements. 

FY 2017 AGENCY FINANCIAL REPORT | 1 3

MANAGEMENT’S DISCUSSION AND ANALYSIS
FEDERAL FINANCIAL MANAGEMENT IMPROVEMENT ACT (FFMIA) OF 1996

The Department has reported no material weaknesses under FMFIA Section 4 in recent years. Based on reviews conducted 

by the Department and its bureaus for FY 2017, the financial systems in the Department are compliant with GAO principles 

and standards, the requirements of the CFO Act, and OMB requirements. 

BIENNIAL REVIEW OF FEES

OMB Circular A-25 Revised, User Charges (July 8, 1993), requires the biennial review of agency programs to determine 

whether fees should be charged for government goods or services, and to ascertain that existing user charges are adjusted 

to reflect unanticipated changes in costs or market values.

The Department conducts a review of its programs at least biennially. With the exception of the International Trade 

Administration (ITA), the Department is in compliance with the requirement to adjust its fees to meet the OMB Circular A-25 

Revised requirement of full-cost recovery for user charges.

OMB has granted ITA an exception to the full cost recovery provisions of OMB Circular A-25 Revised for the user fees 

that ITA charges to small and medium enterprises until September 30, 2018. As ITA continues to review and update its 

fee structure, it is working towards improving data collection capabilities with regard to sensitivity analysis and revenue 

projections, with the goal of moving toward a model that more fully recovers the costs of the services it provides.

REPORT ON AUDIT FOLLOW-UP

This report shows audit follow-up activity on audits performed by the OIG, as well as the amount of potential monetary 

benefits that the OIG found could be achieved through implementing open recommendations in these reports. The report 

includes only audits for which there has been resolution, i.e., management and the auditor (OIG) have agreed on an action 

plan. Reports are closed when final action has been taken to implement all recommendations.

The Department has changed the reporting period to the current fiscal year (FY 2017). We are also including information 

on the prior fiscal year (FY 2016) because this information was not included in the FY 2016 AFR.

1 4 | FY 2017 AGENCY FINANCIAL REPORT

MANAGEMENT’S DISCUSSION AND ANALYSIS
SUMMARY OF ACTIVITY ON AUDIT REPORTS

OCTOBER 1, 2016 THROUGH SEPTEMBER 30, 2017

NUMBER OF REPORTS1

POTENTIAL MONETARY BENEFITS 

OF OPEN RECOMMENDATIONS2

Beginning Balance 40 $ 103,162,879

New Reports 22 44,209,928

Total Reports Open During the Period 62 147,372,807

Reports Closed 34 (60,277,972)

Ending Balance 28 $ 87,094,835

SUMMARY OF ACTIVITY ON AUDIT REPORTS

OCTOBER 1, 2015 THROUGH SEPTEMBER 30, 2016

NUMBER OF REPORTS1

POTENTIAL MONETARY BENEFITS 

OF OPEN RECOMMENDATIONS2

Beginning Balance 32 $ 152,115,308

New Reports 28 78,568,161

Total Reports Open During the Period 60 230,683,469

Reports Closed 20 (127,520,590)

Ending Balance 40 $ 103,162,879

1 The tables include Performance Audits, Evaluations, and Inspections. Audits comply with standards established by the Comptroller General 

of the United States for audits of federal establishments, organizations, programs, activities, and functions. Evaluations and inspections 

include evaluations, inquiries, and similar types of reviews that do not constitute an audit or a criminal investigation.

2 In some audits, the OIG identifies potential monetary benefits that could be realized when or if the recommendations are implemented. 

Potential Monetary Benefits of open recommendations include Questioned Costs and Funds to Be Put to Better Use. 

• Questioned Costs: This is a cost questioned by the OIG because of (1) an alleged violation of a provision of a law, regulation, contract, 

grant, cooperative agreement, or other agreement or document governing the expenditure of funds; (2) a finding that, at the time 

of the audit, such cost is not supported by adequate documentation; or (3) a finding that an expenditure of funds for the intended 

purpose is unnecessary or unreasonable.

• Funds to Be Put to Better Use: This dollar value results from an OIG recommendation that funds could be used more efficiently if 

Departmental Management took action to implement and complete the recommendation. Such actions may include (1) reductions in 

outlays; (2) deobligation of funds from programs or operations; (3) withdrawal of interest subsidy costs on loans or loan guarantees, 

insurance, or bonds; (4) costs not incurred by implementing recommended improvements related to the Department, a contractor, 

or a grantee; (5) avoidance of unnecessary expenditures identified in preaward reviews of contracts or grant agreements; or 

(6) any other savings specifically identified.

FY 2017 AGENCY FINANCIAL REPORT | 1 5

MANAGEMENT’S DISCUSSION AND ANALYSIS
FINANCIAL MANAGEMENT AND ANALYSIS

INTRODUCTION

Under the Secretary’s leadership, the Department is continuing to give the highest priority to providing accurate financial data 

to its internal and external customers, and to its accountability for all assets. Ensuring that there are strong internal controls 

throughout the Department remains a priority. The Department has created a financial management environment that 

complies with federal laws and regulations and that provides its executives with timely, accurate financial and performance 

information. This is evidenced with the Department continuing to receive unmodified audit opinions, maintaining a single 

integrated financial system, and continuing its compliance with the Federal Financial Management Improvement Act (FFMIA).

Highlights of accomplishments for FY 2017 and future initiatives are discussed further below.

FINANCIAL MANAGEMENT SYSTEMS

The Department maintains an FFMIA-compliant financial management system, Commerce Business Systems (CBS), which 

provides reliable, timely information within a sophisticated security infrastructure. The system is capable of producing 

both financial and budget reports from information generated within the financial management system. CBS consists of 

a Core Financial System, including the Commerce Purchase Card System and the Budget and Execution Data Warehouse. 

CBS is interfaced with the Commerce Standard Acquisition and Reporting System, the U.S. Department of Agriculture’s 

(USDA) National Finance Center (NFC) Payroll System, and the U.S. Department of the Treasury’s (Treasury) Automated 

Standard Application for Payments. 

The financial information from CBS is integrated in the Corporate Database for consolidated financial reporting, resulting in 

a single integrated financial management system. The Corporate Database is a commercial, off-the-shelf software package 

for consolidating financial data and producing financial reports. The Corporate Database is an integrated solution that 

provides financial statements and Adjusted Trial Balances reported at the Department, bureau, and Treasury Appropriation/

Fund Group level. It also provides the ability to perform data analysis and produce the Department’s footnotes, financial 

analysis reports, and other additional information required for the government-wide financial statements. 

The Department is currently participating in government-wide work groups for SmartPay3 and Government Invoicing 

(G-Invoicing), which are two initiatives that will require compliance in future fiscal years. SmartPay3 is a U.S. General 

Services Administration (GSA)-led initiative to transition government purchase and travel cards from the current provider to 

a new provider, and may require changes to the CBS to successfully implement the change. G-Invoicing is a Treasury-led 

initiative to standardize the inter-agency agreement process across the government. The Department participates in these 

work groups to help guide the implementation of the initiatives across the government as well as to plan for the changes 

needed to CBS so that the Department is ready to implement by the mandatory date. Additionally, the Department remains 

dedicated to providing quarterly submissions to meet the Digital Accountability and Transparency Act of 2014 (DATA Act) 

requirements, as well as addressing any necessary modifications as required.

During FY 2017, the Department accomplished the following initiatives: 

● Completed development and deployment of interfaces between CBS and Employee Travel System, version 2 

(E2 or E2Solutions) travel management system in support of the Department-wide implementation of E2. These 

interfaces include authorizations, vouchers, centrally billed accounts, and audit functionality;

1 6 | FY 2017 AGENCY FINANCIAL REPORT

MANAGEMENT’S DISCUSSION AND ANALYSIS
● Completed implementation of E2 to the National Institute of Standards and Technology (NIST), National Oceanic and 

Atmospheric Administration (NOAA), and the Census Bureau, and stood up Tier 2/production support operations;

● Gathered requirements for Mass Close functionality in E2, which provides the ability to close multiple E2 Travel open 

obligations in one batch process;

● Completed year-end interface for E2;

● Designed, developed, and deployed the DATA Act Broker and successfully lead the Department in second quarter 

and third quarter DATA submissions;

● Completed development of Federal Funding Accountability and Transparency Act New Unique Identifier to include 

Activity Address Codes (AAC);

● Completed technical CBS upgrades for CBS Technology Migration to Web Center-Multi-Node environment, Oracle 

12C database, and WebCenter 12.2.1.1;

● Began development and configuration for TIBCO upgrade, which is software used to translate and validate XML 

documents from CSTARS (the Department’s acquisition system) to be interfaced into CBS;

● Completed analysis and began installation/configuration for Java Runtime Environment/Java WebStart; and

● Conducted operations and maintenance activities for the Department’s Chief Financial Officer and Assistant Secretary 

for Administration (CFO/ASA) Dashboard application. The CFO/ ASA Dashboard provides a Department-wide, 

executive-level overview of the Department’s highest priority and highest risk mission and administrative initiatives. 

In FY 2018 and beyond, the Department will continue its efforts to enhance its financial systems. The Department plans 

to accomplish the following: 

● Continue working with the Office of Management and Budget (OMB) and Treasury to determine the next steps for 

the Business Application Solutions project;

● Gather requirements, design, develop, and implement SmartPay3 interface;

● Design, develop and implement NOAA Corp Retirement System interface changes to USDA’s NFC interface;

● Conduct analysis and perform requirements gathering and design for G-Invoicing;

● Implement AAC and E2 year-end code synchronization;

● Develop Mass Close functionality for E2;

● Establish Business Intelligence solution to meet the Department’s needs for DATA Act metrics reporting;

● Implement a Department-wide relocation system and its interface with CBS; and

● Complete technical upgrades for Oracle WebCenter 12.2.1.2, Oracle 12C Forms and Reports, and TIBCO upgrade.

FY 2017 AGENCY FINANCIAL REPORT | 1 7

MANAGEMENT’S DISCUSSION AND ANALYSIS
FINANCIAL REPORTING AND POLICY

The Department accomplished the following initiatives during FY 2017:

● Bureaus identified and reported improper payments data to the Department quarterly, including recaptures of 

improper payments data, identified reasons for improper payments, and continually implemented appropriate actions 

to minimize future improper payments. For more information on the Department’s payment integrity efforts during 

FY 2017, see the Payment Integrity subsection included in Other Information; 

● Each of the Department’s bureaus/reporting entities updated or prepared their scheduled improper payment risk 

assessments covering all programs/activities as required by OMB Circular A-123, Management’s Responsibility for 

Internal Control, Appendix C, Requirements for Effective Measurement and Remediation of Improper Payments.

These improper payment risk assessments of the entity’s programs/activities also include assessments of the control, 

procurement, and grants management environments, and are now in the continuous process stage of being updated 

every three years, unless significant changes occur, in which case an assessment will be updated quicker. For more 

information on the Department’s efforts during FY 2017 regarding improper payments risk assessments, see the 

Payment Integrity subsection included in Other Information; 

● A contractor completed an annual payment recapture audit of Department-wide grants and other cooperative agreements, 

and completed an annual payment recapture audit of contracts/obligations for the National Telecommunications 

and Information Administration (payment recapture audits of contracts/obligations are performed annually for the 

Department’s bureaus/reporting entities, on a rotational basis). The payment recapture audits did not identify any 

improper payments;

● A contractor prepared a Statistical Sampling and Estimation Plan for the NOAA Disaster Relief Appropriations Act 

FY 2016 disbursements in order to yield a statistically valid improper payments estimate, and the contractor and 

NOAA performed the FY 2016 disbursements testing, which yielded a statistically valid improper payments estimate 

of $85 thousand and a statistically valid projected improper payments rate of 0.15 percent. For more information on 

the Department’s statistical sampling efforts for funds received by NOAA under the Disaster Relief Appropriations 

Act, see the Payment Integrity subsection included in Other Information; and

● Adjusted the Department’s civil monetary penalties for inflation in January 2017, in accordance with the Federal Civil 

Penalties Inflation Adjustment Act of 1990, as amended by the Debt Collection Improvement Act of 1996 and the 

Federal Civil Penalties Inflation Adjustment Act Improvements Act of 2015. For more information on the Department’s 

civil monetary penalties as of January 15, 2017, see the Civil Monetary Penalties’ Adjustments for Inflation subsection 

included in Other Information.

In FY 2018 and beyond, the Department plans to accomplish the following

● Adjust the Department’s civil monetary penalties for inflation in January 2018, in accordance with the Federal Civil 

Penalties Inflation Adjustment Act of 1990, as amended by the Debt Collection Improvement Act of 1996 and the 

Federal Civil Penalties Inflation Adjustment Act Improvements Act of 2015; 

● Implement, effective FY 2018, the Federal Accounting Standards Advisory Board’s (FASAB) Statement of Federal 

Financial Accounting Standards (SFFAS) 47, Reporting Entity, which sets forth guidance to include, in the Department’s 

financial statements or as footnote disclosures, “all organizations (1) budgeted for by elected officials of the federal 

government; (2) owned by the federal government; or (3) controlled by the federal government with risk of loss or 

1 8 | FY 2017 AGENCY FINANCIAL REPORT

MANAGEMENT’S DISCUSSION AND ANALYSIS
expectation of benefits. In addition, SFFAS 47 establishes that an organization be included in the Department’s 

financial statements if it would be misleading to exclude it even though it does not meet one of the three inclusion 

principles.” Lastly, SFFAS 47 sets forth guidance on disclosure requirements on Departmental significant relationships 

with other parties. SFFAS 47 requires disclosures “if one party to an established relationship has the ability to exercise 

significant influence over the other party in making policy decisions, and the relationship is of such significance that 

it would be misleading to exclude information about it.” 

● Implement, effective FY 2019, SFFAS 49, Public-Private Partnerships: Disclosure Requirements, which “establishes 

principles to ensure that disclosures about Public-Private Partnerships (P3s) are presented in the reporting entity’s 

general purpose federal financial reports (GPFFRs). The principles guide financial reporting by establishing a P3 definition 

and identifying risk-based characteristics that need to exist before considering the P3 arrangement or transaction for 

disclosure. SFFAS 49 exempts certain arrangements or transactions from the P3 disclosure requirements contained 

herein. Such exempt arrangements or transactions are subject to existing disclosure requirements in other SFFASs 

applicable to such arrangements or transactions.”

GRANTS MANAGEMENT

Under CFO/ASA, the Office of Acquisition Management (OAM) is responsible for the Department’s enterprise-wide grants 

management policy, projects, and oversight. The Department’s focus is to standardize policy and procedures for its grant 

and cooperative agreement programs to strengthen compliance. Additionally, OAM is overseeing the modernization of 

NOAA’s fully automated grants management system, Grants Online, as well as, the migration of all its remaining grant-making 

units to Grants Online. Targeted efforts by OAM continue to transform the decentralized Department grants management 

community into an effective and efficient partnership. 

OAM’s Grants Management Division (GMD) coordinates the Department’s implementation of all applicable statutes, 

regulations, Executive Orders, and OMB circulars, as well as the provisions of 2 CFR, Part 200 (Uniform Guidance), to 

establish more efficient and user-friendly requirements for both Department awarding units and recipients. OAM/GMD 

collaborates with partners in the Department’s financial assistance community to review and update the Department’s 

Grants and Cooperative Agreements Manual (Grants Manual) as well as develop updated Financial Assistance Standard 

Terms and Conditions (STC) consistent with the issued guidance—both the Grants Manual and the STCs undergo annual 

reviews and updates.

In support of the Department’s focus in standardizing policies and procedures, OAM/GMD tracks the number of expired 

grants which remain unclosed for more than 180 days. The Department has made significant progress over the past five 

years, with the total number of unclosed grants in this category dropping from 703 in FY 2013 to 232 by August of 2017. 

The Department’s timely and successful efforts to reduce unclosed expired grants directly supports the Grants Oversight 

and New Efficiency (GONE) Act, which was enacted on January 28, 2016 with the goal of improving the timely closeout 

of federal grant awards to strengthen grants management accountability and oversight. 

To strengthen the implementation of Buy America Laws, the President signed Executive Order 13788, entitled “Buy 

American and Hire American” on April 18, 2017, with the goal of promoting U.S. economic and national security, stimulating 

economic growth, creating good jobs with decent wages, strengthening our middle class, and supporting the American 

manufacturing and defense industrial bases. On June 30, 2017, the Secretary of Commerce and the Director of OMB signed 

a memorandum to implement the Executive Order requiring that federal procurement and federal financial assistance awards 

maximize the use of goods, products, and materials produced in the United States, including iron, steel, and manufactured 

goods and OAM/GMD is coordinating this effort with the Department’s grant-making bureaus.

FY 2017 AGENCY FINANCIAL REPORT | 1 9

MANAGEMENT’S DISCUSSION AND ANALYSIS
Additionally, the Executive Order required the Secretary of Commerce, in consultation with the Secretary of State, the 

Director of OMB, and the U.S. Trade Representative to submit a report that includes findings from Section 3 (b) and (e) of 

the Executive Order, and include specific recommendations to strengthen implementation of Buy American Laws, including 

domestic procurement preference policies and programs. OAM/GMD, in collaboration with OMB’s Office of Federal Financial 

Management, was assigned the lead in directing a government-wide analysis by all federal agencies to assess compliance 

with Buy American statutes and regulations for federal financial assistance awards.

HUMAN CAPITAL

The Department of Commerce strives to be a model employer by building and maintaining a highly-skilled and diverse 

workforce. The Department takes pride in ranking 2nd out of 18 large federal agencies in the 2016 Best Places to Work, the 

most comprehensive and authoritative rating of employee satisfaction and commitment in the federal government produced 

by the Partnership for Public Service and American University’s Institute for the Study of Public Policy Implementation. 

Internships, leadership development programs, technical training opportunities, telework, and succession plans are used 

by bureaus as vehicles for making progress in the recruitment, development, and retention of a highly-skilled and diverse 

workforce. Acknowledging that people are the key to mission accomplishment, Departmental leadership continues to 

implement and evaluate programs to ensure that there is succession planning for future workforce needs, including those 

in the area of financial management.

In FY 2017, the Department hosted approximately 360 Pathway Program interns, recent graduates, and Presidential 

Management fellows. Of these, approximately 19 served as accountants, budget analysts, and auditors, including two 

new hires and 13 who were converted to permanent positions, within finance and accounting offices in the Bureau of 

Economic Analysis, Census Bureau, International Trade Administration, NIST, NOAA, and the Office of Inspector General. 

To maintain a highly-skilled workforce, the Department’s retention and succession strategies include the increased use 

of telework. In FY 2017, approximately 42 percent of Departmental employees (61 percent of accounting and budgeting 

employees) engaged in telework. Telework is used by the Department to position itself as an “employer of choice” in 

attracting qualified employees, facilitating employee work/life balance, increasing employee satisfaction and engagement, 

and potentially increasing employee productivity.

Also in FY 2017, the Department’s Enterprise Services (ES) organization was stood up. ES is transforming the way the 

Department delivers mission-enabling services by implementing intra-departmental, multi-function enterprise service 

operations in the areas of Human Resources (HR), Information Technology (IT), Acquisitions, and Financial Management to 

the Office of the Secretary and the Department’s 12 bureaus. In support of transforming the Department’s HR program, 

ES migrated approximately 30 thousand employees to HRConnect, resulting in all Department bureaus being on a single, 

enterprise HR management system platform. ES also transitioned the first set of HR transactional services—Position 

Action Request (PAR) processing for two servicing HR offices—to its vendor for completion. Lastly, ES commenced 

providing Contact Center services related to HRConnect and PAR processing. Moving transactional work to ES allows HR 

professionals to focus on the high value, strategic services important to client bureaus in meeting their mission.

In addition, ES continued to be successful in delivering several critical services in the area of Acquisitions and IT, yielding 

enterprise-wide benefits and cost savings for the Department. Efforts will continue in FY 2018, and beyond, to transition 

additional HR services (e.g., Compensation and Benefits, Recruiting and Hiring, etc.) and functions (e.g., Financial Management) 

to the ES service delivery model. The focus and benefits of ES is on enabling improvements to its customers’ experience, 

performance management, mission focus, and value.

2 0 | FY 2017 AGENCY FINANCIAL REPORT

MANAGEMENT’S DISCUSSION AND ANALYSIS
On April 12, 2017, OMB issued memorandum 17-22, Comprehensive Plan for Reforming the Federal Government and Reducing 

the Federal Civilian Workforce. This OMB memorandum provided agencies guidance on fulfilling the requirements of the 

Reorganization Executive Order while aligning those initiatives with the federal budget and strategic plan. The Department 

submitted a proposal for the development of a long-term workforce reduction plan to OMB on September 11, 2017. This 

proposal included the following items such as using agency data to determine appropriate full-time equivalent baselines, 

examining the total personnel cost, reviewing and revising organization design and positions structures among other things. 

There will also be pilot projects that will be implemented to inform the Department-wide long-term workforce planning 

model. The implementation of this long-term workforce plan is still subject to final OMB approval and will require at least 

one year to develop a long-term workforce plan.

Furthermore, the U.S. Office of Personnel Management revised 5 CFR 250 subpart b, effective April 11, 2017, which included 

a new requirement to develop a Human Capital Operating Plan (HCOP), a four-year plan with annual reassessments. 

This tactical plan will provide processes and measures for the implementation of human capital strategies essential to 

successfully carryout the Department’s Strategic Plan and Performance Plan. To ensure the HCOP is in alignment with 

the Department’s Strategic and Performance Plans, Departmental teams leading the development of the three plans have 

worked together and remained involved throughout the development of each of the plans. The HCOP will include a task 

to examine talent management, especially the essential occupants required to execute strategies and meet performance 

measures identified in their respective plans. The initial HCOP is to be completed by November 30, 2017.

RECEIVABLES WITH THE PUBLIC AND DEBT COLLECTION MANAGEMENT

The Department provides policies and procedures for the management and collection of non-tax debts owed to Departmental 

entities in its debt collection regulations, Commerce Debt Collection. These regulations adopt and incorporate all provisions 

of the Federal Claims Collections Standards (FCCS), which were jointly published by Treasury and the U.S. Department of 

Justice. The Department’s debt collection regulations supplement FCCS by prescribing procedures, consistent with FCCS, 

as necessary and appropriate for Departmental debt collection management operations. FCCS clarifies and simplifies federal 

debt collection procedures and reflects changes under the Debt Collection Improvement Act of 1996 and the General 

Accounting Office Act of 1996. The Department also provides guidance for debt collection management in its Credit and 

Debt Management Operating Standards and Procedures Handbook, to ensure that consistent debt collection management 

practices are established and followed throughout the Department, and to establish and enhance Departmental debt 

collection management practices.

Applicable bureaus prepared, in 2014, Credit Management and Debt Collection Plans, which set forth their plans for 

effectively managing credit extension, account servicing, and debt collection management. These plans are updated at 

least every five years.

FY 2017 AGENCY FINANCIAL REPORT | 2 1

MANAGEMENT’S DISCUSSION AND ANALYSIS
The DATA Act required, effective FY 2016, that agencies report to Congress any instance in which federal agencies fail 

to refer legally enforceable, non-tax debts that are greater than 120 days delinquent to the Treasury Offset Program for 

administrative offset. 

The Department’s total gross receivables with the public decreased $25 million, or 5.3 percent, from $472 million as of 

September 30, 2016 to $447 million as of September 30, 2017, as reported on the Department’s Treasury Report on Receivables, 

which is the primary means for the Department to provide comprehensive information to Treasury on its receivables with the 

public. Total delinquencies with the public, as a percentage of total gross receivables with the public, decreased from 

3.8 percent as of September 30, 2016 to 1.3 percent as of September 30, 2017. Receivables with the public that were 

120 days or more delinquent as a percentage of total gross receivables with the public, increased from 

0.3 percent as of September 30, 2016 to 0.7 percent as of September 30, 2017. 

Prescreening procedures, account-servicing standards, 

determined collection of delinquent debt, and extensive 

referrals of delinquent debt to Treasury have all contributed 

to effective Departmental debt collection management. 

The Debt Collection Improvement Act of 1996 established 

Treasury as the debt collection agency for eligible federal 

agency debts. Once receivables are delinquent by 120 days 

(effective FY 2016) or more, in accordance with Treasury 

requirements, such receivables are referred to Treasury’s 

Bureau of the Fiscal Service for collection through its Crossservicing Program and/or its Treasury Offset Program.

PAYMENT PRACTICES

PROMPT PAYMENT

The Prompt Payment Act of 1982 generally requires 

agencies to pay their bills to vendors on a timely basis 

(within 30 days of receipt of relevant documents), and 

to pay interest penalties when payments are made late. 

The Department closely monitors its prompt payment 

performance, and the bureaus submit quarterly reports of 

prompt payment performance to the Deputy CFO. 

The Department’s prompt payment performance decreased 

slightly from 98.8 percent in FY 2016 to 98.7 percent in 

FY 2017. The number of invoices paid late increased from 

3,064 in FY 2016 to 3,534 in FY 2017. The Department continues to focus on improving its prompt payment percentage by 

working closely with its bureaus to identify opportunities for new or improved business processes. Per OMB Memorandum 

M-15-19, Improving Government Efficiency and Saving Taxpayer Dollars Through Electronic Invoicing (July 17, 2015), federal 

agencies are required to transition to electronic invoicing for appropriate federal procurements by the end of FY 2018. The 

Department is currently exploring options to transition off its primary financial management system used by most of the 

bureaus and adopt a commercial off-the-shelf (COTS) product for those bureaus. As such, the Department would in large 

2 2 | FY 2017 AGENCY FINANCIAL REPORT

MANAGEMENT’S DISCUSSION AND ANALYSIS
part adopt the COTS product’s solution for an electronic invoice processing system, if available. In 2017, the U.S. Patent 

and Trademark Office reviewed various electronic invoicing options and made a selection. The solution is planned to be in 

place by the end of FY 2018.

OMB Memorandum M-17-26, Reducing Burden for Federal Agencies by Rescinding and Modifying OMB Memoranda

(June 15, 2017), encourages agencies to accelerate payments, to the best of their ability, to small businesses and prime 

contractors with small business subcontractors. This did not change an agency’s responsibility to comply with the Prompt 

Payment Act and OMB’s implementing regulations thereto (5 CFR Part 1315, Prompt Payment).

BANKCARDS

The Department remains committed to the use of bankcards (purchase cards) as a means to improve mission support 

by streamlining the procurement and payment processes and by reducing administrative costs. Based on the results 

of FY 2013 testing of purchase card processes under OMB Circular A-123, Appendix A, Internal Control Over Financial 

Reporting, the Department implemented a pilot data analytic program in FY 2015 that reviews Department-wide purchase 

and travel card transactions in an effort to identify patterns, trends, and anomalies for possible further investigation. The 

Department continued to work with the bureaus in implementing corrective actions, monitoring internal controls, performing 

data analytics, and conducting necessary reviews and testing to ensure proper internal controls are in place during FY 2017. 

The Department also continues to carry out initiatives which have been implemented in the last few fiscal years, including 

more effective training, oversight, and risk management reviews in order to enhance the purchase card program. These 

enhancements have led to, among other things, a steady decrease in the number of purchase cards issued and in use by 

the Department.

LIMITATIONS OF THE FINANCIAL STATEMENTS

The principle financial statements in the financial section have been prepared to report the overall financial position and 

results of operations of the Department, pursuant to the requirements of 31 U.S.C. 3515(b). While the statements have 

been prepared from the books and records of the Department in accordance with the generally accepted accounting 

principles (GAAP) for federal entities and the formats prescribed in OMB Circular A-136, Financial Reporting Requirements, 

the statements are in addition to the financial reports used to monitor and control budgetary resources that are prepared 

from the same books and records. 

These financial statements should be read with the realization that they are for a component of the U.S. government, a 

sovereign entity. One implication of this is that liabilities cannot be liquidated without legislation that provides the resources 

to do so.

FY 2017 AGENCY FINANCIAL REPORT | 2 3

MANAGEMENT’S DISCUSSION AND ANALYSIS
ANALYSIS OF FY 2017 FINANCIAL CONDITION AND RESULTS

FINANCIAL HIGHLIGHTS

(Dollars in Thousands)

Percentage 

Change FY 2017 FY 2016

Condensed Balance Sheets:

As of September 30, 2017 and 2016

ASSETS:

Fund Balance with Treasury -3% $ 25,030,940 $ 25,872,055

General Property, Plant, and Equipment, Net 9% 15,402,997 14,134,191

Advances and Prepayments 358% 788,892 172,394

Direct Loans and Loan Guarantees, Net -5% 431,619 453,956

Investment 0.3% 334,106 333,013

Cost Contribution to Buildout of Nationwide 

Public Safety Broadband Network N/A 288,000 –

Other -4% 271,436 281,683

TOTAL ASSETS 3% $ 42,547,990 $ 41,247,292

LIABILITIES:

Unearned Revenue -2% $ 1,455,417 $ 1,485,260

Federal Employee Benefits 1% 885,936 876,111

Accounts Payable 0.3% 599,637 598,009

Accrued Payroll and Annual Leave 3% 577,272 557,966

Debt to Treasury -9% 430,313 475,207

Liability to General Fund of the U.S. Government 

for Deficit Reduction 1% 336,188 334,054

Accrued Grants 8% 135,995 125,498

Other 5% 298,179 284,949

TOTAL LIABILITIES -0.4% $ 4,718,937 $ 4,737,054

NET POSITION:

Unexpended Appropriations 2% $ 5,973,837 $ 5,840,085

Cumulative Results of Operations 4% 31,855,216 30,670,153

TOTAL NET POSITION 4% $ 37,829,053 $ 36,510,238

TOTAL LIABILITIES AND NET POSITION 3% $ 42,547,990 $ 41,247,292

Condensed Financing Sources:

For the Years Ended September 30, 2017 and 2016

Appropriations Received, Net of Reductions 2% $ 9,364,774 $ 9,200,011

Imputed Financing Sources from Cost Absorbed by Others -19% 200,225 247,277

Transfers In of Auction Proceeds from Federal 

Communications Commission -100% – 8,430,058 

Transfer Out to General Fund of the U.S. Government 

for Deficit Reduction -100% – (7,781,010)

Financing Sources Used for Recognizing Liability 

to General Fund of the U.S. Government for 

Deficit Reduction -99% (2,134) (334,054)

Other 209% 133,984 (122,742)

TOTAL FINANCING SOURCES 1% $ 9,696,849 $ 9,639,540

(continued on next page)

2 4 | FY 2017 AGENCY FINANCIAL REPORT

MANAGEMENT’S DISCUSSION AND ANALYSIS
(continued from previous page)

(Dollars in Thousands)

Percentage 

Change FY 2017 FY 2016

Condensed Statements of Net Cost:

For the Years Ended September 30, 2017 and 2016

Condensed Statements of Net Cost:

Gross Departmental Costs 2% $ 12,413,842 $ 12,164,110

Less: Earned Revenue 0.0% (4,035,808) (4,033,926)

NET COST OF OPERATIONS 3% $ 8,378,034 $ 8,130,184

Selected Budgetary Information:

For the Years Ended September 30, 2017 and 2016

New Obligations and Upward Adjustments 3% $ 15,970,699 $ 15,459,852

Outlays, Gross 3% $ 15,323,401 $ 14,853,358

COMPOSITION OF ASSETS AND ASSETS BY RESPONSIBILITY SEGMENT

The composition (by percentage) and distribution (by responsibility segment) of the Department’s assets remained consistent 

from September 30, 2016 to September 30, 2017. 

Departmental assets amounted to $42.55 billion, as of September 30, 2017. Fund Balance with the U.S. Department 

of the Treasury (Treasury) of $25.03 billion is the aggregate amount of funds available to make authorized expenditures 

and pay liabilities. General Property, Plant, and Equipment (PP&E), Net of Accumulated Depreciation, of $15.40 billion,

includes $5.69 billion of Construction-in-progress, primarily of satellites and weather measuring and monitoring systems; 

$1.54 billion of Structures, Facilities, and Leasehold Improvements; $6.64 billion of Satellites/Weather Systems Personal 

Property; and $1.54 billion of other General PP&E. Advances and Prepayments of $788.9 million is primarily comprised 

of $672.0 million related to the NTIA Network Construction Fund. Direct Loans and Loan Guarantees, Net of Allowances 

for Subsidy Cost (Present Value) and Loan Losses, of $431.6 million, primarily relates to the NOAA direct loan programs. 

Investment of $334.1 million represents NTIA Public Safety Trust Fund’s investment in federal securities, consisting of an 

interest-bearing, market based Treasury note purchased from Treasury. Cost Contribution to Buildout of Nationwide Public 

Safety Broadband Network (NPSBN) of $288.0 million is a new asset, as of September 30, 2017, that captures NTIA’s 

cumulative cost contributions for the buildout of the NPSBN. Other Assets of $271.4 million primarily includes Accounts 

Receivable, Net of Allowance for Uncollectible Accounts, of $146.9 million; and Inventory, Materials, and Supplies, Net of 

Allowance for Excess, Obsolete, and Unserviceable Items, of $108.1 million.

FY 2017 AGENCY FINANCIAL REPORT | 2 5

MANAGEMENT’S DISCUSSION AND ANALYSIS
TRENDS IN ASSETS

Departmental assets increased $1.30 billion, or 3 percent, 

from $41.25 billion, as of September 30, 2016, to 

$42.55 billion, as of September 30, 2017. Fund Balance 

with Treasury decreased $841.1 million, or 3 percent, 

from $25.87 billion to $25.03 billion. General PP&E, Net 

increased $1.27 billion, or 9 percent, from $14.13 billion to 

15.40 billion, primarily due to (a) an increase in Satellites/

Weather Systems Personal Property of $5.18 billion, 

in large part due to capitalization of the Geostationary 

Operational Environmental Satellites (GOES) 16 satellite and ground system, and capitalization of the Joint Polar Satellite 

System (JPSS); and (b) a decrease of $4.05 billion in Construction-in-progress, primarily due to the capitalization of the GOES 

16 satellite and ground system, and the capitalization of the JPSS ground system Block 2.0. Advances and Prepayments 

increased $616.5 million, or 358 percent, from $172.4 million to $788.9 million, primarily due to NTIA’s Network Construction 

Fund having an advance of $672.0 million, as of September 30, 2017, to the U.S. Department of the Interior (DOI) for the 

advance funding of certain task orders to buildout, operate, and maintain NPSBN, whereas there was no such balance, as 

of September 30, 2016. Cost Contribution to Buildout of NPSBN is a new asset, as of September 30, 2017, as previously 

discussed.

2 6 | FY 2017 AGENCY FINANCIAL REPORT

MANAGEMENT’S DISCUSSION AND ANALYSIS
COMPOSITION OF LIABILITIES AND LIABILITIES BY RESPONSIBILITY SEGMENT

The composition (by percentage) and distribution (by responsibility segment) of the Department’s liabilities remained 

consistent from September 30, 2016 to September 30, 2017.

Liabilities of the Department amounted to $4.72 billion, as of September 30, 2017. Unearned Revenue of $1.46 billion 

represents the portion of monies received from customers for which goods and services have not been provided or rendered 

by the Department, including customer deposits. This line primarily relates to patent and trademark application and user 

fees that are pending action, and it also includes monies collected in advance under reimbursable agreements. Federal 

Employee Benefits Liability of $885.9 million is comprised of the actuarial present value of projected benefits for the NOAA 

Corps Retirement System of $644.2 million, the NOAA Corps Post-retirement Health Benefits of $41.4 million, and the 

Department’s Actuarial Federal Employees’ Compensation Act (FECA) Liability of $200.3 million, which represents the actuarial 

liability for future workers’ compensation benefits. Accounts Payable of $599.6 million consists primarily of amounts owed 

for goods, services, or capitalized assets received, progress on contract performance by others, and other expenses due. 

Accrued Payroll and Annual Leave of $577.3 million includes salaries and wages earned by employees, but not disbursed, as 

of September 30, 2017. Debt to Treasury of $430.3 million represents debt for NOAA’s direct loan programs. Accrued Grants 

of $136.0 million relates to a diverse array of financial assistance programs and projects, including the Economic Development 

Administration’s (EDA) accrued grants of $49.6 million for its grant investments that help communities generate jobs, retain 

existing jobs, and stimulate industrial and commercial growth; NOAA’s accrued grants of $46.9 million for grants awarded 

to state and local governments, non-profit research institutions, and colleges and universities for research and conservation 

initiatives; and National Institute of Standards and Technology’s (NIST) accrued grants of $29.5 million for its grant investments 

and cooperative agreements that fund programs in a variety of fields such as energy, food safety, and electronics research, 

strategic manufacturing technology, and the Hollings Manufacturing Extension Partnership. NTIA’s Public Safety Trust Fund 

has a Liability to General Fund of the U.S. Government for Deficit Reduction of $336.2 million—Priority 8 of Section 6413 

of the Middle Class Tax Relief and Job Creation Act of 2012 specifies that any remaining funds deposited in NTIA’s Public 

Safety Trust Fund be deposited in the General Fund of the U.S. Government for deficit reduction after the end of FY 2022. 

Other Liabilities of $298.2 million primarily includes Environmental and Disposal Liabilities of $145.1 million, including 

$73.0 million for asbestos-related cleanup costs, and $60.7 million for a nuclear reactor operated by NIST; Accrued Benefits 

of $55.2 million; Contingent Liabilities of $39.5 million for claims to be paid out of Treasury’s Judgment Fund; Accrued FECA 

Liability of $26.4 million; and ITA’s Foreign Service Nationals’ Voluntary Separation Pay Liability of $11.6 million.

FY 2017 AGENCY FINANCIAL REPORT | 2 7

MANAGEMENT’S DISCUSSION AND ANALYSIS
TRENDS IN LIABILITIES

Liabilities of the Department decreased $18.1 million, 

or 0.4 percent, from $4.74 billion, as of September 30, 

2016 to $4.72 billion, as of September 30, 2017. Debt 

to Treasury decreased $44.9 million, or 9 percent, 

from $475.2 million to $430.3 million, primarily due 

to repayments made to Treasury in September 2017 

by NOAA’s Fisheries Finance direct loan program. 

Accrued Grants increased by $10.5 million, or 

8 percent, from $125.5 million to $136.0 million, 

mainly due to increases in NTIA First Responder Network Authority’s Spectrum Relocation Grant Program, which started 

expending funds in FY 2017, and increases in NTIA’s State and Local Implementation Fund, as grantees have not expended 

funds as quickly as anticipated.

COMPOSITION OF AND TRENDS IN FINANCING SOURCES

The composition by percentage of the Department’s financing sources, as reported in the Department’s Consolidated 

Statements of Changes in Net Position, changed somewhat from FY 2016 to FY 2017. For FY 2017, there were not any NTIA 

Public Safety Trust Fund transfers in of auction proceeds from the Federal Communications Commission, as compared to 

$8.43 billion in FY 2016; and for FY 2017, there were not any NTIA Public Safety Trust Fund transfers out to General Fund 

of the U.S. Government for deficit reduction, as compared to $7.78 billion in FY 2016.

Total financing sources of the Department increased $57.3 million, or 1 percent, from $9.64 billion in FY 2016 to $9.70 billion 

in FY 2017. Appropriations Received, Net of Reductions increased $164.8 million, or 2 percent, from $9.20 billion in FY 2016 

to $9.36 billion in FY 2017. Imputed Financing Sources from Cost Absorbed by Others decreased $47.1 million, or 19 percent, 

from $247.3 million to $200.2 million, primarily due to (a) a revision in cost factor(s) for USPTO imputed 

2 8 | FY 2017 AGENCY FINANCIAL REPORT

MANAGEMENT’S DISCUSSION AND ANALYSIS
post-employment benefit costs; and (b) a decrease in 

Departmental Management (DM) imputed costs related 

to Treasury’s Judgment Fund. Financing Sources Used 

for Recognizing Liability to General Fund of the U.S. 

Government for Deficit Reduction decreased $331.9 million, 

or 99 percent, from $(334.1) million to $(2.1) million, because 

in FY 2017 there was only a slight increase in excess funds 

(Priority 8) over the fund priorities 1 through 7, per the 

originating Public Law 112-96.

Other Financing Sources increased by $256.7 million, or 209 percent, from $(122.7) million in FY 2016 to $134.0 million 

in FY 2017, primarily due to (a) a decrease in cancellations of funds from FY 2016 to FY 2017 for Census Bureau’s Periodic 

Censuses and Programs fund group of $78.9 million; (b) the Department’s transfers out in FY 2016 include NOAA transfer(s) 

out of Construction-in-progress costs of $78.5 million related to the Solar Irradiance, Data and Rescue/Total Solar Irradiance 

to the National Aeronautics and Space Administration, whereas there was no similar transfer(s) out in FY 2017; and (c) the 

Department’s transfers out in FY 2016 included NTIA Public Safety Trust Fund transfer(s) out to the National Highway Traffic 

Safety Administration (NHTSA) of $104.4 million for Priority 6, which is for the Administrator of NHTSA to carry out NHTSA’s 

portion of the grant program of Next Generation 9-1-1, whereas in FY 2017, only $7.8 million was transferred to NHTSA for 

Priority 6 to fully complete this priority. 

COMPOSITION OF FY 2017 NET COST OF OPERATIONS AND 

NET COST OF OPERATIONS BY RESPONSIBILITY SEGMENT

In FY 2017, the Department’s Net Cost of Operations amounted 

to $8.38 billion, which consists of Gross Costs of $12.41 billion, 

less Earned Revenue of $4.04 billion.

The distribution (by responsibility segment) of the Department’s Net 

Cost of Operations remained consistent from FY 2016 to FY 2017.

Note: The Gross Costs and Earned Revenue amounts presented in the 

following paragraphs include transactions with other Departmental 

entities (intra-Departmental transactions). As a result, the Gross Costs 

amounts discussed below may not agree with the Gross Costs presented 

on the Department’s FY 2017 Consolidated Statement of Net Cost, which 

excludes intra-Departmental transactions.

NOAA’s FY 2017 Net Cost of Operations was $4.62 billion (Gross 

Costs of $4.88 billion less Earned Revenue of $252.7 million). 

NOAA’s mission relates to science, service, and stewardship—to 

understand and predict changes in climate, weather, oceans, and coasts; to share that knowledge and information with others; 

and to conserve and manage coastal and marine ecosystems and resources. NOAA’s Gross Costs include costs related to 

improving weather, water quality, and climate reporting and forecasting; and enabling informed decision-making through an 

expanded understanding of the U.S. economy, society, and environment by providing data, standards, and services. NOAA 

FY 2017 AGENCY FINANCIAL REPORT | 2 9

MANAGEMENT’S DISCUSSION AND ANALYSIS
also develops and procures satellite systems, aircraft, and ships to provide information to determine weather patterns and 

predict weather forecasts. NOAA’s Gross Costs also support its efforts to promote economically-sound environmental 

stewardship and science, including developing sustainable and resilient fisheries, habitats, and species; supporting climate 

adaption and mitigation; and supporting coastal communities that are environmentally and economically sustainable.

USPTO’s FY 2017 Net Cost of Operations of $88.1 million (Gross Costs of $3.19 billion less Earned Revenue of $3.10 billion) 

relates to its patents and trademark programs. USPTO is the federal agency for granting U.S. patents and registering 

trademarks. The strength and vitality of the U.S. economy depends directly on effective mechanisms that protect new 

ideas and investments in innovation and creativity. USPTO advises the President, the Secretary of Commerce, and federal 

agencies on intellectual property (IP) policy, protection, and enforcement; and promotes the stronger and more effective IP 

protection around the world. USPTO furthers effective IP protection for the Nation’s innovators and entrepreneurs worldwide 

by working with other federal agencies to secure strong IP provisions in free trade and other international agreements. 

It also provides training, education, and capacity building programs designed to foster respect for IP and encourage the 

development of strong IP enforcement regimes by the Nation’s trading partners.

The Economics and Statistics Administration’s (ESA) FY 2017 Net Cost of Operations was $1.43 billion (Gross Costs of 

$1.75 billion less Earned Revenue of $323.0 million), which includes ESA, the Bureau of Economic Analysis (BEA), and the 

Census Bureau. ESA plays three key roles within the Department. ESA provides timely economic analysis, disseminates 

national economic indicators, and oversees BEA and the Census Bureau. BEA promotes a better understanding of the 

Nation’s economy by providing timely, relevant, and accurate economic accounts data in an objective and cost-effective 

manner. The Census Bureau’s FY 2017 Net Cost of Operations was $1.32 billion (Gross Costs of $1.65 billion less Earned 

Revenue of $325.7 million). The Census Bureau serves as the leading source of quality data about the Nation’s people and 

economy. Data that the Census Bureau collects includes the Population and Housing Census (every 10 years), Economic 

Census (every 5 years), Census of Governments (every 5 years), American Community Survey (annually), economic 

indicators, and demographic and economic surveys provided to survey sponsors.

NIST’s FY 2017 Net Cost of Operations was $990.6 million (Gross Costs of $1.28 billion less Earned Revenue of $289.9 million), 

which includes NIST and the National Technical Information Service (NTIS). NIST’s FY 2017 Net Cost of Operations was 

$982.7 million (Gross Costs of $1.14 billion less Earned Revenue of $157.0 million). NIST promotes American innovation and 

industrial competitiveness by advancing measurement science, standards, and technology in ways that enhance economic 

security and improve the Nation’s quality of life. NIST’s Gross Costs include costs for its NIST Laboratories program. The 

NIST Laboratories conducts world-class research, often in close collaboration with industry, which advances the Nation’s 

technology infrastructure and helps American companies continually improve products and services. NTIS serves as the 

largest central resource for government-funded scientific, technical, engineering, and business-related information available 

today. For more than 60 years, NTIS has assured businesses, universities, and the public timely access to approximately 

3 million publications covering over 350 subject areas. NTIS promotes the Nation’s economic growth by providing access 

to information that stimulates innovation and discovery.

ITA’s FY 2017 Net Cost of Operations was $484.0 million (Gross Costs of $494.0 million less Earned Revenue of $10.0 million). 

ITA fosters economic growth and prosperity through global trade by strengthening the competitiveness of American industry, 

promoting trade and investment, and ensuring fair trade through the rigorous enforcement of the Nation’s trade laws and 

agreements. ITA leads the Department’s export and investment platform, working with several other bureaus, inside and 

outside the Department, including working with the U.S. Trade Representative, to provide greater access to markets and 

customers by removing trade barriers.

3 0 | FY 2017 AGENCY FINANCIAL REPORT

MANAGEMENT’S DISCUSSION AND ANALYSIS
EDA’s FY 2017 Net Cost of Operations was $285.7 million (Gross Costs of $291.4 million less Earned Revenue of $5.7 million). 

EDA leads the federal economic development agenda by promoting innovation and competitiveness, preparing American 

regions for growth and success in the worldwide economy. EDA plays a critical role in fostering regional economic 

development efforts in communities across the United States. Through strategic investments that foster job creation and 

attract private investment, EDA supports development in economically distressed areas of the United States. EDA works 

directly with local economic development officials to make grant investments that are well-defined, timely, and linked to a 

long-term, sustainable economic development strategy.

NTIA’s FY 2017 Net Cost of Operations was $222.1 million (Gross Costs of $261.2 million less Earned Revenue of $39.1 million). 

NTIA is the federal agency that is principally responsible for advising the President on telecommunications and information 

policy issues. NTIA’s programs and policymaking focus largely on expanding broadband Internet access and adoption in 

America, expanding the use of spectrum by all users, and ensuring that the Internet remains an engine for continued 

innovation and economic growth. NTIA’s activities include managing the federal use of spectrum and identifying additional 

spectrum for commercial use, and administering grant programs that further the deployment and use of broadband and 

other technologies in America.

FY 2017 Net Cost of Operations for DM was $108.6 million (Gross Costs of $117.1 million less Earned Revenue of $8.4 million), 

which includes Gifts and Bequests, Herbert C. Hoover Building Renovation Project, Office of Inspector General, Salaries and 

Expenses, and Working Capital Fund. DM’s objective is to develop and provide policies and procedures for administrative 

planning, oversight, coordination, direction, and guidance to ensure implementation of the Department’s mission. 

FY 2017 Net Cost of Operations for the other Departmental bureaus was $146.3 million (Gross Costs of $148.8 million less 

Earned Revenue of $2.5 million), which is comprised of the Bureau of Industry and Security (BIS) and the Minority Business 

Development Agency (MBDA). BIS advances the Nation’s national security, foreign policy, and economic objectives by 

ensuring an effective export control and treaty compliance system and promoting continued strategic technology leadership 

by the United States. MBDA helps to create and sustain American jobs by promoting the growth and global competitiveness 

of businesses owned and operated by minority entrepreneurs.

TRENDS IN NET COST OF OPERATIONS

The Department’s Net Cost of Operations increased by 

$247.9 million, or 3 percent, from $8.13 billion in FY 2016 to 

$8.38 billion in FY 2017. Gross Costs increased slightly by 

$249.7 million, or 2 percent, from $12.16 billion in FY 2016 

to 12.41 billion in FY 2017. Earned Revenue increased 

slightly by $1.9 million, or 0.0 percent, from $4.03 billion 

in FY 2016 to $4.04 billion in FY 2017.

FY 2017 AGENCY FINANCIAL REPORT | 3 1

MANAGEMENT’S DISCUSSION AND ANALYSIS
SELECTED BUDGETARY INFORMATION BY RESPONSIBILITY SEGMENT

The distribution (by responsibility segment) of the Department’s Obligations Incurred, and Outlays, Gross, as reported in 

the Department’s Combined Statements of Budgetary Resources, remained consistent from FY 2016 to FY 2017.

TRENDS IN SELECTED BUDGETARY INFORMATION

The Department’s New Obligations and Upward 

Adjustments increased by $510.8 million, or 3 percent, 

from $15.46 billion in FY 2016 to $15.97 billion in 

FY 2017, and the Department’s Outlays, Gross increased 

by $470.0 million, or 3 percent, from $14.85 billion in 

FY 2016 to $15.32 billion in FY 2017.

3 2 | FY 2017 AGENCY FINANCIAL REPORT

MANAGEMENT’S DISCUSSION AND ANALYSIS
SUMMARY OF STEWARDSHIP INFORMATION

STEWARDSHIP ASSETS

T

he Department has certain resources entrusted to it and certain stewardship responsibilities it assumes. The physical 

properties of Stewardship Assets resemble those of the General Property, Plant, and Equipment that is capitalized 

traditionally in the financial statements of federal entities. Given the nature of these assets, federal standard-setting 

bodies have determined that valuation is unduly burdensome and matching costs with specific periods is not meaningful. 

Therefore, federal accounting standards require the disclosure of the nature and quantity of these assets. The National 

Oceanic and Atmospheric Administration (NOAA) is the primary bureau within the Department that maintains Stewardship 

Assets, while the National Institute of Standards and Technology (NIST) and the Census Bureau also maintains Stewardship 

Assets.

NOAA maintains the following Stewardship Assets: Heritage Assets (Galveston Laboratory; National Marine Fisheries Service 

(NMFS) St. George Sealing Plant; NMFS Cottage M, St. George; NMFS St. Paul Old Clinic/Hospital; NMFS Woods Hole 

Science Aquarium; and Great Lakes Environmental Research Laboratory, Lake Michigan Field Station); 13 National Marine 

Sanctuaries; 5 Marine National Monuments (Marianas Trench, Pacific Remote Islands, Rose Atoll, Papahãnaumokuãkea, and 

the Northeast Canyons and Seamounts); Aleutian Islands Habitat Conservation Area; NOAA Habitat Blueprint (10 Habitat 

Focus Areas); and Collection-type Heritage Assets, primarily included in the NOAA Central Library (mainly books, journals, 

publications, photographs, and motion pictures) and Thunder Bay Sanctuary Research Collection (data cards, photograph 

negatives, document copies, photographs, books, and other items). 

NIST maintains Collection-type Heritage Assets under its Museum and History Program, which collects, preserves, and 

exhibits artifacts, such as scientific instruments, equipment, objects, and records of significance to NIST and predecessor 

agencies. The Census Bureau maintains Collection-type Heritage Assets that help illustrate the social, educational, and 

cultural heritage of the Census Bureau, including artifacts, artwork, books, films, instruments, records, publications, 

manuscripts, photographs, and maps. 

STEWARDSHIP INVESTMENTS

Stewardship investments are substantial investments made by the federal government for the benefit of the Nation, but 

are not physical assets owned by the federal government. Though treated as expenses when incurred to determine the 

Department’s Net Cost of Operations, these items merit special treatment, so that users of federal financial reports know 

the extent of investments that are made for the long-term benefit of the Nation.

Investments in Non-federal Physical Property: These investments are for the purchase, construction, or major renovation 

of physical property owned by state and local governments. The Economic Development Administration (EDA) and NOAA 

have significant investments in non-federal physical property. EDA’s investments in FY 2017 totaled $165.6 million and 

included its Public Works program ($121.3 million), Disaster Recovery ($7.7 million), Economic Adjustment Assistance 

program ($16.3 million), and Assistance to Coal Communities ($20.3 million). NOAA’s investments in FY 2017 totaled 

$1.2 million for the National Estuarine Research Reserves. 

FY 2017 AGENCY FINANCIAL REPORT | 3 3

MANAGEMENT’S DISCUSSION AND ANALYSIS
Investments in Human Capital: These investments are for education and training programs that are intended to increase 

or maintain national economic productive capacity and produce outputs and outcomes that provide evidence of the constant 

or increasing national productive capacity. These investments exclude education and training expenses for federal civilian 

and military personnel. The most significant investments in human capital are by NOAA, whose investments in FY 2017 

totaled $22.6 million and included the Educational Partnership Program ($14.1 million), Ernest F. Hollings Undergraduate 

Scholarship Program ($5.7 million), National Sea Grant College Program ($1.1 million), National Estuarine Research Reserve 

Program ($1.5 million), and Other Programs ($0.2 million).

Investments in Research and Development (R&D): These investments include investments in basic research, applied 

research, and development, which are made with the expectation of maintaining or increasing national economic productive 

capacity, or yielding other future economic or societal benefits. The significant investments in R&D are by NIST and NOAA. 

NIST’s R&D investments (basic, applied, and development) in FY 2017 totaled $764.5 million and included $734.2 million 

for its NIST Laboratories Program, $8.6 million for its Manufacturing USA, Advanced Manufacturing Technology Consortia, 

and Technology Innovation Program, and $21.7 million for its Public Safety Communications Research Program. NOAA’s 

R&D investments (applied and development) in FY 2017 totaled $625.0 million, which included Environmental and Climate 

($452.5 million), Fisheries ($57.7 million), Marine Operations and Maintenance and Aircraft Services ($26.0 million), Weather 

Service ($20.7 million), and Other ($68.1 million).

3 4 | FY 2017 AGENCY FINANCIAL REPORT

MANAGEMENT’S DISCUSSION AND ANALYSIS
Financial Section
MESSAGE FROM THE CHIEF FINANCIAL OFFICER (Unaudited)

T

his FY 2017 Agency Financial Report provides financial and high-level program performance information to enable the 

Department’s stakeholders to understand and evaluate the Department’s achievements relative to its mission and 

resources. The Department is committed to operational excellence, with a focus on providing outstanding service to 

our customers. This includes providing the public with highlights of our performance, and detailed financial information. This 

report also fulfills several statutory requirements, including the Reports Consolidation Act of 2000, the Chief Financial Officers 

Act, the Federal Managers’ Financial Integrity Act (FMFIA), and the Government Management Reform Act. 

For FY 2017, the Department achieved an unmodified audit opinion for the nineteenth consecutive year. The Department 

received one material weakness relating to the implementation of controls over the identification, and subsequent capitalization 

of internal use software within one bureau. Additionally, there is one significant deficiency relating to Department-wide 

information technology (IT) general controls around access, security, and configuration management. We will continue to 

take corrective actions to strengthen controls in these areas in FY 2018. 

The Department will continue enhancing financial and non-financial controls under FMFIA and Office of Management and 

Budget (OMB) Circular A-123. The Department has provided reasonable assurance that its internal controls and financial 

management systems meet the objectives of FMFIA and OMB Circular A-123 and are operating effectively with no identified 

material weaknesses.

The Department’s leadership continues its commitment to improving the capacity to deliver our mission with customer 

focused outcomes. This starts with our most important assets—our people. The Department’s employees are committed 

to the Commerce mission and public service, and leadership is committed to engaging and empowering them to maximize 

their talents through continuous learning, collaboration, and innovation. 

This includes providing an up-to-date work environment and IT services that support collaboration amongst our employees to 

unleash their potential and creativity to solve common challenges. Our Office of the Chief Information Officer is modernizing 

our tools to enable best-in-class service through enterprise solutions, while also safeguarding against cyber threats. 

The Department’s management is also committed to looking at more efficient and effective ways to manage our processes 

as an enterprise for our key services. The Department’s Enterprise Services organization was launched in FY 2017, and will 

continue in FY 2018 and beyond by introducing additional efficiencies in the IT, Human Resources, and Acquisitions areas. 

This will not only allow for improved service delivery, but also smarter and more efficient, effective use of taxpayer resources.

Ellen Herbst

Chief Financial Officer

and Assistant Secretary for Administration

November 14, 2017

3 6 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

MESSAGE FROM THE CHIEF FINANCIAL OFFICER (UNAUDITED)
Independent Auditors’ Report

FINANCIAL SECTION
November 14, 2017 

INFORMATION MEMORANDUM FOR SECRETARY ROSS 

FROM: Peggy E. Gustafson

Inspector General 

SUBJECT: Department of Commerce FY 2017 Consolidated

Financial Statements — Final Report No. OIG-18-007-A 

I am pleased to provide you with the attached audit report, which presents an

unmodified opinion on the Department of Commerce’s fiscal year (FY) 2017 

consolidated financial statements. 

KPMG LLP, an independent public accounting firm, performed the audit in

accordance with U.S. generally accepted auditing standards, standards applicable 

to financial audits contained in Government Auditing Standards, and Office of 

Management and Budget Bulletin 17-03, Audit Requirements for Federal 

Financial Statements. 

In its audit of the Department, KPMG 

• determined that the financial statements were fairly presented, in all material

respects, and in conformity with U.S. generally accepted accounting

principles;

• identified a material weakness in internal control over financial reporting

related to the identification of internal use software, as well as a significant

deficiency in internal control over financial reporting related to weaknesses

in information technology access, configuration management, and security

management controls;

• identified no instances of reportable noncompliance with applicable laws,

regulations, contracts, and grant agreements, as well as no instances in

which the Department’s financial management systems did not substantially

comply with the requirements of the Federal Financial Management

Improvement Act of 1996; and

• disclosed five potential instances of noncompliance with the Antideficiency

Act, which are currently under review at the Department.

3 8 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

INDEPENDENT AUDITORS’ REPORT
My office oversaw the audit performance. We reviewed KPMG’s report and

related documentation, and made inquiries of its representatives. Our review

disclosed no instances where KPMG did not comply, in all material respects, with

generally accepted government auditing standards. However, our review, as

differentiated from an audit in accordance with these standards, was not intended 

to enable us to express, and we do not express, any opinion on the Department’s

financial statements, conclusions about the effectiveness of internal control, or

conclusions on compliance with applicable laws, regulations, contracts, and grant

agreements. KPMG is solely responsible for the attached audit report and the 

conclusions expressed in it. 

We appreciate the cooperation and courtesies the Department extended to KPMG

during the audit. 

Attachment 

FY 2017 AGENCY FINANCIAL REPORT | 3 9

INDEPENDENT AUDITORS’ REPORT
KPMG LLP is a Delaware limited liability partnership and the U.S. member

firm of the KPMG network of independent member firms affiliated with 

KPMG International Cooperative (“KPMG International”), a Swiss entity. 

KPMG LLP

Suite 12000

1801 K Street, NW

Washington, DC 20006

Independent Auditors’ Report

Inspector General, U.S. Department of Commerce and 

Secretary, U.S. Department of Commerce 

Report on the Financial Statements 

We have audited the accompanying consolidated financial statements of the U.S. Department of Commerce 

(Department), which comprise the consolidated balance sheets as of September 30, 2017 and 2016, and the 

related consolidated statements of net cost, changes in net position, and custodial activity, and combined 

statements of budgetary resources for the years then ended, and the related notes to the consolidated financial 

statements. 

Management’s Responsibility for the Financial Statements

Management is responsible for the preparation and fair presentation of these consolidated financial statements 

in accordance with U.S. generally accepted accounting principles; this includes the design, implementation, and 

maintenance of internal control relevant to the preparation and fair presentation of consolidated financial 

statements that are free from material misstatement, whether due to fraud or error. 

Auditors’ Responsibility

Our responsibility is to express an opinion on these consolidated financial statements based on our audits. We 

conducted our audits in accordance with auditing standards generally accepted in the United States of America,

in accordance with the standards applicable to financial audits contained in Government Auditing Standards

issued by the Comptroller General of the United States, and in accordance with Office of Management and 

Budget (OMB) Bulletin No. 17-03, Audit Requirements for Federal Financial Statements. Those standards and 

OMB Bulletin No. 17-03 require that we plan and perform the audit to obtain reasonable assurance about 

whether the consolidated financial statements are free from material misstatement. 

An audit involves performing procedures to obtain audit evidence about the amounts and disclosures in the 

consolidated financial statements. The procedures selected depend on the auditors’ judgment, including the 

assessment of the risks of material misstatement of the consolidated financial statements, whether due to fraud 

or error. In making those risk assessments, the auditor considers internal control relevant to the entity’s

preparation and fair presentation of the consolidated financial statements in order to design audit procedures 

that are appropriate in the circumstances, but not for the purpose of expressing an opinion on the effectiveness 

of the entity’s internal control. Accordingly, we express no such opinion. An audit also includes evaluating the 

appropriateness of accounting policies used and the reasonableness of significant accounting estimates made 

by management, as well as evaluating the overall presentation of the consolidated financial statements. 

We believe that the audit evidence we have obtained is sufficient and appropriate to provide a basis for our 

audit opinion. 

Opinion on the Financial Statements 

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 Commerce as of September 30, 2017 and 2016, and its net 

costs, changes in net position and budgetary resources, and custodial activity for the years then ended in 

accordance with U.S. generally accepted accounting principles. 

4 0 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

INDEPENDENT AUDITORS’ REPORT
2 

Other Matters 

Interactive Data 

Management has elected to reference to information on websites or other forms of interactive data outside the 

Agency Financial Report to provide additional information for the users of its financial statements. Such 

information is not a required part of the basic consolidated financial statements or supplementary information 

required by the Federal Accounting Standards Advisory Board. The information on these websites or the other 

interactive data has not been subjected to any of our auditing procedures, and accordingly we do not express 

an opinion or provide any assurance on it.

Required Supplementary Information 

U.S. generally accepted accounting principles require that the information in the Management’s Discussion and 

Analysis (including the Financial Management and Analysis section), Required Supplementary Information, and 

Required Supplementary Stewardship Information sections be presented to supplement the basic consolidated 

financial statements. Such information, although not a part of the basic consolidated financial statements, is 

required by the Federal Accounting Standards Advisory Board who considers it to be an essential part of 

financial reporting for placing the basic consolidated financial statements in an appropriate operational, 

economic, or historical context. We have applied certain limited procedures to the required supplementary 

information in accordance with auditing standards generally accepted in the United States of America, which 

consisted of inquiries of management about the methods of preparing the information and comparing the 

information for consistency with management’s responses to our inquiries, the basic consolidated financial 

statements, and other knowledge we obtained during our audits of the basic consolidated financial statements. 

We do not express an opinion or provide any assurance on the information because the limited procedures do 

not provide us with sufficient evidence to express an opinion or provide any assurance. 

Other Information 

Our audits were conducted for the purpose of forming an opinion on the basic consolidated financial statements 

as a whole. The How to Use this Report section, the Message from the Chief Financial Officer, and the Other 

Information section are presented for purposes of additional analysis and are not a required part of the basic 

consolidated financial statements. Such information has not been subjected to the auditing procedures applied 

in the audits of the basic consolidated financial statements, and accordingly, we do not express an opinion or 

provide any assurance on it. 

Other Reporting Required by Government Auditing Standards

Internal Control Over Financial Reporting 

In planning and performing our audit of the consolidated financial statements as of and for the year ended 

September 30, 2017, we considered the Department’s internal control over financial reporting (internal control) 

to determine the audit procedures that are appropriate in the circumstances 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 the Department’s internal control. Accordingly, we do not express an opinion on the 

effectiveness of the Department’s internal control. We did not test all internal controls relevant to operating 

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

Our consideration of internal control was for the limited purpose described in the preceding paragraph and was 

not designed to identify all deficiencies in internal control that might be material weaknesses or significant 

deficiencies and therefore, material weaknesses or significant deficiencies may exist that have not been 

identified. However, as described in the accompanying Exhibit I and Exhibit II, we identified certain deficiencies 

in internal control that we consider to be a material weakness and a significant deficiency. 

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 a combination of deficiencies, in 

FY 2017 AGENCY FINANCIAL REPORT | 4 1

INDEPENDENT AUDITORS’ REPORT
3 

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 deficiency 

described in the accompanying Exhibit I to be a material weakness. 

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 the accompanying Exhibit II to be a significant deficiency. 

Compliance and Other Matters 

As part of obtaining reasonable assurance about whether the Department’s consolidated financial statements 

are free from material misstatement, we performed tests of its 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 financial statement amounts. However, providing an opinion on compliance with those 

provisions was not an objective of our audit, and accordingly, we do not express such an opinion. The results of 

our tests disclosed no instances of noncompliance or other matters that are required to be reported under 

Government Auditing Standards or OMB Bulletin No. 17-03. 

We also performed tests of its compliance with certain provisions referred to in Section 803(a) of the Federal 

Financial Management Improvement Act of 1996 (FFMIA). Providing an opinion on compliance with FFMIA was 

not an objective of our audit, and accordingly, we do not express such an opinion. The results of our tests 

disclosed no instances in which the Department’s financial management systems did not substantially comply 

with the (1) Federal financial management systems requirements, (2) applicable Federal accounting standards, 

and (3) the United States Government Standard General Ledger at the transaction level. 

Potential Instances of Noncompliance 

The Department informed us of potential instances of noncompliance with the Antideficiency Act, which are 

under review. Specifically, the Department’s Office of the Secretary and the Department’s Office of General 

Counsel are reviewing instances of: (i) potential incorrect use of budgetary funding sources to support its 

programs; (ii) accepting terms of agreement on purchases made through the internet; (iii) relating to work 

performed without compensation through appointment as an intermittent expert after retiring from employment 

with the bureau; (iv) unemployment claims filed by temporary employees; and, (v) potential obligations in 

excess of quarterly advance of apportionment from OMB. Because these reviews are not complete, the 

ultimate outcomes of these potential matters are not presently known. 

The Department’s Responses to Findings

The Department’s responses to the findings identified in our audit are described in Exhibits I and II. The

Department’s responses were not subjected to the auditing procedures applied in the audit of the consolidated 

financial statements and, accordingly, we express no opinion on the responses.

Purpose of the Other Reporting Required by Government Auditing Standards

The purpose of the communication described in the Other Reporting Required by Government Auditing 

Standards section is solely to describe the scope of our testing of internal control and compliance and the result 

of that testing, and not to provide an opinion on the effectiveness of the Department’s internal control or 

compliance. Accordingly, this communication is not suitable for any other purpose. 

November 14, 2017

4 2 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

INDEPENDENT AUDITORS’ REPORT
Exhibit I – Material Weakness 

I-1

Census Controls over Identification of Internal Use Software needs Improvement 

The Department’s Bureau of the Census (Census) did not effectively implement controls to prevent or 

detect and correct misstatements attributed to identifying and capitalizing internal use software (IUS). 

During FY2017, Census had not identified 6 IUS projects, which included $157 million of costs incurred, 

which was not identified as a result of specific control weaknesses as follows: 

 Certain controls have not been implemented effectively to ensure that the Census Finance Division

and Administrative and Customer Service Division were actively monitoring and coordinating with

Census’ divisions and administrative offices to review contracts and identify IUS costs incurred during

the year and potential IUS costs that would be delivered in the future. Although Census identified that

individuals at Census divisions and administrative offices receive trainings and provide reporting to

the Census Finance Division and Administrative and Customer Service Division, those individuals

may not have the proper expertise to identify whether certain cost components meet some of the

more complex criteria for capitalization in accordance with U.S. generally accepted accounting

principles (GAAP).

For example, in addition to the acquisition of software licenses and system hardware purchases,

GAAP requires certain indirect cost components to be capitalized such as project management

overhead costs and rental payments for the facilities used by personnel who contribute to the

development of IUS. In these instances, Census must determine a cost allocation method to allocate

costs between IUS and non-IUS components of the project(s). Due to the complexity of these types of

contracts, the policies and implementation of a cost allocation methodology requires a coordinated

involvement of a mix of the appropriate level of expertise as part of the decision-making process.

 Controls to provide training to IUS points of contacts were not operating effectively. In some

instances, Census identified that certain employees who managed IUS for the Census Geography

Division property did not receive sufficient training with respect to the U.S. GAAP requirements

relating to IUS.

 Controls to provide a quarterly data call for Census divisions and their administrative offices to selfreport the existence of IUS to the Census Finance Division and the Administrative and Customer

Service Division were not operating effectively, as evidenced by 2 of the divisions failing to identify

and report at least 6 IUS projects to the Census Finance Division. Census identified that managers

within the Decennial and Communications Directorate did not follow up with their employees to verify

that timely and accurate submissions were provided to the Census Finance Division and

Administrative and Customer Service Division.

Census has stated that the cause for these control weaknesses is primarily due to vacancies in key 

positions with roles that relate to accounting for IUS. 

Subsequently, the Department recorded an adjustment of $157 million to correct gross cost and recognize 

assets (that is, internal use software). 

Recommendations 

We recommend that the Census management: 

 Improve controls and enforce implementation to ensure that the Census Finance Division and

Administrative and Customer Service Division are regularly monitoring and coordinating with Census’

FY 2017 AGENCY FINANCIAL REPORT | 4 3

INDEPENDENT AUDITORS’ REPORT
Exhibit I – Material Weakness, continued 

I-2

divisions and administrative offices to review contracts and identify IUS costs incurred during the year 

and potential IUS costs that would be delivered in the future. 

 Improve controls to ensure that all relevant Census personnel receive training on the relevant criteria

for recognizing internal use software – particularly, as it relates to material service contracts with

assets embedded within the contractual requirements.

 Improve controls at the Census divisions and administrative offices to ensure that quarterly data call

submissions are submitted timely and accurately.

Management’s Response

The Department concurs. We will develop corrective action plans and ensure timely implementation to 

address KPMG’s recommendations.

4 4 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

INDEPENDENT AUDITORS’ REPORT
Exhibit II – Significant Deficiency 

II-1

Information Technology Access, Configuration Management, and Security Management Controls 

Need Improvement 

During fiscal year (FY) 2017, we noted certain deficiencies surrounding information technology (IT) 

general controls associated with the Department’s financial management systems and supporting 

infrastructure that we considered collectively to be a significant deficiency under the standards issued by 

the American Institute of Certified Public Accountants. Specifically, the Department needs to make 

improvements in its access, configuration management, and security management controls, described 

below, to support management’s ability to provide assurance that transactions are complete, accurate, 

and valid. 

Access controls. The objectives of limiting access are to ensure that users have only the access needed 

to perform their duties; that access to sensitive resources, such as security software programs, is limited 

to few individuals; and that employees are restricted from performing incompatible functions or duties 

beyond their responsibility. The areas of deficiencies are: (1) database and operating system password 

controls, (2) access administration controls, (3) physical access controls, (4) segregation of duties, (5) 

audit log review controls, (6) source code management and (7) server encryption.

Configuration management. The objectives of configuration management are to ensure that hardware, 

software and firmware programs, and program modifications are properly authorized, tested, and 

approved; that access to and distribution of programs is carefully controlled; and that integrity of the 

application controls is maintained. The areas of deficiencies are: (1) patch management and (2)

configuration management procedures.

Security management. The objective of security management is to support data reliability. The area of 

deficiencies is in the Department’s monitoring of compliance with some internal policies. 

The relevant criteria is Department-wide and bureau-level policies and various Federal standards and 

guidance such as (1) GAO’s Standards for Internal Control in the Federal Government, dated September 

2014, (2) GAO’s Federal Information System Controls Audit Manual, dated February 2009, (3) NIST SP 

800-53 Rev. 4, Security and Privacy Controls for Federal Information Systems and Organizations, and (4)

NIST Special Publication 800-34 Rev. 1, Contingency Planning Guide for Federal Information Systems.

Due to the sensitive nature of IT controls, certain information has been omitted from this report. We 

provided the Department management with a separate limited distribution IT report that includes specific 

information about our observations, the criteria used, our understanding of the cause of the deficiencies 

identified, and our recommendations. We recognize that the Department has certain compensating 

controls in place to help reduce the risk of the identified deficiencies, and we have considered such 

compensating controls as part of our audit of the Department’s consolidated financial statements. 

Management’s Response

The Department concurs. We will develop corrective action plans and ensure timely implementation to 

address KPMG’s recommendations.

FY 2017 AGENCY FINANCIAL REPORT | 4 5

INDEPENDENT AUDITORS’ REPORT INDEPENDENT AUDITORS’ REPORT
THIS PAGE LEFT INTENTIONALLY BLANK

4 6 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

INDEPENDENT AUDITORS’ REPORT
Principal Financial Statements

FINANCIAL SECTION
United States Department of Commerce Consolidated Balance Sheets

As of September 30, 2017 and 2016 (In Thousands)

FY 2017 FY 2016

ASSETS

Intragovernmental:

Fund Balance with Treasury (Notes 2 and 19) $ 25,030,940 $ 25,872,055

Investment (Notes 3 and 22 – NTIA’s Public Safety Trust Fund) 334,106 333,013

Accounts Receivable (Note 4) 100,522 107,394

Advances and Prepayments (Note 22 – NTIA’s Network Construction Fund) 752,189 103,657

Total Intragovernmental 26,217,757 26,416,119

Cash (Note 5) 5,736 5,986

Accounts Receivable, Net (Note 4) 46,376 46,079

Direct Loans and Loan Guarantees, Net (Note 6) 431,619 453,956

Inventory, Materials, and Supplies, Net (Note 7) 108,063 114,094

General Property, Plant, and Equipment, Net (Note 8) 15,402,997 14,134,191

Cost Contribution to Buildout of Nationwide Public Safety Broadband Network 

(Note 22 – NTIA’s Network Construction Fund) 288,000 –

Other (Note 9) 47,442 76,867

TOTAL ASSETS $ 42,547,990 $ 41,247,292

Stewardship Assets (Note 24)

LIABILITIES

Intragovernmental:

Accounts Payable $ 155,968 $ 131,920

Debt to Treasury (Note 11) 430,313 475,207

Other

Unearned Revenue 309,006 311,178

Liability to General Fund of the U.S. Government for Deficit Reduction 

(Note 22 – NTIA’s Public Safety Trust Fund) 336,188 334,054

Custodial Payable to Treasury (Note 20) 848 12,672

Other (Note 12) 93,652 90,179

Total Intragovernmental 1,325,975 1,355,210

Accounts Payable 443,669 466,089

Federal Employee Benefits Liabilities (Note 13) 885,936 876,111

Environmental and Disposal Liabilities (Note 14) 145,147 143,100

Other

Accrued Payroll and Annual Leave 577,272 557,966

Accrued Grants 135,995 125,498

Capital Lease Liabilities (Note 15) 273 1,600

Unearned Revenue 1,146,411 1,174,082

Other (Note 12) 58,259 37,398

TOTAL LIABILITIES $ 4,718,937 $ 4,737,054

Commitments and Contingencies (Note 17) 

NET POSITION 

Unexpended Appropriations

Unexpended Appropriations – Funds from Dedicated Collections (Note 22) $ – $ –

Unexpended Appropriations – All Other Funds 5,973,837 5,840,085

Cumulative Results of Operations

Cumulative Results of Operations – Funds from Dedicated Collections (Note 22) 17,424,679 17,724,210

Cumulative Results of Operations – All Other Funds 14,430,537 12,945,943

Total Net Position – Funds from Dedicated Collections 17,424,679 17,724,210

Total Net Position – All Other Funds 20,404,374 18,786,028

TOTAL NET POSITION $ 37,829,053 $ 36,510,238

TOTAL LIABILITIES AND NET POSITION $ 42,547,990 $ 41,247,292

The accompanying notes are an integral part of these financial statements.

4 8 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

PRINCIPAL FINANCIAL STATEMENTS
United States Department of Commerce Consolidated Statements of Net Cost

For the Years Ended September 30, 2017 and 2016 (Note 18) (In Thousands) 

FY 2017 FY 2016

National Oceanic and Atmospheric Administration

Gross Costs $ 4,875,892 $ 4,791,275 

Less: Earned Revenue (252,722) (230,840)

Net Cost of Operations 4,623,170 4,560,435

U.S. Patent and Trademark Office

Gross Costs 3,192,586 3,119,076 

Less: Earned Revenue (3,104,522) (3,132,862)

Net Cost of Operations 88,064 (13,786)

Economics and Statistics Administration

Gross Costs 1,752,410 1,683,852 

Less: Earned Revenue (323,000) (282,539)

Net Cost of Operations 1,429,410 1,401,313

National Institute of Standards and Technology

Gross Costs 1,280,432 1,246,044 

Less: Earned Revenue (289,850) (319,753)

Net Cost of Operations 990,582 926,291 

International Trade Administration

Gross Costs 494,014 519,155

Less: Earned Revenue (9,996) (17,208)

Net Cost of Operations 484,018 501,947

Economic Development Administration

Gross Costs 291,424 295,671

Less: Earned Revenue (5,716) (4,690)

Net Cost of Operations 285,708 290,981

National Telecommunications and Information Administration

Gross Costs 261,214 237,816 

Less: Earned Revenue (39,096) (30,085)

Net Cost of Operations 222,118 207,731

Departmental Management

Gross Costs 117,062 133,881 

Less: Earned Revenue (8,432) (14,742)

Net Cost of Operations 108,630 119,139 

Others

Gross Costs 148,808 137,340 

Less: Earned Revenue (2,474) (1,207)

Net Cost of Operations 146,334 136,133 

Total Gross Departmental Costs 12,413,842 12,164,110 

Less: Total Earned Revenue (4,035,808) (4,033,926)

NET COST OF OPERATIONS $ 8,378,034 $ 8,130,184 

The accompanying notes are an integral part of these financial statements.

FY 2017 AGENCY FINANCIAL REPORT | 4 9

PRINCIPAL FINANCIAL STATEMENTS
United States Department of Commerce Consolidated Statements of Changes in Net Position 

For the Years Ended September 30, 2017 and 2016 (In Thousands)

FY 2017 FY 2016

Funds from 

Dedicated 

Collections

(Note 22) 

All Other 

Funds

Consolidated 

Total

Funds from 

Dedicated 

Collections

(Note 22) 

All Other 

Funds

Consolidated 

Total

Cumulative Results Of Operations:

Beginning Balance $ 17,724,210 $ 12,945,943 $ 30,670,153 $ 17,640,086 $ 11,626,892 $ 29,266,978

Budgetary Financing Sources:

Appropriations Used – 8,901,091 8,901,091 – 8,970,412 8,970,412

Non-exchange Revenue 36,895 7,005 43,900 11,204 9,231 20,435

Donations and Forfeitures of Cash and Cash Equivalents – 3,188 3,188 – 5,316 5,316

Transfers In of Auction Proceeds from Federal 

Communications Commission (Note 22 – NTIA’s 

Public Safety Trust Fund) – – – 8,430,058 – 8,430,058

Transfer Out to Receipt Account for Providing Funds to 

General Fund of the U.S. Government (Note 22 – NTIA’s 

Public Safety Trust Fund) – – – (7,781,010) – (7,781,010)

Transfers In/(Out) Without Reimbursement, Net (2,669) 439,369 436,700 (91,376) 147,669 56,293

Rescissions/Sequestrations (Note 19) – – – – – –

Other Budgetary Financing Sources/(Uses), Net – – – – – –

Other Financing Sources (Non-exchange):

Donations and Forfeitures of Property – 399 399 – 779 779

Transfer In Received by Receipt Account for Providing 

Funds to General Fund of the U.S. Government 

(Note 22 – NTIA’s Public Safety Trust Fund) – – – 7,781,010 – 7,781,010

Transfer Out to General Fund of the U.S. Government 

for Deficit Reduction (Note 22 – NTIA’s Public Safety 

Trust Fund) – – – (7,781,010) – (7,781,010)

Transfers In/(Out) Without Reimbursement, Net (725) (6,175) (6,900) – (78,549) (78,549)

Imputed Financing Sources from Cost Absorbed by Others 20,986 179,239 200,225 35,542 211,735 247,277

Financing Sources Used for Recognizing Liability to General 

Fund of the U.S. Government for Deficit Reduction 

(Note 22 – NTIA’s Public Safety Trust Fund) (2,134) – (2,134) (334,054) – (334,054)

Other Financing Sources/(Uses), Net (2) (13,370) (13,372) – (3,598) (3,598)

Total Financing Sources 52,351 9,510,746 9,563,097 270,364 9,262,995 9,533,359

Net Cost of Operations (351,882) (8,026,152) (8,378,034) (186,240) (7,943,944) (8,130,184)

Net Change (299,531) 1,484,594 1,185,063 84,124 1,319,051 1,403,175

Cumulative Results of Operations – Ending Balance 17,424,679 14,430,537 31,855,216 17,724,210 12,945,943 30,670,153

Unexpended Appropriations:

Beginning Balance – 5,840,085 5,840,085 – 5,733,904 5,733,904

Budgetary Financing Sources:

Appropriations Received (Note 19) – 9,399,154 9,399,154 – 9,234,371 9,234,371

Appropriations Transferred In/(Out), Net – (257,053) (257,053) – 24,250 24,250

Rescissions/Sequestrations of Appropriations (Note 19) – (34,380) (34,380) – (34,360) (34,360)

Cancellations and Other Adjustments – (72,878) (72,878) – (147,668) (147,668)

Appropriations Used – (8,901,091) (8,901,091) – (8,970,412) (8,970,412)

Total Budgetary Financing Sources – 133,752 133,752 – 106,181 106,181

Unexpended Appropriations – Ending Balance – 5,973,837 5,973,837 – 5,840,085 5,840,085

NET POSITION $ 17,424,679 $ 20,404,374 $ 37,829,053 $ 17,724,210 $ 18,786,028 $ 36,510,238

The accompanying notes are an integral part of these financial statements.

5 0 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

PRINCIPAL FINANCIAL STATEMENTS
United States Department of Commerce Combined Statements of Budgetary Resources 

For the Years Ended September 30, 2017 and 2016 (Note 19) (In Thousands)

FY 2017 FY 2016

Budgetary

Non-budgetary Credit 

Program Financing Accounts Budgetary

Non-budgetary Credit 

Program Financing Accounts

BUDGETARY RESOURCES:

Unobligated Balance, Brought Forward, October 1 $ 9,511,345 $ 5,488 $ 17,608,684 $ 2,127

Adjustments to Unobligated Balance, Brought Forward 80,050 – (596) –

Unobligated Balance, Brought Forward, October 1, as Adjusted 9,591,395 5,488 17,608,088 2,127

Actual Recoveries of Prior-years Unpaid Obligations 287,307 3,324 307,493 18,877

Actual Nonexpenditure Transfers of Unobligated Balance, Net 986 – 5,867 –

Borrowing Authority Withdrawn – (3,324) – (18,877)

Other Changes in Unobligated Balance, Net (50,757) – (8,933,414) –

Unobligated Balance From Prior-years Budget Authority, Net 9,828,931 5,488 8,988,034 2,127

Appropriations 9,524,248 – 10,416,411 –

Borrowing Authority – 76,637 – 22,532

Spending Authority From Offsetting Collections 4,977,307 24,295 5,519,171 28,410

TOTAL BUDGETARY RESOURCES $ 24,330,486 $ 106,420 $ 24,923,616 $ 53,069

STATUS OF BUDGETARY RESOURCES:

New Obligations and Upward Adjustments $ 15,866,438 $ 104,261 $ 15,412,271 $ 47,581

Unobligated Balance, End of Year

Apportioned, Unexpired Accounts 7,547,610 – 8,600,100 –

Exempt From Apportionment, Unexpired Accounts 1,415 – 2,257 –

Unapportioned, Unexpired Accounts 565,555 2,159 544,961 5,488

Unobligated Balance, End of Year, Unexpired Accounts 8,114,580 2,159 9,147,318 5,488

Unobligated Balance, End of Year, Expired Accounts 349,468 – 364,027 –

Total Unobligated Balance, End of Year 8,464,048 2,159 9,511,345 5,488

TOTAL STATUS OF BUDGETARY RESOURCES $ 24,330,486 $ 106,420 $ 24,923,616 $ 53,069

CHANGE IN UNPAID OBLIGATED BALANCE, NET:

Unpaid Obligations:

Unpaid Obligations, Brought Forward, October 1 $ 7,075,111 $ 65,641 $ 6,738,577 $ 122,051

New Obligations and Upward Adjustments 15,866,438 104,261 15,412,271 47,581

Outlays, Gross (15,273,527) (49,874) (14,768,244) (85,114)

Actual Recoveries of Prior-years Unpaid Obligations (287,307) (3,324) (307,493) (18,877)

UNPAID OBLIGATIONS, END OF YEAR $ 7,380,715 $ 116,704 $ 7,075,111 $ 65,641

Uncollected Customer Payments: 

Uncollected Customer Payments, Brought Forward, October 1 $ (564,275) $ (467) $ (564,491) $ (467)

Change in Uncollected Customer Payments (70,925) – 216 –

UNCOLLECTED CUSTOMER PAYMENTS, END OF YEAR $ (635,200) $ (467) $ (564,275) $ (467)

Unpaid Obligated Balance, Net, Brought Forward, October 1 $ 6,510,836 $ 65,174 $ 6,174,086 $ 121,584

Unpaid Obligated Balance, Net, End of Year $ 6,745,515 $ 116,237 $ 6,510,836 $ 65,174

BUDGET AUTHORITY, NET:

Budget Authority, Gross $ 14,501,555 $ 100,932 $ 15,935,582 $ 50,942

Actual Offsetting Collections (4,929,665) (91,437) (5,541,627) (117,971)

Change in Uncollected Customer Payments (70,925) – 216 –

Less: Recoveries of Prior-years Paid Obligations 

included in Actual Offsetting Collections 22,120 – 21,651 –

BUDGET AUTHORITY, NET $ 9,523,085 $ 9,495 $ 10,415,822 $ (67,029)

OUTLAYS, NET:

Outlays, Gross $ 15,273,527 $ 49,874 $ 14,768,244 $ 85,114

Actual Offsetting Collections (4,929,665) (91,437) (5,541,627) (117,971)

Outlays, Net 10,343,862 (41,563) 9,226,617 (32,857)

Distributed Offsetting (Receipts)/Outlays, Net (40,066) – (64,352) –

AGENCY OUTLAYS, NET $ 10,303,796 $ (41,563) $ 9,162,265 $ (32,857)

The accompanying notes are an integral part of these financial statements.

FY 2017 AGENCY FINANCIAL REPORT | 5 1

PRINCIPAL FINANCIAL STATEMENTS
United States Department of Commerce Consolidated Statements of Custodial Activity

For the Years Ended September 30, 2017 and 2016 (Note 20) (In Thousands)

FY 2017 FY 2016

Custodial Revenue Activity:

Sources of Cash Collections:

Fines and Penalties $ 375,958 $ 12,427

Other 12,589 14,490

Total Cash Collections 388,547 26,917

Accrual Adjustment (11,827) 12,283

Total Custodial Revenue 376,720 39,200

Disposition of Custodial Revenue:

Transferred to the General Fund of the U.S. Government 388,544 26,949

Increase/(Decrease) in Amounts Yet to be Transferred to the 

General Fund of the U.S. Government (11,824) 12,251

Total Disposition of Collections 376,720 39,200

NET CUSTODIAL ACTIVITY $ – $ –

The accompanying notes are an integral part of these financial statements.

5 2 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

PRINCIPAL FINANCIAL STATEMENTS
Notes to the Financial

Statements

FINANCIAL SECTION
Note 1. Summary of Significant Accounting Policies 55

Note 2. Fund Balance with Treasury 68

Note 3. Investment 69

Note 4. Accounts Receivable, Net 69

Note 5. Cash 70

Note 6. Direct Loans and Loan Guarantees, Net 70

Note 7. Inventory, Materials, and Supplies, Net 76

Note 8. General Property, Plant, and Equipment, Net 77

Note 9. Other Assets 78

Note 10. Non-entity Assets 78

Note 11. Debt to Treasury 79

Note 12. Other Liabilities 79

Note 13. Federal Employee Benefits Liabilities 80

Note 14. Environmental and Disposal Liabilities 82

Note 15. Leases 83

Note 16. Liabilities Not Covered by Budgetary Resources 85

Note 17. Commitments and Contingencies 86

Note 18. Consolidated Statements of Net Cost 87

Note 19. Combined Statements of Budgetary Resources 89

Note 20. Consolidated Statements of Custodial Activity 91

Note 21. Fiduciary Activities 92

Note 22. Funds from Dedicated Collections 93

Note 23. Reconciliation of Net Cost of Operations to Budget 102

Note 24. Stewardship Assets 104

NOTES TO THE FINANCIAL STATEMENTS

(Dollars in Tables are Presented in Thousands)

5 4 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

NOTES TO THE FINANCIAL STATEMENTS
NOTE 1. SUMMARY OF SIGNIFICANT ACCOUNTING POLICIES

A Reporting Entity 

T

he Department of Commerce (the Department) is a cabinet-level agency of the Executive Branch of the U.S. government. 

Established in 1903 to promote U.S. business and trade, the Department’s broad range of responsibilities includes predicting 

the weather, granting patents and registering trademarks, measuring economic growth, gathering and disseminating 

statistical data, expanding U.S. exports, developing innovative technologies, helping local communities improve their economic 

development capabilities, promoting minority entrepreneurial activities, and monitoring the stewardship of national assets. 

The Department is composed of 12 bureaus and Departmental Management.

For the Consolidated Statements of Net Cost, the Department’s entities have been grouped together as follows:

● National Oceanic and Atmospheric Administration (NOAA)

● U.S. Patent and Trademark Office (USPTO)

● Economics and Statistics Administration (ESA) — based on organizational structure

● Bureau of Economic Analysis (BEA)

● Census Bureau

● National Institute of Standards and Technology (NIST) — based on organizational structure

● National Technical Information Service (NTIS)

● International Trade Administration (ITA)

● Economic Development Administration (EDA)

● National Telecommunications and Information Administration (NTIA)1 

● Departmental Management (DM)

● Gifts and Bequests

● Herbert C. Hoover Building Renovation Project

● Office of Inspector General (OIG)

● Salaries and Expenses (S&E)

● Working Capital Fund (WCF)

● Others

● Bureau of Industry and Security (BIS) 

● Minority Business Development Agency (MBDA)

1 The Middle Class Tax Relief and Job Creation Act of 2012 created the First Responder Network Authority (FirstNet), included in 

these financial statements, as an independent authority within NTIA, to provide emergency responders with the first high-speed, 

nationwide network dedicated to public safety.

FY 2017 AGENCY FINANCIAL REPORT | 5 5

NOTES TO THE FINANCIAL STATEMENTS
B Basis of Accounting and Presentation

The Department’s fiscal year ends September 30. These financial statements reflect both accrual and budgetary accounting 

transactions. Under the accrual method of accounting, revenues are recognized when earned and expenses are recognized when 

incurred, without regard to the receipt or payment of cash. Budgetary accounting is designed to recognize the obligation of funds 

according to legal requirements, which in many cases is made prior to the occurrence of an accrual-based transaction. Budgetary 

accounting is essential for compliance with legal constraints and controls over the use of federal funds. 

These financial statements have been prepared from the accounting records of the Department in conformance with U.S. 

generally accepted accounting principles (GAAP) and the form and content for entity financial statements specified by the Office 

of Management and Budget (OMB) in Circular A-136, Financial Reporting Requirements. GAAP for federal entities are the 

standards prescribed by the Federal Accounting Standards Advisory Board, which is the official body for setting the accounting 

standards of the U.S. government.

Throughout these financial statements, intragovernmental assets, liabilities, gross costs, earned revenue, transfers, and other 

activity represent activity or balances with other federal entities, based upon with whom the transaction or balance is with.

The Department has allocation transfer transactions with other federal agencies as both a transferring (parent) entity and as 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. Department of the 

Treasury (Treasury) as a subset of the parent fund account for tracking and reporting purposes. All allocation transfers of balances 

are credited to this account, and subsequent obligations and outlays incurred by the child entity are charged to this allocation 

account as they execute the delegated activity on behalf of the parent entity. Generally, all financial activity related to these 

allocation transfers (e.g., budgetary resources, obligations incurred, gross costs, and outlays, gross) is reported in the financial 

statements of the parent entity, from which the underlying legislative authority, appropriations, and OMB apportionments are 

derived. EDA allocates funds, as the parent, to the U.S. Department of Agriculture’s Rural Development Administration; all financial 

activity related to these EDA funds is reported in the Department’s financial statements. EDA has received allocation transfers, 

as the child, from Delta Regional Authority, Appalachian Regional Commission, and Northern Border Regional Commission, and 

BEA in FY 2016 was a child to an allocation account from the U.S. General Services Administration (GSA). Census Bureau has 

received allocation transfers in FY 2017, as child, from the U.S. Department of Health and Human Services.

C Funds from Dedicated Collections

Funds from Dedicated Collections are financed by specifically identified revenues, often supplemented by other financing sources 

that are originally provided to the federal government by a non-federal source, which remain available over time. These specifically 

identified revenues and other financing sources are required by statute to be used for designated activities, benefits, or purposes, 

and must be accounted for separately from the federal government’s general revenues.

Funds from Dedicated Collections include general funds, revolving funds (not including credit reform financing funds), special 

funds, and trust funds. (See Note 22, Funds from Dedicated Collections.)

D Elimination of Intra-entity and Intra-Departmental Transactions and Balances

Transactions and balances within a reporting entity (intra-entity), and transactions and balances among the Department’s entities 

(intra-Departmental), have been eliminated from the Consolidated Balance Sheets and Consolidated Statements of Net Cost, and 

are excluded from the consolidated total column of the Consolidated Statements of Changes in Net Position. The Statements of 

Budgetary Resources are presented on a combined basis; therefore, intra-Departmental and intra-entity transactions and balances 

have not been eliminated from these statements.

5 6 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

NOTES TO THE FINANCIAL STATEMENTS
E Fund Balance with Treasury

Fund Balance with Treasury is the aggregate amount of funds in the Department’s accounts with Treasury. Deposit Funds include 

amounts held in customer deposit accounts.

Treasury processes cash receipts and disbursements for the Department’s domestic operations. Cash receipts and disbursements 

for the Department’s overseas operations are primarily processed by the U.S. Department of State’s financial service centers.

F Investment

Investment in Federal Securities consists of an interest-bearing, market-based Treasury security (note), purchased by NTIA’s Public 

Safety Trust Fund from Treasury at a discount. This investment is presented on the Department’s Consolidated Balance Sheet at 

acquisition cost, net of amortization of the discount. The discount will be amortized over the life of the Treasury security using the 

interest method. Under the interest method, the effective interest rate (the actual interest yield on amounts invested) multiplied 

by the carrying amount of the Treasury security at the start of the accounting period equals the interest income recognized during 

the period (the carrying amount changes each period by the amount of the amortized discount). The amount of the amortization 

of the discount is the difference between the effective interest recognized for the period and the nominal interest for the Treasury 

security. The market value of the Treasury security is not recorded on the Balance Sheet because this investment is expected to 

be held to maturity. See Note 3, Investment, for disclosure of the market value of the Treasury security, which was provided by 

Treasury. For purposes of determining market values, investments should be grouped by the type of security, such as marketbased or marketable Treasury securities. The market value of investments in a group is calculated by the market price of securities 

of that group at the financial reporting date multiplied by the number of notes or bonds held at the financial reporting date. 

G Accounts Receivable, Net

Accounts Receivable are recognized primarily when the Department performs reimbursable services or sells goods. Accounts 

Receivable are reduced to net realizable value by an Allowance for Uncollectible Accounts. This allowance is estimated periodically 

using methods such as the identification of specific delinquent receivables, and the analysis of aging schedules and historical 

trends adjusted for current market conditions.

H Advances and Prepayments

Advances are payments the Department has made to cover a part or all of a grant recipient’s anticipated expenses, or are advance 

payments for the cost of goods and services to be acquired. For grant awards, the recipient is required to periodically (for example, 

quarterly) report the amount of costs incurred. Prepayments are payments the Department has made to cover certain periodic 

expenses before those expenses are incurred, such as subscriptions and rent. Advances and Prepayments are included in 

Other Assets.

I Direct Loans and Loan Guarantees, Net

A direct loan is recorded as a receivable after the Department disburses funds to a borrower. The Department also makes loan 

guarantees with respect to the payment of all or part of the principal or interest on debt obligations of non-federal borrowers to 

non-federal lenders. A borrower-defaulted loan guaranteed by the Department is recorded as a receivable from the borrower after 

the Department disburses funds to the lender. 

Interest Receivable generally represents uncollected interest income earned on loans. For past-due loans, only up to 180 days 

of interest income is generally recorded. 

FY 2017 AGENCY FINANCIAL REPORT | 5 7

NOTES TO THE FINANCIAL STATEMENTS
Foreclosed Property is acquired primarily through foreclosure and voluntary conveyance, and is recorded at the fair market value 

at the time of acquisition. Foreclosed Property is adjusted to the current fair market value each fiscal year-end.

Direct Loans and Loan Guarantees Obligated before October 1, 1991 (pre-FY 1992): Loans Receivable are reduced by an Allowance 

for Loan Losses, which is based on an analysis of each loan’s outstanding balance. The value of each receivable, net of any 

Allowance for Loan Losses, is supported by the values of any pledged collateral and other assets available for liquidation, and 

by the Department’s analysis of financial information of parties against whom the Department has recourse for the collection of 

these receivables. 

Direct Loans and Loan Guarantees Obligated after September 30, 1991 (post-FY 1991): Post-FY 1991 obligated direct loans and loan 

guarantees and the resulting receivables are governed by the Federal Credit Reform Act of 1990. 

For a direct or guaranteed loan disbursed during a fiscal year, a subsidy cost is initially recognized. Subsidy costs are intended to 

estimate the long-term cost to the U.S. government of its loan programs. The subsidy cost equals the present value of estimated 

cash outflows over the life of the loan, minus the present value of estimated cash inflows, discounted at the applicable Treasury 

interest rate. Administrative costs such as salaries are not included in the subsidy costs. Subsidy costs can arise from interest rate 

differentials, interest subsidies, delinquencies and defaults, loan origination and other fees, and other cash flows. The Department 

calculates its subsidy costs based on a model created and provided by OMB. 

A Loan Receivable is recorded at the present value of the estimated cash inflows less cash outflows. The difference between 

the outstanding principal of the loan and the present value of its net cash inflows is recorded as the Allowance for Subsidy Cost. 

A subsidy reestimate is normally performed annually, as of September 30. The subsidy reestimate takes into account all factors 

that may have affected the estimated cash flows. Any adjustment resulting from the reestimate is recognized as a subsidy 

expense (or a reduction in subsidy expense). The portion of the Allowance for Subsidy Cost related to subsidy modifications and 

reestimates is calculated annually, as of September 30.

The amounts of any downward subsidy reestimates as of September 30 must be disbursed to Treasury in the subsequent 

fiscal year. Appropriations are normally obtained in the following fiscal year for any upward subsidy reestimates.

J Inventory, Materials, and Supplies, Net

Inventory, Materials, and Supplies, Net are stated at the lower of cost or net realizable value primarily under the average, weightedaverage, and first-in, first-out methods, and are adjusted for the results of physical inventories. Inventory, Materials, and Supplies 

are expensed when consumed. There are no restrictions on their sale, use, or disposition.

K General Property, Plant, and Equipment, Net

General Property, Plant, and Equipment, Net (PP&E) is composed of capital assets used in providing goods or services. General 

PP&E is stated at full cost, including all costs related to acquisition, delivery, and installation, less Accumulated Depreciation. 

Acquisitions of General PP&E include assets purchased, or assets acquired through other means such as through transfer in 

from another federal entity, donation, devise (a will or clause of a will disposing of property), judicial process, exchange between 

a federal entity and a non-federal entity, and forfeiture. General PP&E also includes assets acquired through capital leases, which 

are initially recorded at the amount recognized as a liability for the capital lease at its inception. 

5 8 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

NOTES TO THE FINANCIAL STATEMENTS
Capitalization Thresholds:

Single-asset Acquisitions: The Department’s policy is to capitalize single-asset acquisitions of General PP&E if the useful life is two 

years or more and the dollar amount meets the entity’s single-asset acquisition capitalization threshold. Based on a Departmentwide capitalization thresholds review, which reflects materiality and cost-benefit analyses, the Department’s single-asset acquisition 

capitalization thresholds for both FY 2017 and FY 2016 are as follows: NOAA—$200 thousand or more; NIST—$100 thousand or 

more; USPTO—$50 thousand or more; and all other bureaus and Departmental Management—$25 thousand or more, except 

that NTIA’s First Responder Network Authority has a single-asset acquisition capitalization threshold of $5 thousand. 

Personal Property Bulk Acquisitions: For FY 2017 and FY 2016, NOAA has a personal property bulk acquisition capitalization threshold 

of $1.0 million or more where individual items cost $25 thousand or more but less than $200 thousand; NIST has a personal 

property bulk acquisition capitalization threshold of $500 thousand or more. All other bureaus and Departmental Management 

have a personal property bulk acquisition capitalization threshold of $250 thousand or more, except that USPTO has a furniture bulk 

acquisition capitalization threshold of $50 thousand or more and NTIA’s First Responder Network Authority has a personal property 

bulk acquisition capitalization threshold of $50 thousand or more.

General PP&E not meeting the applicable capitalization threshold is expensed.

Depreciation: Depreciation is recognized on a straight-line basis over the estimated useful life of the asset with the exception of 

leasehold improvements, which are depreciated over the remaining life of the lease or over the useful life of the improvement, 

whichever is shorter. Land, Construction-in-progress, and Internal Use Software in Development are not depreciated.

Construction-in-progress: Costs for the construction, modification, or modernization of General PP&E are initially recorded as 

Construction-in-progress. The Department’s construction-in-progress consists primarily of satellites under development for NOAA, 

and major laboratory renovations and construction projects under development for NIST. Upon completion of the work, the costs 

are transferred to the appropriate General PP&E account.

Internal Use Software: Internal Use Software includes purchased commercial off-the-shelf (COTS) software and internally or contractordeveloped software solely to meet the Department’s internal or operational needs. Internally developed software includes the 

full cost (direct and indirect cost) incurred during the software development stage. For contractor-developed software, capitalized 

costs include the costs for the contractor to design, program, install, and implement the software.

Real Property: GSA provides most of the facilities in which the Department operates, and generally charges rent based on 

comparable commercial rental rates under operating leases. Accordingly, GSA-owned properties under operating leases are not 

included in the Department’s General PP&E. The Department’s real property primarily consists of facilities for NIST and NOAA. 

L Cost Contribution to Buildout of Nationwide Public Safety Broadband Network

This asset captures NTIA’s cumulative cost contributions for the buildout of the Nationwide Public Safety Broadband Network 

(NPSBN) as described in Note 22, Funds from Dedicated Collections – NTIA’s Network Construction Fund, less any accumulated 

amortization. Amortization of the cost contributions has not yet begun as of September 30, 2017. The cost contributions that are 

recorded as an asset include (a) costs incurred for completed and accepted AT&T contract performance for the buildout of NPSBN 

under the First Responder Network Authority (FirstNet)-U.S. Department of the Interior (DOI) contract to buildout, operate, and 

maintain NPSBN; and (b) accrued costs for estimated, unbilled AT&T contract performance progress for buildout of NPSBN under 

the FirstNet-DOI contract.

FY 2017 AGENCY FINANCIAL REPORT | 5 9

NOTES TO THE FINANCIAL STATEMENTS
An asset is recognized primarily because the cost contributions for the buildout of NPSBN embodies (a) future economic benefits 

to NTIA from AT&T made possible in part by NTIA’s cost contributions, as there are expected future revenue streams from AT&T 

to NTIA per the DOI-AT&T contract terms; and (b) future expected services to be received by NTIA from AT&T made possible in 

part by NTIA’s cost contributions, as AT&T, per the DOI-AT&T contract terms, will buildout, maintain, and operate NPSBN, thereby 

assisting NTIA’s FirstNet with achieving its important mission of ensuring the building, deployment, and operation of the first 

high-speed, nationwide wireless broadband network dedicated to public safety.

Amortization of the cost contributions will begin, over the estimated life(s), (a) when the applicable revenue stream(s) begin to 

take effect; and/or (b) the applicable services to be received begin. 

M Non-entity Assets 

Non-entity assets, included in the Department’s Consolidated Balance Sheets, are assets held by the Department that are not available 

for use in its operations, and for which a liability has been recorded. Non-entity Fund Balance with Treasury includes customer deposits 

held by the Department until customer orders are received, and monies payable to the General Fund of the U.S. Government for 

custodial and loan programs activity. 

N Liabilities

A liability for federal accounting purposes is a probable and measurable future outflow or other sacrifice of resources as a result 

of past transactions or events. 

Accounts Payable: Accounts Payable are amounts primarily owed for goods, services, or capitalized assets received, progress on 

contract performance by others, and other expenses due. 

Debt to Treasury: The Department has borrowed funds from Treasury through the Fisheries Finance Financing Account for various 

NOAA direct loan programs. To simplify interest calculations, the Fisheries Finance Financing Account borrowings are dated 

October 1. Interest rates are based on a weighted average of rates during the term of the borrowed funds. The weighted average 

rate for each cohort’s borrowing is recalculated at the end of each fiscal year during which disbursements are made. Annual interest 

payments on unpaid principal balances as of September 30 are required. Principal repayments are required only at maturity, but are 

permitted at any time during the term of the loan. The Department’s primary financing source for repayments of Debt to Treasury 

is the collection of principal on the associated Loans Receivable. Balances of any borrowed but undisbursed Fisheries Finance 

Financing Account debt will earn interest at the same rate used in calculating interest expense. The amounts reported for Debt to 

Treasury include accrued interest payable. See Note 11, Debt to Treasury, for information regarding maturity dates.

Unearned Revenue: Unearned Revenue is the portion of monies received for which goods and services have not yet been provided 

or rendered by the Department. Revenue is recognized as reimbursable costs are incurred, and the Unearned Revenue balance 

is reduced accordingly. Unearned Revenue also includes the balances of customer deposit accounts held by the Department. 

The intragovernmental Unearned Revenue primarily relates to monies collected in advance under reimbursable agreements. 

The majority of the Unearned Revenue with the public represents patent and trademark application and user fees that are 

pending action.

Liability to General Fund of the U.S. Government for Deficit Reduction: NTIA’s Public Safety Trust Fund was created as a result of Section 

6413 of the Middle Class Tax Relief and Job Creation Act of 2012 (Act). The Act provides funding for specified programs and activities, 

to be derived from the proceeds of Federal Communications Commission auctions of spectrum licenses, to be deposited into the 

Public Safety Trust Fund. The Act directs the use of auction proceeds in an order of priority after the repayment of borrowings from 

6 0 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

NOTES TO THE FINANCIAL STATEMENTS
Treasury (priority 1), which was fully completed in September 2015. Priority 8 of the Act specifies that any remaining amounts 

deposited into the Public Safety Trust Fund shall be deposited in the General Fund of the U.S. Government for deficit reduction. 

The Act further specifies that any amounts remaining in the Public Safety Trust Fund after the end of FY 2022 shall be deposited 

in the General Fund of the U.S. Government for deficit reduction. The Department records a liability (not covered by budgetary 

resources) to the General Fund of the U.S. Government for the monies owed for priority 8. A corresponding use of financing 

sources is recorded on the Consolidated Statement of Changes in Net Position, Other Financing Sources (Non-exchange) section.

Custodial Payable to Treasury: Custodial Payable to Treasury represents the amount of applicable custodial non-exchange or exchange 

revenue yet to be transferred to the General Fund of the U.S. Government. See the Consolidated Statements of Custodial Activity

and related Note 20 for more information on the Department’s custodial activity.

Resources Payable to Treasury: Resources Payable to Treasury primarily includes assets in excess of liabilities that are being held as 

working capital in the Department’s liquidating fund groups, which account for loan programs prior to October 1, 1991 (pre-FY 1992). 

Accrued FECA Liability: The Federal Employees’ Compensation Act (FECA) provides income and medical cost protection to 

covered federal civilian employees injured on the job, to employees who have incurred work-related occupational diseases, and 

to beneficiaries of employees whose deaths are attributable to job-related injuries or occupational diseases. The FECA program 

is administered by the U.S. Department of Labor (DOL), which pays valid claims against the Department and subsequently seeks 

reimbursement from the Department for these paid claims. Accrued FECA Liability, included in Intragovernmental Other Liabilities, 

represents amounts due to DOL for claims paid on behalf of the Department.

Federal Employee Benefits:

Actuarial FECA Liability: Actuarial FECA Liability represents the liability for future workers’ compensation (FWC) benefits, which 

includes the expected liability for death, disability, medical, and miscellaneous costs for approved cases. The liability is determined 

by DOL annually, as of September 30, using a method that utilizes historical benefits payment patterns related to a specific 

incurred period to predict the ultimate payments related to that period. Projected annual payments were discounted to present 

value based on OMB’s interest rate assumptions which were interpolated to reflect the average duration in years for income 

payments and medical payments. 

To provide more specifically for the effects of inflation on the liability for FWC benefits, wage inflation factors (Cost of Living 

Adjustment) and medical inflation factors (Consumer Price Index – Medical) are applied to the calculation of projected future benefits. 

The actual rates for these factors are also used to adjust the historical payments to current-year constant dollars.

For FY 2017, to test the reliability of the model, DOL performed comparisons between projected payments in the last year to 

actual amounts, by agency. Changes in the liability from last year’s analysis to this year’s analysis were also examined by DOL, 

by agency, with any significant differences by agency inspected in greater detail. The same reliability testing was performed in 

FY 2016. The model has been stable, and has projected the actual payments by agency well.

NOAA Corps Retirement System Liability and NOAA Corps Post-retirement Health Benefits Liability: These liabilities are recorded 

at the actuarial present value of projected benefits, calculated annually, as of September 30. The actuarial cost method used to 

determine these liabilities is the aggregate entry age normal method. Under this method, the actuarial present value of projected 

benefits is allocated on a level basis over the earnings or the service of the group between entry age and assumed exit ages. 

The portion of this actuarial present value allocated to the valuation year is called the normal cost. For purposes of calculating 

the normal cost, certain actuarial assumptions utilized for the actual valuation of the U.S. Military Retirement System are used. 

Actuarial gains and losses, and prior and past service costs, if any, are recognized immediately in the fiscal year they occur, without 

FY 2017 AGENCY FINANCIAL REPORT | 6 1

NOTES TO THE FINANCIAL STATEMENTS
amortization. The medical claim rates used for the NOAA Corps Post-retirement Health Benefits Liability actuarial calculations are 

based on the claim rates used for the U.S. Department of Defense Medicare-Eligible Retiree Health Care Fund actuarial valuations. 

Demographic assumptions appropriate to covered personnel are also used. For background information about these plans, see 

Note 1.R, Employee Retirement Benefits.

Environmental and Disposal Liabilities: The Department has incurred asbestos-related cleanup costs related to the costs of removing, 

containing, and/or disposing of asbestos-containing materials from property, plant, and equipment; specifically, from facilities 

owned by NIST and NOAA, and from ships owned by NOAA. The Department has estimated its liabilities for asbestos-related 

cleanup costs for both friable and nonfriable asbestos-related cleanup costs. Estimates of asbestos-related cleanup costs are 

reviewed periodically, and updated as appropriate, to account for actual or estimated increases or decreases in asbestos-containing 

materials, material changes due to inflation or deflation, and changes in regulations, plans, and/or technology. 

NIST operates a nuclear reactor licensed by the U.S. Nuclear Regulatory Commission, in accordance with NIST’s mission of setting 

standards and examining new technologies. NIST’s Environmental and Disposal Liability estimates were updated for FY 2017, 

pursuant to U.S. Nuclear Regulatory Commission Regulation-1307, Rev 16, which states: “licenses must annually adjust the 

estimate of the cost of decommissioning their plants in dollars of the current year, as a part of the process to provide reasonable 

assurance that adequate funds for decommissioning will be available when needed.” The Department currently estimates the 

cost of decommissioning this facility to be $75.0 million. NIST’s decommissioning estimate includes an assumption that an offsite 

waste disposal facility will become available, when needed, estimated in 2029. Currently, an offsite disposal location has not 

been identified, and NIST’s Environmental and Disposal Liability estimate includes an amount approved by the Nuclear Regulatory 

Commission for offsite waste disposal. The total estimated decommissioning cost is being accrued on a straight-line basis over 

the expected life of the facility. Under current legislation, funds to cover the expense of decommissioning the facility’s nuclear 

reactor should be requested in a separate appropriation when the decommissioning date becomes relatively certain.

The Department has incurred cleanup costs related to the costs of removing, containing, and/or disposing of hazardous waste 

from facilities used by NOAA. The Department has estimated its liabilities for environmental cleanup costs at all NOAA-used 

facilities, including the decommissioning of ships. The largest of NOAA’s environmental liabilities relates to the cleanup of the 

Pribilof Islands in Alaska, which contains waste from the U.S. Department of Defense’s use during World War II. Such cleanup 

activities are the responsibility of the Department because it became the successor agency of the waste generated from 

war-related programs. The Department does not recognize a liability for environmental cleanup costs for NOAA-used facilities 

that are less than $25 thousand per project. When an estimate of cleanup costs includes a range of possible costs, the most 

likely cost is reported. When no cost is more likely than another, the lowest estimated cost in the range is reported. The liability 

is reduced as progress payments are made.

The Department may have liabilities associated with lead-based paints at certain NOAA facilities. The Department has scheduled 

surveys to assess the potential for liabilities for lead-based paint contamination. All known issues, however, are contained, and 

NOAA facilities meet current environmental standards. No cost estimates are presently available for facilities that have not yet 

been assessed for lead-based paint issues.

Accrued Payroll and Annual Leave: These categories include salaries, wages, and other compensation earned by employees, but 

not disbursed as of September 30. Annually, as of September 30, the balances of Accrued Annual Leave are adjusted to reflect 

current pay rates. Sick leave and other types of non-vested leave are expensed as taken. 

6 2 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

NOTES TO THE FINANCIAL STATEMENTS
Accrued Grants: The Department administers a diverse array of financial assistance programs and projects concerned with the 

entire spectrum of business and economic development efforts that promote activities such as expanding U.S. exports, creating 

jobs, contributing to economic growth, developing innovative technologies, promoting minority entrepreneurship, protecting coastal 

oceans, providing weather services, managing worldwide environmental data, and using telecommunications and information 

technologies to better provide public services. Disbursements of funds under the Department’s grant programs are generally 

made when requested by recipients. These drawdown requests may be fulfilled before recipients make the expenditures under 

the grant. When the Department has disbursed funds but the recipient has not yet incurred expenses, these disbursements are 

recorded as advances to the recipient. If a recipient, however, has expenditures under the grant as of September 30 that have 

not been advanced by the Department as of September 30, such amounts are recorded as grant expenses and Accrued Grants 

as of September 30. 

Capital Lease Liabilities: Capital leases are leases for property, plant, and equipment that transfer substantially all the benefits 

and risks of ownership to the Department.

Contingent Liabilities and Contingencies: A contingency is an existing condition, situation, or set of circumstances involving 

uncertainty as to possible gain or loss. The uncertainty will ultimately be resolved when one or more future events occur or fail 

to occur. A contingent liability (included in Other Liabilities) and an expense are recognized when a past event has occurred, and 

a future outflow or other sacrifice of resources is measurable and probable. A contingency is considered probable when the 

future confirming event or events are more likely than not to occur, with the exception of pending or threatened litigation and 

unasserted claims. For pending or threatened litigation and unasserted claims, a contingency is considered probable when the 

future confirming event or events are likely to occur. A contingency is disclosed in the Notes to the Financial Statements if any 

of the conditions for liability recognition are not met and there is at least a reasonable possibility that a loss or an additional loss 

may have been incurred. A contingency is considered reasonably possible when the chance of the future confirming event or 

events occurring is more than remote but less than probable. A contingency is not recognized as a contingent liability and an 

expense nor disclosed in the Notes to the Financial Statements when the chance of the future event or events occurring is remote. 

A contingency is considered remote when the chance of the future event or events occurring is slight.

Liabilities Not Covered by Budgetary Resources: These are liabilities, included in the Department’s Consolidated Balance Sheets, 

for which actions are needed before budgetary resources can be provided. The Department anticipates that liabilities not covered 

by budgetary resources will be funded from future budgetary resources when required. These amounts are detailed in Note 16.

NTIA’s Public Safety Trust Fund has assets on hand as of September 30 for its Liability to General Fund of the U.S. Government 

for Deficit Reduction; however, budgetary resources will need to be apportioned by OMB in order for the Public Safety Trust Fund 

to transfer funds against this liability.

Under accrual accounting, the expense for annual leave is recognized when the leave is earned. However, for most of the 

Department’s fund groups, appropriations are provided to pay for the leave when it is taken. As a result, budgetary resources do 

not cover a large portion of the Department’s Accrued Annual Leave liability.

The Department generally receives budgetary resources for its Federal Employee Benefits liability when needed for disbursements.

Due to USPTO’s funding structure, budgetary resources do not cover a portion of its Unearned Revenue. The Unearned Revenue 

reported in Note 16 is the portion of USPTO’s Unearned Revenue that is considered not covered by budgetary resources. USPTO’s 

Unearned Revenue is a liability for revenue received before the patent or trademark work has been completed. Budgetary resources 

derived from the current reporting period’s revenue have been partially used to cover the current reporting period’s costs associated 

FY 2017 AGENCY FINANCIAL REPORT | 6 3

NOTES TO THE FINANCIAL STATEMENTS
with unearned revenue from a prior reporting period. In addition, the current patent fee structure sets low initial application fees 

that are followed by income from maintenance fees as a supplement in later years to cover the full cost of the patent examination 

and issuance processes. The combination of these funding circumstances requires USPTO to obtain additional budgetary resources 

to cover its liability for unearned revenue.

O Commitments

Commitments are preliminary actions that will ultimately result in an obligation to the U.S. government if carried through, such 

as purchase requisitions, estimated travel orders, or unsigned contracts/grants. Major long-term commitments are disclosed in 

Note 17, Commitments and Contingencies. 

P Net Position

Net Position is the residual difference between assets and liabilities, and is composed of Unexpended Appropriations and 

Cumulative Results of Operations. 

Unexpended Appropriations represent the total amount of unexpended budget authority that is classified as appropriations, both 

obligated and unobligated. Unexpended Appropriations is increased for Appropriations Received, is reduced for Appropriations 

Used, and is adjusted for other changes in appropriations, such as transfers and rescissions. Cumulative Results of Operations 

is the net result of the Department’s operations since inception.

Q Revenues and Other Financing Sources

Appropriations Used: Most of the Department’s operating funds are provided by congressional appropriations of budget authority. 

The Department receives appropriations on annual, multiple-fiscal year, and no-year bases. Upon expiration of an annual or multiplefiscal year appropriation, the obligated and unobligated balances retain their fiscal year identity, and are maintained separately 

within an expired account. The unobligated balances can be used to make legitimate obligation adjustments, but are otherwise 

not available for expenditures. Annual and multiple-fiscal year appropriations are canceled at the end of the fifth fiscal year after 

expiration. No-year appropriations do not expire. Appropriations of budget authority are recognized as used when costs are 

incurred, for example, when goods and services are received or benefits and grants are provided. 

Exchange and Non-exchange Revenue: The Department classifies revenue as either exchange revenue or non-exchange revenue. 

Exchange revenue is derived from transactions in which both the federal government and the other party receive value, including 

processing patents and registering trademarks, the sale of weather data, nautical charts, and navigation information, reimbursable 

revenue, and other sales of goods and services. Exchange revenue is presented in the Department’s Consolidated Statements of 

Net Cost. Non-exchange revenue is derived from the federal government’s sovereign right to demand payment; and, for example, 

includes revenue of NOAA’s Damage Assessment and Restoration Revolving Fund as reported and described in Note 22, Funds 

from Dedicated Collections. Non-exchange revenue is recognized when a specifically identifiable, legally enforceable claim to 

resources arises, and to the extent that collection is probable and the amount is reasonably estimable. Non-exchange revenue 

is not considered to reduce the cost of the Department’s operations and is therefore reported in the Consolidated Statements of 

Changes in Net Position as a financing source.

In certain cases, law or regulation sets the prices charged by the Department, and, for program and other reasons, the Department 

may not receive full cost (e.g., the processing of patents and registering of trademarks, and the sale of weather data, nautical 

charts, and navigation information). Prices set for products and services offered through the Department’s working capital funds 

are intended to recover the full costs incurred by these activities. 

6 4 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

NOTES TO THE FINANCIAL STATEMENTS
Imputed Financing Sources from Cost Absorbed by Others (and Related Imputed Costs): In certain cases, operating costs of the Department are paid for in full or in part by funds appropriated to other federal entities. For example, Civil Service Retirement System 

pension benefits for applicable Departmental employees are paid for in part by the U.S. Office of Personnel Management (OPM), 

and certain legal judgments against the Department are paid for in full from the Judgment Fund maintained by Treasury. 

The Department includes applicable imputed costs in the Consolidated Statements of Net Cost. In addition, Imputed Financing 

Sources from Cost Absorbed by Others is recognized in the Consolidated Statements of Changes in Net Position as an other 

financing source (non-exchange).

Transfers In/(Out): Intragovernmental transfers, for example, of budgetary resources, or of assets without reimbursement that 

are recorded at book value, are reported in the Consolidated Statements of Changes in Net Position.

R Employee Retirement Benefits

Civil Service Retirement System (CSRS) and Federal Employees Retirement System (FERS): Most employees of the Department 

participate in either the CSRS or FERS defined-benefit pension plans. FERS went into effect on January 1, 1987. FERS and Social 

Security automatically cover most employees hired after December 31, 1983. Employees hired prior to January 1, 1984 could 

elect to either join FERS and Social Security, or remain in CSRS.

The Department is not responsible for and does not report CSRS or FERS assets, accumulated plan benefits, or liabilities applicable 

to its employees. OPM, which administers the plans, is responsible for and reports these amounts.

For CSRS-covered regular employees, the Department was required to make contributions to the plan equal to 7 percent of an 

employee’s basic pay. Employees contributed 7 percent of basic pay. For each fiscal year, OPM calculates the U.S. government’s 

service cost for covered employees, which is an estimate of the amount of funds, that, if accumulated annually and invested over 

an employee’s career, would be enough to pay that employee’s future benefits. Since the U.S. government’s estimated service 

cost exceeds contributions made by employer agencies and covered employees, this plan is not fully funded by the Department and 

its employees. The Department has recognized an imputed cost, and an imputed financing source from cost absorbed by others, 

for the difference between the estimated service cost and the contributions made by the Department and its covered employees. 

Effective October 1, 2014, for FERS-covered regular employees hired prior to January 1, 2013, the Department was required to 

make contributions of 13.2 percent of basic pay. Employees contributed 0.8 percent of basic pay. For regular employees hired 

after December 31, 2012, as defined in Public Law 112-96, Section 5001, the Department was required to make contributions of 

11.1 percent of basic pay. Regular employees hired between December 31, 2012 and December 31, 2013 contributed 3.1 percent 

of basic pay. Regular employees hired after December 31, 2013 contributed 4.4 percent of basic pay. For each fiscal year, OPM 

calculates the U.S. government’s service cost for covered employees. Since the U.S. government’s estimated service cost 

exceeds contributions made by employer agencies and covered employees, this plan was not fully funded by the Department and 

its employees. The Department has recognized an imputed cost, and an imputed financing source from cost absorbed by others, 

for the difference between the estimated service cost and the contributions made by the Department and its covered employees. 

Employees participating in FERS are covered under the Federal Insurance Contributions Act, for which the Department contributes 

a matching amount to the Social Security Administration. 

NOAA Corps Retirement System: Active-duty officers of the NOAA Corps are covered by the NOAA Corps Retirement System, 

an unfunded, pay-as-you-go, defined-benefit plan administered by the Department. Participants do not contribute to this plan. 

Plan benefits are based primarily on years of service and compensation. Participants, as of September 30, 2017, included 313 active 

FY 2017 AGENCY FINANCIAL REPORT | 6 5

NOTES TO THE FINANCIAL STATEMENTS
duty officers, 382 nondisability retiree annuitants, 14 disability retiree annuitants, and 60 surviving families. Key provisions include 

voluntary nondisability retirement after 20 years of active service, disability retirement, optional survivor benefits, Consumer Price 

Index (CPI) optional survivor benefits, and CPI adjustments for benefits. 

Foreign Service Retirement and Disability System, and the Foreign Service Pension System: Foreign Commercial Officers are covered 

by the Foreign Service Retirement and Disability System and the Foreign Service Pension System. ITA makes contributions 

to the systems based on a percentage of an employee’s pay. Both systems are multi-employer plans administered by the 

U.S. Department of State. The Department is not responsible for and does not report plan assets, accumulated plan benefits, or 

liabilities applicable to its employees. The U.S. Department of State, which administers the plan, is responsible for and reports 

these amounts. 

Thrift Savings Plan (TSP): Employees covered by CSRS and FERS are eligible to contribute to the U.S. government’s TSP, administered 

by the Federal Retirement Thrift Investment Board. A TSP account is automatically established for FERS-covered employees, and 

the Department makes a mandatory contribution of one percent of basic pay. The Department also makes matching contributions of 

up to four percent of basic pay for FERS-covered employees. FERS and CSRS-covered employees have no limit on the percentage 

of pay contributed to their TSP account. However, the total employee regular contribution for 2017 and 2016 may not exceed the 

IRS limit of $18 thousand. The Department makes no matching contributions for CSRS-covered employees. TSP participants age 

50 or older who are already contributing the maximum amount of contributions for which they are eligible may also make catch-up 

contributions, subject to the IRS dollar limit for catch-up contributions.

Federal Employees Health Benefit (FEHB) Program: Most Departmental employees are enrolled in the FEHB Program, which provides 

post-retirement health benefits. OPM administers this program and is responsible for the reporting of liabilities. Employer agencies 

and covered employees are not required to make any contributions for post-retirement health benefits. OPM calculates the U.S. 

government’s service cost for covered employees each fiscal year. The Department has recognized the entire service cost of 

these post-retirement health benefits for covered employees as an imputed cost, and an imputed financing source from cost 

absorbed by others.

NOAA Corps Post-retirement Health Benefits: Active-duty officers of the NOAA Corps are covered by the health benefits program 

for the NOAA Corps, which provides post-retirement health benefits. This is a pay-as-you-go plan administered by the Department. 

Participants do not make any contributions to this plan. 

Federal Employees’ Group Life Insurance (FEGLI) Program: Most Department employees are entitled to participate in the FEGLI 

Program. Participating employees can obtain basic term life insurance, with the employee paying two-thirds of the cost and the 

Department paying one-third. Additional coverage is optional, to be paid fully by the employee. The basic life coverage may be 

continued into retirement if certain requirements are met. OPM administers this program and is responsible for the reporting 

of liabilities. For each fiscal year, OPM calculates the U.S. government’s service cost for the post-retirement portion of basic life 

coverage. Because the Department’s contributions to the basic life coverage are fully allocated by OPM to the pre-retirement 

portion of coverage, the Department has recognized the entire service cost of the post-retirement portion of basic life coverage 

as an imputed cost and an imputed financing source from cost absorbed by others.

6 6 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

NOTES TO THE FINANCIAL STATEMENTS
S Use of Estimates

The preparation of financial statements requires the Department to make estimates and assumptions that affect these financial 

statements. Actual results may differ from those estimates. 

T Tax Status

The Department is not subject to federal, state, or local income taxes. Accordingly, no provision for income taxes is recorded.

U Fiduciary Activities

Fiduciary activities are the collection or receipt, and the management, protection, accounting, and disposition by the federal 

government of cash or other assets in which non-federal individuals or entities have an ownership interest that the federal 

government must uphold. Fiduciary cash and other assets are not assets of the federal government, and, accordingly, are not 

recognized in the Department’s financial statements.

The Department’s fiduciary activities consist of the following:

The Patent Cooperation Treaty authorizes USPTO to collect patent filing and search fees on behalf of the World Intellectual Property 

Organization (WIPO), European Patent Office, Korean Intellectual Property Office, Russian Intellectual Property Organization, Israeli 

Patent Office, Japanese Patent Office, Intellectual Property Office of Singapore, and Australian Patent Office from U.S. citizens 

requesting an international patent. The Madrid Protocol Implementation Act authorizes USPTO to collect trademark application 

fees on behalf of the International Bureau of WIPO from U.S. citizens requesting an international trademark. These fiduciary 

activities are reported in Note 21.

FY 2017 AGENCY FINANCIAL REPORT | 6 7

NOTES TO THE FINANCIAL STATEMENTS
NOTE 2. FUND BALANCE WITH TREASURY

Fund Balance with Treasury, by type, is as follows:

FY 2017 FY 2016

General Funds $ 9,109,913 $ 8,816,535

Revolving Funds

NTIA’s Network Construction Fund (Note 22) 5,574,439 6,642,633

Other Revolving Funds 849,618 883,590

Special Funds

NTIA’s Digital Television Transition and Public Safety Fund (Note 22) 8,821,057 8,822,531

USPTO’s Patent and Trademark Surcharge Fund (Note 22) 233,529 233,529

Other Special Funds 133,158 128,741

Deposit Funds 148,538 146,849

Trust Funds

NTIA’s Public Safety Trust Fund (Note 22) 145,427 176,870

Other Trust Funds 1,528 2,802

Other Fund Types 13,733 17,975

Total $ 25,030,940 $ 25,872,055

Status of Fund Balance with Treasury is as follows:

FY 2017 FY 2016

Reduction of Budgetary Resources

Not Available

Digital Television Transition and Public Safety Fund $ 8,807,394 $ 8,807,394

Temporarily Precluded from Obligation 952,159 974,270

Unobligated Balance

Available 7,519,504 8,632,970

Unavailable 613,380 550,451

Obligated Balance Not Yet Disbursed 6,745,489 6,510,831

Non-budgetary

Patent and Trademark Surcharge Fund 233,529 233,529

Deposit Funds, and General Fund Receipt Accounts 159,485 162,610

Total $ 25,030,940 $ 25,872,055

Unobligated Balance and Obligated Balance Not Yet Disbursed amounts reported above do not agree with related amounts included 

in the Status of Budgetary Resources and Change in Unpaid Obligated Balance, Net sections of the Combined Statements of 

Budgetary Resources (SBR), respectively, primarily because the budgetary amounts reported in the SBR are also supported by 

amounts other than Fund Balance With Treasury—Investment; and Borrowing Authority.

See Note 19, Combined Statements of Budgetary Resources, for legal arrangements affecting the Department’s use of Fund 

Balance with Treasury for FY 2017 and FY 2016.

See Note 22, Funds from Dedicated Collections, for more information regarding the Network Construction Fund, the Digital 

Television Transition and Public Safety Fund, the Patent and Trademark Surcharge Fund, the USPTO Salaries and Expenses Fund, 

and the Public Safety Trust Fund.

6 8 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

NOTES TO THE FINANCIAL STATEMENTS
NOTE 3. INVESTMENT 

FY 2017

Investment in 

Federal Securities Cost

Amortization 

Method

Amortized 

Discount

Interest 

Receivable

Investment, 

Net

Other 

Adjustments

Market Value 

Disclosure

Intragovernmental

Non-marketable

Market-based $ 333,013 Interest Method $ 52 $ 1,041 $ 334,106 $ – $ 334,106

FY 2016

Investment in 

Federal Securities Cost

Amortization 

Method

Amortized 

Discount

Interest 

Receivable

Investment, 

Net

Other 

Adjustments

Market Value 

Disclosure

Intragovernmental

Non-marketable

Market-based $ 333,013 Interest Method $ – $ – $ 333,013 $ – $ 332,961

NOTE 4. ACCOUNTS RECEIVABLE, NET 

FY 2017

Accounts 

Receivable, 

Gross

Allowance for 

Uncollectible 

Accounts

Accounts 

Receivable, 

Net

Intragovernmental $ 100,522 $ – $ 100,522

With the Public $ 56,580 $ (10,204) $ 46,376

FY 2016

Accounts 

Receivable, 

Gross

Allowance for 

Uncollectible 

Accounts

Accounts 

Receivable, 

Net

Intragovernmental $ 107,394 $ – $ 107,394

With the Public $ 56,490 $ (10,411) $ 46,079

FY 2017 AGENCY FINANCIAL REPORT | 6 9

NOTES TO THE FINANCIAL STATEMENTS
NOTE 5. CASH 

FY 2017 FY 2016

Cash Not Yet Deposited with Treasury $ 5,359 $ 5,580

Imprest Funds 338 406

Other Cash 39 –

Total $ 5,736 $ 5,986

Cash Not Yet Deposited with Treasury primarily represents patent and trademark fees that were not processed as of September 30, 

2017 and 2016, due to the lag time between receipt and initial review. Certain bureaus maintain other cash for operational necessity, 

such as law enforcement activities and for environments that do not permit the use of electronic payments. 

NOTE 6. DIRECT LOANS AND LOAN GUARANTEES, NET

The Department operates the following direct loan and loan guarantee programs:

Direct Loan Programs:

EDA Drought Loan Portfolio

EDA Economic Development Revolving Fund

NOAA Alaska Purse Seine Fishery Buyback Loans

NOAA Bering Sea and Aleutian Islands Non-Pollock Buyback Loans

NOAA Bering Sea Pollock Fishery Buyback

NOAA Coastal Energy Impact Program (CEIP)

NOAA Crab Buyback Loans

NOAA Federal Gulf of Mexico Reef Fish Buyback Loans1

NOAA Fisheries Finance Individual Fishing Quota (IFQ) Loans

NOAA Fisheries Finance Traditional Loans

NOAA Fisheries Loan Fund

NOAA New England Groundfish Buyback Loans1

NOAA New England Lobster Buyback Loans1

NOAA Pacific Groundfish Buyback Loans

Loan Guarantee Programs:

EDA Economic Development Revolving Fund

EDA Innovation in Manufacturing Loan Guarantees1

NOAA Fishing Vessel Obligation Guarantee (FVOG) Program

1 No loans have been issued under these programs as of September 30, 2017. 

NOAA’s Fisheries Finance Loan programs provide direct loans for certain fisheries costs, including vessels, shoreside facilities, 

aquaculture, and Individual Fishing Quota. Vessel financing is available for the purchase of used vessels or the reconstruction of 

vessels. Refinancing is available for existing debt obligations. The purpose of these loan programs is to contribute to stable fisheries 

and fishing communities, and ensure that fisheries are sustainable economic resources. NOAA’s various buyback loan programs 

7 0 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

NOTES TO THE FINANCIAL STATEMENTS
address excess fishing capacity which decreases fisheries earnings, complicates fisheries management, and imperils fisheries 

conservation. Buyback loans are issued to fisheries to permanently remove vessels and/or permits and thus lower fishing effort 

in overcapitalized fisheries. Loans are repaid from fees collected on the ex-vessel value of the catch in the fishery.

EDA currently has four loan programs: (1) public works loans, which the majority of these loans are to utility companies, mainly 

water companies, and a few loans to children’s centers; (2) grant and civil debt loans, which are being paid back either because 

grants were misused or because excess money was disbursed; (3) drought loans made to water districts; and (4) manufacturing 

innovation loan guarantees for obligations to small or medium-sized manufacturers for the use or production of innovative technologies.

The net assets for the Department’s loan programs consist of:

FY 2017 FY 2016

Direct Loans Obligated Prior to FY 1992 $ 4,545 $ 6,014

Direct Loans Obligated After FY 1991 427,070 447,938

Defaulted Guaranteed Loans from Pre-FY 1992 Guarantees 4 4

Total $ 431,619 $ 453,956

Direct Loans Obligated Prior to FY 1992 consist of:

FY 2017

Direct 

Loan Program

Loans 

Receivable, 

Gross

Interest 

Receivable

Allowance for 

Loan Losses

Value of Assets 

Related to 

Direct Loans, 

Net

CEIP $ 17,634 $ 4,413 $ (18,015) $ 4,032

Drought Loan Portfolio 288 – – 288

Economic Development Revolving Fund 222 5 (2) 225

Fisheries Loan Fund 148 16 (164) –

Total $ 18,292 $ 4,434 $ (18,181) $ 4,545

FY 2016

Direct 

Loan Program

Loans 

Receivable, 

Gross

Interest 

Receivable

Allowance for 

Loan Losses

Value of Assets 

Related to 

Direct Loans, 

Net

CEIP $ 18,435 $ 6,004 $ (20,343) $ 4,096

Drought Loan Portfolio 1,574 – – 1,574

Economic Development Revolving Fund 341 6 (3) 344

Fisheries Loan Fund 148 16 (164) –

Total $ 20,498 $ 6,026 $ (20,510) $ 6,014

FY 2017 AGENCY FINANCIAL REPORT | 7 1

NOTES TO THE FINANCIAL STATEMENTS
Direct Loans Obligated After FY 1991 consist of: 

FY 2017

Direct Loan Program

Loans 

Receivable, 

Gross

Interest 

Receivable

Foreclosed 

Property

Allowance for 

Subsidy Cost

(Present Value)

Value of Assets 

Related to 

Direct Loans, Net

Alaska Purse Seine Fishery Buyback Loans $ 9,051 $ 1 $ – $ 728 $ 9,780

Bering Sea and Aleutian Islands 

Non-Pollock Buyback Loans 29,978 83 – 4,455 34,516

Bering Sea Pollock Fishery Buyback 15,802 15 – 804 16,621

Crab Buyback Loans 69,259 1,511 – 9,767 80,537

Fisheries Finance IFQ Loans 17,260 144 – 707 18,111

Fisheries Finance Traditional Loans 222,707 1,333 – 16,418 240,458

Pacific Groundfish Buyback Loans 23,266 40 – 3,741 27,047

Total $ 387,323 $ 3,127 $ – $ 36,620 $ 427,070

FY 2016

Direct Loan Program

Loans 

Receivable, 

Gross

Interest 

Receivable

Foreclosed 

Property

Allowance for 

Subsidy Cost

(Present Value)

Value of Assets 

Related to 

Direct Loans, Net

Alaska Purse Seine Fishery Buyback Loans $ 9,279 $ 13 $ – $ 767 $ 10,059

Bering Sea and Aleutian Islands 

Non-Pollock Buyback Loans 30,981 63 – 4,950 35,994

Bering Sea Pollock Fishery Buyback 22,144 4 – 1,068 23,216

Crab Buyback Loans 71,501 1,242 – 10,403 83,146

Fisheries Finance IFQ Loans 19,928 180 – 1,077 21,185

Fisheries Finance Traditional Loans 230,817 1,312 3,071 8,960 244,160

Pacific Groundfish Buyback Loans 24,974 65 – 5,139 30,178

Total $ 409,624 $ 2,879 $ 3,071 $ 32,364 $ 447,938

New Disbursements of Direct Loans (Post-FY 1991):

Direct Loan Program FY 2017 FY 2016

Fisheries Finance IFQ Loans $ 1,441 $ 1,119

Fisheries Finance Traditional Loans 16,326 46,497

Total $ 17,767 $ 47,616

7 2 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

NOTES TO THE FINANCIAL STATEMENTS
Subsidy Expense for Direct Loans by Program and Component:

Subsidy Expense for New Disbursements of Direct Loans:

FY 2017

Direct Loan Program

Interest Rate

Differential Defaults

Fees and 

Other

Collections Other Total

Fisheries Finance IFQ Loans $ (279) $ 2 $ (7) $ 233 $ (51)

Fisheries Finance Traditional Loans (2,261) 157 (83) 2,049 (138)

Total $ (2,540) $ 159 $ (90) $ 2,282 $ (189)

FY 2016

Direct Loan Program

Interest Rate

Differential Defaults

Fees and 

Other

Collections Other Total

Fisheries Finance IFQ Loans $ (225) $ 1 $ (4) $ 199 $ (29)

Fisheries Finance Traditional Loans (6,756) 295 (229) 4,520 (2,170)

Total $ (6,981) $ 296 $ (233) $ 4,719 $ (2,199)

Reestimates:

FY 2017

Direct Loan Program

Technical

Reestimates

Alaska Purse Seine Fishery Buyback Loans $ (23)

Bering Sea and Aleutian Islands Non-Pollock Buyback Loans 121

Bering Sea Pollock Fishery Buyback (14)

Crab Buyback Loans 5,655

Fisheries Finance IFQ Loans 54

Fisheries Finance Traditional Loans (11,884)

Pacific Groundfish Buyback Loans 1,113

Total $ (4,978)

FY 2016

Direct Loan Program

Technical

Reestimates

Alaska Purse Seine Fishery Buyback Loans $ (22)

Bering Sea and Aleutian Islands Non-Pollock Buyback Loans (496)

Bering Sea Pollock Fishery Buyback 165

Crab Buyback Loans 2,556

Fisheries Finance IFQ Loans 1,867

Fisheries Finance Traditional Loans 17,884

Pacific Groundfish Buyback Loans 90

Total $ 22,044

FY 2017 AGENCY FINANCIAL REPORT | 7 3

NOTES TO THE FINANCIAL STATEMENTS
There were no interest rate reestimates for FY 2017 and FY 2016.

Total Direct Loan Subsidy Expense:

Direct Loan Program FY 2017 FY 2016

Alaska Purse Seine Fishery Buyback Loans $ (23) $ (22)

Bering Sea and Aleutian Islands Non-Pollock 

Buyback Loans 121 (496)

Bering Sea Pollock Fishery Buyback (14) 165

Crab Buyback Loans 5,655 2,556

Fisheries Finance IFQ Loans 3 1,838

Fisheries Finance Traditional Loans (12,022) 15,714

Pacific Groundfish Buyback Loans 1,113 90

Total $ (5,167) $ 19,845

Subsidy Rates for Direct Loans by Program and Component:

Budget Subsidy Rates for Direct Loans for the Current Fiscal-year’s Cohorts:

FY 2017

Direct Loan Program

Interest Rate

Differential Defaults

Fees and 

Other 

Collections Other Total

Fisheries Finance IFQ Loans (21.74) % 0.08 % (0.69) % 22.13 % (0.22) %

Fisheries Finance Traditional Loans (14.32) % 0.94 % (0.52) % 13.54 % (0.36) %

FY 2016

Direct Loan Program

Interest Rate

Differential Defaults

Fees and 

Other 

Collections Other Total

Fisheries Finance IFQ Loans (18.29) % 0.14 % (0.41) % 15.29 % (3.27) %

Fisheries Finance Traditional Loans (11.71) % 1.06 % (0.49) % 8.09 % (3.05) %

The budget subsidy rates disclosed pertain only to the reporting period’s cohorts. These rates cannot be applied to the new 

disbursements of direct loans during the reporting period to yield the subsidy expense. The subsidy expense for new disbursements 

of direct loans for the reporting period could result from disbursements of loans from both the reporting period’s cohorts and prior 

fiscal years’ cohorts. The subsidy expense for the reporting period may also include modifications and reestimates.

7 4 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

NOTES TO THE FINANCIAL STATEMENTS
Schedule for Reconciling Allowance for Subsidy Cost (Post-FY 1991 Direct Loans):

FY 2017 FY 2016

Beginning Balance of the Allowance for Subsidy Cost $ 32,364 $ 65,401

Add Subsidy Expense for Disbursements of Direct Loans 

During the Year by Component:

 Interest Rate Differential 2,540 6,981

 Defaults (159) (296)

 Fees and Other Collections 90 233

 Other (2,282) (4,719)

Total of the above Subsidy Expense Components 189 2,199

Adjustments:

 Fees Received (103) (269)

 Foreclosed Property Acquired – (2,500)

 Loans Written Off (7) (62)

 Subsidy Allowance Amortization (869) (10,367)

 Other 68 6

Total of Adjustments (911) (13,192)

Ending Balance of the Allowance for Subsidy Cost Before Reestimates 31,642 54,408

Add or Subtract Subsidy Reestimates by Component:

 Technical Reestimates 4,978 (22,044)

Ending Balance of the Allowance for Subsidy Cost $ 36,620 $ 32,364

Defaulted Guaranteed Loans from Pre-FY 1992 Guarantees:

FY 2017

Loan Guarantee

Program

Defaulted

Guaranteed Loans

Receivable, Gross

Interest

Receivable

Allowance for 

Loan Losses

Value of Assets 

Related to Defaulted

Guaranteed Loans

Receivable, Net

FVOG Program $ 7,318 $ 1 $ (7,315) $ 4

FY 2016

Loan Guarantee

Program

Defaulted

Guaranteed Loans

Receivable, Gross

Interest

Receivable

Allowance for 

Loan Losses

Value of Assets 

Related to Defaulted

Guaranteed Loans

Receivable, Net

FVOG Program $ 7,318 $ 1 $ (7,315) $ 4

FY 2017 AGENCY FINANCIAL REPORT | 7 5

NOTES TO THE FINANCIAL STATEMENTS
Administrative Expenses: 

Administrative expenses in support of the Department’s direct loan and loan guarantee programs consist of: 

Direct Loan Program FY 2017 FY 2016

Drought Loan Portfolio and 

Economic Development Revolving Fund $ 250 $ 2,164

NOAA Direct Loan Programs 3,113 3,435

Total $ 3,363 $ 5,599

Loan Guarantee Program FY 2017 FY 2016

FVOG Program $ 68 $ 71

NOTE 7. INVENTORY, MATERIALS, AND SUPPLIES, NET

Category Cost Flow Assumption FY 2017 FY 2016

Inventory

Items Held for Current Sale

NIST Standard Reference Materials Average $ 25,603 $ 23,780

Other Various 3 146

Allowance for Excess, Obsolete, 

and Unserviceable Items – (96)

Total Inventory, Net 25,606 23,830

Materials and Supplies

Items Held for Use

NOAA’s National Logistics Support Center Weighted-average 50,097 59,234

Other Various 6,012 6,029

Items Held for Repair

NOAA’s National Reconditioning Center Weighted-average 33,005 30,774

Allowance for Excess, Obsolete, 

and Unserviceable Items (6,657) (5,773)

Total Materials and Supplies, Net 82,457 90,264

Total $ 108,063 $ 114,094

NIST’s Standard Reference Materials Program provides reference materials for quality assurance of measurements, while 

NOAA’s Materials and Supplies are primarily repair parts for weather forecasting equipment. Items held for repair are valued 

at the direct method. The cost of items held in repair is the issue cost, which is the weighted average of the procurement 

costs for each line, adjusted by the cost to repair the item.

7 6 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

NOTES TO THE FINANCIAL STATEMENTS
NOTE 8. GENERAL PROPERTY, PLANT, AND EQUIPMENT, NET

FY 2017

Category

Useful Life

(Years) Cost

Accumulated

Depreciation Net Book Value

Land N/A $ 16,628 $ – $ 16,628 

Land Improvements 30-40 2,996 (1,931) 1,065 

Structures, Facilities, and 

Leasehold Improvements 2-50 2,481,373 (945,442) 1,535,931 

Satellites/Weather Systems 

Personal Property 2-25 12,179,831 (5,540,563) 6,639,268 

Other Personal Property 2-30 2,043,943 (1,306,831) 737,112 

Internal Use Software 3-15 1,498,376 (1,088,742) 409,634 

Assets Under Capital Lease 3-40 10,475 (7,849) 2,626 

Construction-in-progress N/A 5,685,616 – 5,685,616 

Internal Use Software in 

Development N/A 375,117 – 375,117 

Total $ 24,294,355 $ (8,891,358) $ 15,402,997 

FY 2016

Category

Useful Life

(Years) Cost

Accumulated

Depreciation Net Book Value

Land N/A $ 16,632 $ – $ 16,632

Land Improvements 30-40 2,996 (1,839) 1,157

Structures, Facilities, and 

Leasehold Improvements 2-50 2,373,010 (860,191) 1,512,819

Satellites/Weather Systems 

Personal Property 3-25 6,657,547 (5,198,820) 1,458,727

Other Personal Property 2-30 2,076,916 (1,308,550) 768,366

Internal Use Software 3-15 1,344,872 (940,437) 404,435

Assets Under Capital Lease 3-40 18,905 (12,838) 6,067

Construction-in-progress N/A 9,739,906 – 9,739,906

Internal Use Software in 

Development N/A 226,082 – 226,082

Total $ 22,456,866 $ (8,322,675) $ 14,134,191

FY 2017 AGENCY FINANCIAL REPORT | 7 7

NOTES TO THE FINANCIAL STATEMENTS
NOTE 9. OTHER ASSETS

FY 2017 FY 2016

With the Public

Advances and Prepayments $ 36,703 $ 68,737

Note Receivable 1,286 1,349

Bibliographic Database, Net 3,859 5,166

General PP&E Permanently Removed 

but Not Yet Disposed

4,528 261

Other 1,066 1,354

Total $ 47,442 $ 76,867

The Bibliographic Database relates to NTIS scientific and technical information used to prepare products and services 

for sale. The database is stated at capitalized costs of $77.6 million and $77.1 million, less accumulated amortization of 

$73.7 million and $71.9 million, as of September 30, 2017 and 2016, respectively.

NOTE 10. NON-ENTITY ASSETS

The assets that are not available for use in the Department’s operations, included in the Department’s Consolidated Balance 

Sheets, are summarized below:

FY 2017 FY 2016

Intragovernmental

Fund Balance with Treasury $ 142,907 $ 139,120

Accounts Receivable 9,888 3,748

Investment 334,106 333,013

Total Intragovernmental 486,901 475,881

With the Public

Cash 1,321 1,770

Accounts Receivable, Net 818 12,652

Direct Loans and Loan 

Guarantees, Net 288 1,574

Other 1,290 1,353

Total Non-Entity Assets 490,618 493,230

Total Entity Assets 41,983,877 40,754,062

Total Assets $ 42,474,495 $ 41,247,292

7 8 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

NOTES TO THE FINANCIAL STATEMENTS
NOTE 11. DEBT TO TREASURY

FY 2017

Loan Program

Beginning

Balance

Net Borrowings

(Repayments)

Ending

Balance

Direct Loan Program

Fisheries Finance, Financing Account $ 475,207 $ (44,894) $ 430,313

Maturity dates range from September 2020 to September 2052, and interest rates range from 1.55 to 6.13 percent.

FY 2016

Loan Program

Beginning

Balance

Net Borrowings

(Repayments)

Ending

Balance

Direct Loan Program

Fisheries Finance, Financing Account $ 504,704 $ (29,497) $ 475,207

NOTE 12. OTHER LIABILITIES

FY 2017 FY 2016

Current Portion

Non-current 

Portion Total Total

Intragovernmental

Accrued FECA Liability $ 17,804 $ 8,623 $ 26,427 $ 28,553

Accrued Benefits 55,222 – 55,222 53,141

Downward Subsidy Reestimates 

Payable to Treasury 9,888 – 9,888 3,748

Resources Payable to Treasury 632 1,290 1,922 4,503

Other 193 – 193 234

Total $ 83,739 $ 9,913 $ 93,652 $ 90,179

With the Public

ITA Foreign Service Nationals’ 

Voluntary Separation Pay $ 2,647 $ 8,977 $ 11,624 $ 11,496

Contingent Liabilities (Note 17) 39,472 – 39,472 22,257

Employment-related 1,512 – 1,512 1,433

Other 5,651 – 5,651 2,212

Total $ 49,282 $ 8,977 $ 58,259 $ 37,398

The Current Portion represents liabilities expected to be paid by September 30, 2018, while the Non-current Portion 

represents liabilities expected to be paid after September 30, 2018.

FY 2017 AGENCY FINANCIAL REPORT | 7 9

NOTES TO THE FINANCIAL STATEMENTS
NOTE 13. FEDERAL EMPLOYEE BENEFITS LIABILITIES

FY 2017 FY 2016

Actuarial FECA Liability $ 200,336 $ 206,611

NOAA Corps Retirement System Liability 644,200 633,000

NOAA Corps Post-retirement Health Benefits Liability 41,400 36,500

Total $ 885,936 $ 876,111

Actuarial FECA Liability: 

Actuarial FECA liability is calculated annually, as of September 30. For discounting projected annual future benefit payments 

to present value, the interest rate assumptions used by DOL were as follows:

FY 2017 FY 2016

Year 1 and Thereafter 2.68% 2.78%

The wage inflation factors (Cost of Living Adjustment) and medical inflation factors (Consumer Price Index – Medical) 

applied to the calculation of projected future benefits, and also used to adjust the methodology’s historical payments to 

current-year constant dollars, were as follows:

FY 2017

Fiscal Year

Cost of Living 

Adjustment

Consumer Price 

Index - Medical

2018 1.22% 3.20%

2019 1.35% 3.52%

2020 1.59% 3.80%

2021 1.99% 3.99%

2022 2.26% 3.91%

FY 2016

Fiscal Year

Cost of Living 

Adjustment

Consumer Price 

Index - Medical

2017 1.31% 2.99%

2018 1.13% 3.09%

2019 1.23% 3.40%

2020 1.45% 3.68%

2021 1.85% 3.87%

8 0 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

NOTES TO THE FINANCIAL STATEMENTS
NOAA Corps Retirement System Liability: 

This liability represents the unfunded actuarial present value of projected plan benefits. The actuarial calculation is 

performed annually, as of September 30. The September 30, 2017 and 2016 actuarial calculations used the following 

economic assumptions:

FY 2017 FY 2016

Discount Rate 3.60% 3.80%

Annual Basic Pay Scale Increases 2.09% 2.21%

Annual Inflation 1.59% 1.71%

Schedule for Reconciling NOAA Corps Retirement System Liability:

A reconciliation of the NOAA Corps Retirement System Liability from the beginning balance to the ending balance, including 

the components of the related pension costs included in the Consolidated Statements of Net Costs, follows:

FY 2017 FY 2016

Beginning Balance – NOAA Corps Retirement System Liability $ 633,000 $ 634,900

Add Pension Costs:

Normal Cost 12,800 12,500

Interest on the Unfunded Liability 23,600 23,600

Actuarial (Gains)/Losses, Net

From Experience (7,500) (11,400)

From Discount Rate Assumption Change 19,200 25,400

From Long-term Assumption Changes

Annual Inflation (10,800) (32,500)

Annual Basic Pay Scale Increases (900) (1,800)

Mortality – 18,600

Withdrawal – (1,100)

Career Pay Increase – (1,500)

Retirement – (8,700)

Total Pension Costs 36,400 23,100 

Subtract Benefit Payments (25,200) (25,000)

Ending Balance – NOAA Corps Retirement System Liability $ 644,200 $ 633,000 

NOAA Corps Post-retirement Health Benefits Liability: 

This liability represents the unfunded actuarial present value of projected post-retirement plan benefits. The actuarial 

calculation is performed annually, as of September 30. The actuarial calculations used the following economic assumptions:

FY 2017 FY 2016

Discount Rate 3.55% 3.77%

Ultimate Medical Trend Rate 4.45% 4.85%

FY 2017 AGENCY FINANCIAL REPORT | 8 1

NOTES TO THE FINANCIAL STATEMENTS
Schedule for Reconciling NOAA Corps Post-retirement Health Benefits Liability:

A reconciliation of the NOAA Corps Post-retirement Health Benefits Liability from the beginning balance to the ending 

balance, including the components of the related post-retirement health benefits costs included in the Consolidated 

Statements of Net Costs, follows:

FY 2017 FY 2016

Beginning Balance – NOAA Corps Post-retirement Health 

Benefits Liability $ 36,500 $ 37,300

Add Health Benefits Costs:

Normal Cost 1,300 1,200

Interest on the Unfunded Liability 1,300 1,400

Actuarial (Gains)/Losses, Net

From Experience 900 700

From Discount Rate Assumption Change 500 600

From Long-term Assumption Changes

Medical Claims and Trend Rate 3,100 (2,100)

Mortality – (300)

Total Health Benefits Costs 7,100 1,500

Subtract Benefit Payments (2,200) (2,300)

Ending Balance – NOAA Corps Post-retirement Health 

Benefits Liability $ 41,400 $ 36,500

 NOTE 14. ENVIRONMENTAL AND DISPOSAL LIABILITIES

FY 2017 FY 2016

Asbestos-related Cleanup Costs $ 72,991 $ 73,820

Nuclear Reactor 60,725 57,342

Pribilof Islands 1,326 1,574

Non-reactor Radiological Facilities 8,330 8,619

Other 1,775 1,745

Total $ 145,147 $ 143,100

8 2 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

NOTES TO THE FINANCIAL STATEMENTS
NOTE 15. LEASES

Capital Leases:

Assets under capital leases are as follows:

FY 2017 FY 2016

Structures, Facilities, and Leasehold Improvements $ 1,942 $ 6,206

Equipment 8,533 12,699

Less: Accumulated Depreciation (7,849) (12,838)

Net Assets Under Capital Leases $ 2,626 $ 6,067

Capital Lease Liabilities are primarily related to NOAA and DM/WCF. NOAA has real property capital leases covering both 

land and buildings. The majority of these leases are for weather forecasting offices, but the leases are also for radar system 

sites, river forecasting centers, and National Weather Service enforcement centers. NOAA’s real property capital leases 

are for 20 years. DM/WCF had a capital lease for equipment that ended in FY 2017. 

Capital Lease Liabilities:

Future payments due under capital leases are as follows:

FY 2017

General PP&E Category

 Fiscal Year Real Property

2018 $ 314

2019 26

Thereafter –

Total Future Lease Payments 340

Less: Imputed Interest (7)

Less: Executory Costs (60)

Net Capital Lease Liabilities $ 273

FY 2017 AGENCY FINANCIAL REPORT | 8 3

NOTES TO THE FINANCIAL STATEMENTS
FY 2016

General PP&E Category

 Fiscal Year Real Property Personal Property Total

2017 $ 314 $ 1,117 $ 1,431

2018 314 – 314

2019 26 – 26

Total Future Lease Payments 654 1,117 1,771

Less: Imputed Interest (39) (16) (55)

Less: Executory Costs (116) – (116)

Net Capital Lease Liabilities $ 499 $ 1,101 $ 1,600

Operating Leases:

Most of the Department’s facilities are rented from GSA, which generally charges rent that is intended to approximate 

commercial rental rates. For federally owned property rented from GSA, the Department generally does not execute 

an agreement with GSA; the Department, however, is normally required to give 120 to 180 days notice to vacate. For 

non-federally owned property rented from GSA, an occupancy agreement is generally executed, and the Department may 

normally cancel these agreements with 120 days notice.

The Department’s (1) estimated real property rent payments to GSA for FY 2018 through FY 2022; and (2) future payments 

due under noncancellable operating leases (non-GSA real property) are as follows:

FY 2017

General PP&E Category

 Fiscal Year

GSA

Real Property

Non-GSA

Real Property

2018 $ 298,615 $ 14,854

2019 301,584 14,176

2020 300,102 14,253

2021 292,026 13,136

2022 286,915 12,473

Thereafter 1 48,829

Total Future Operating Lease Payments $ 117,721

1 Not estimated

8 4 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

NOTES TO THE FINANCIAL STATEMENTS
NOTE 16. LIABILITIES NOT COVERED BY BUDGETARY RESOURCES

The liabilities that are not covered by budgetary resources, included in the Department’s Consolidated Balance Sheets, are 

summarized below:

FY 2017 FY 2016

Intragovernmental

Liability to General Fund of the U.S. Government 

for Deficit Reduction $ 336,188 $ 334,054

Accrued FECA Liability 26,333 28,462

Unearned Revenue 1,112 –

Other 763 5

Total Intragovernmental 364,396 362,521

Accrued Payroll 63,206 57,536

Accrued Annual Leave 309,015 301,462

Federal Employee Benefits 884,845 876,111

Environmental and Disposal Liabilities 145,147 143,100

Contingent Liabilities 39,472 22,257

Capital Lease Liabilities 5 444

Unearned Revenue 563,481 499,196

ITA Foreign Service Nationals’ Voluntary Separation Pay 11,624 11,496

Other 7,281 378

Total Liabilities Not Covered by Budgetary Resources 2,388,472 2,274,501

Total Liabilities Covered by Budgetary Resources 2,330,465 2,462,553

Total Liabilities $ 4,718,937 $ 4,737,054

FY 2017 AGENCY FINANCIAL REPORT | 8 5

NOTES TO THE FINANCIAL STATEMENTS
NOTE 17. COMMITMENTS AND CONTINGENCIES

Commitments:

The Department has entered into long-term contracts for the purchase, construction, and modernization of environmental satellites 

and weather measuring and monitoring systems. A summary of major long-term commitments as of September 30, 2017 is shown 

below.

Major Long-term Commitments:

FY 2017

Description FY 2018 FY 2019 FY 2020 FY 2021 FY 2022 Thereafter Total

Joint Polar Satellite Systems $ 775,777 $ 548,035 $ 445,082 $ 376,061 $ 263,013 $ 478,908 $ 2,886,876

Geostationary Operational 

Environmental Satellites 518,532 408,979 304,056 292,500 292,500 650,196 2,466,763

Satellite System 

Architecture and 

Advanced Planning 4,929 47,734 81,341 132,236 295,886 – 562,126

Space Weather Follow-on 500 33,700 195,000 154,000 89,000 – 472,200

Comprehensive Large 

Array-data Stewardship 

System 53,000 80,974 95,000 95,000 95,000 – 418,974

Satellite Projects, Planning, 

and Analysis 37,185 37,000 37,000 37,000 57,783 – 205,968

Polar Follow-on 179,956 – – – – – 179,956

Cooperative Data and

Rescue Services 500 33,100 33,100 33,100 2,900 9,600 112,300

Weather Service 13,244 5,352 5,405 4,530 4,633 – 33,164

Commercial Weather 

Data Pilot 3,000 3,000 3,000

 

3,000 3,000 – 15,000

Satellite Command and 

Data Acquisition Facility 2,450 2,450 2,450 2,450 2,450 – 12,250

Constellation Observing 

System for Meteorology, 

Ionosphere, and 

Climate - 2 6,100 – – – – – 6,100

Total $ 1,595,173 $ 1,200,324 $ 1,201,434 $ 1,129,877 $ 1,106,165 $ 1,138,704 $ 7,371,677

8 6 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

NOTES TO THE FINANCIAL STATEMENTS
Legal Contingencies: 

The Department is subject to potential liabilities in various administrative proceedings, legal actions, environmental suits, and claims 

brought against it. In the opinion of the Department’s management and legal counsel, the ultimate resolution of these proceedings, 

actions, suits, and claims will not materially affect the financial position or net costs of the Department.

Probable Likelihood of an Adverse Outcome: 

The Department is subject to potential liabilities where adverse outcomes are probable, and claims are approximately 

$39.5 million and $22.3 million as of September 30, 2017 and 2016, respectively. Accordingly, these contingent liabilities were 

included in Other Liabilities on the Consolidated Balance Sheets as of September 30, 2017 and 2016, respectively. For a majority 

of these claims, any amounts ultimately due will be paid out of Treasury’s Judgment Fund. For the claims to be paid by Treasury’s 

Judgment Fund, once the claims are settled or court judgments are assessed relative to the Department, the liability will be removed 

and an Imputed Financing Source From Cost Absorbed by Others will be recognized.

Reasonably Possible Likelihood of an Adverse Outcome: 

The Department and other federal agencies are subject to potential liabilities for a variety of environmental cleanup costs, 

many of which are associated with the Second World War, at various sites within the U.S. Since some of the potential 

liabilities represent claims with no stated amount, the exact amount of total potential liabilities is unknown, but may exceed 

$305.3 million as of September 30, 2017. For these potential liabilities, it is reasonably possible that an adverse outcome will 

result. It is not possible, however, to speculate as to a range of loss. In the absence of a settlement agreement, decree, or 

judgment, there is neither an allocation of response costs between the U.S. government and other potentially responsible 

parties, nor is there an attribution of such costs to or among the federal agencies implicated in the claims. Although the 

Department has been implicated as a responsible party, the U.S. Department of Justice was unable to provide an amount for 

these potential liabilities that is attributable to the Department. Of these potential liabilities, all will be funded by Treasury’s 

Judgment Fund, if any amounts are ultimately due. 

The Department and other federal agencies are subject to other potential liabilities. Since some of the potential liabilities represent 

claims with no stated amount, the exact amount of total potential liabilities is unknown, but may exceed $29.9 million as of 

September 30, 2017. For these potential liabilities, it is reasonably possible that an adverse outcome will result. It is not possible, 

however, to speculate as to a range of loss. Of these potential liabilities, most will be funded by Treasury’s Judgment Fund, if any 

amounts are ultimately due.

NOTE 18. CONSOLIDATED STATEMENTS OF NET COST

The following tables illustrate the Department’s Statement of Net Cost by Major Budgetary Function, with Gross Costs and Earned 

Revenue further broken down by Intragovernmental and With the Public. The classification of Gross Costs as Intragovernmental or 

With the Public is based on the source of goods and services received by the Department and is not based on the classification of 

the related revenue. The classification of costs or revenue as Intragovernmental or With the Public is defined on a transaction-bytransaction basis based upon with whom the transaction is with. The purpose of this classification is to enable the Department to 

prepare consolidated financial statements, not to match the intragovernmental and public revenue with the costs that are incurred 

to produce the intragovernmental and public revenue. 

FY 2017 AGENCY FINANCIAL REPORT | 8 7

NOTES TO THE FINANCIAL STATEMENTS
United States Department of Commerce Consolidating Statement of Net Cost by Major Budgetary Function

For the Year Ended September 30, 2017

Natural 

Resources and 

Environment/

Other Natural 

Resources

Other 

Advancement 

of Commerce

Area and 

Regional 

Development Others 

Combined

Total

IntraDepartmental 

Eliminations

Consolidated 

Total

Intragovernmental

Gross Costs $ 784,310 $ 1,834,481 $ 17,277 $ 46,512 $ 2,682,580 $ (354,763) $ 2,327,817

Less: Earned Revenue (192,917) (927,663) (5,717) (349) (1,126,646) 354,763 (771,883)

Intragovernmental, Net Costs 591,393 906,818 11,560 46,163 1,555,934 – 1,555,934

With the Public

Gross Costs 4,026,780 5,702,142 274,159 82,944 10,086,025 – 10,086,025

Less: Earned Revenue (52,835) (3,209,782) (11) (1,297) (3,263,925) – (3,263,925)

With the Public, Net Costs 3,973,945 2,492,360 274,148 81,647 6,822,100 – 6,822,100

Total Program Costs

Gross Costs 4,811,090 7,536,623 291,436 129,456 12,768,605 (354,763) 12,413,842

Less: Earned Revenue (245,752) (4,137,445) (5,728) (1,646) (4,390,571) 354,763 (4,035,808)

NET COST OF OPERATIONS $ 4,565,338 $ 3,399,178 $ 285,708 $ 127,810 $ 8,378,034 $ – $ 8,378,034

United States Department of Commerce Consolidating Statement of Net Cost by Major Budgetary Function

For the Year Ended September 30, 2016

Natural 

Resources and 

Environment/

Other Natural 

Resources

Other 

Advancement 

of Commerce

Area and 

Regional 

Development Others 

Combined

Total

IntraDepartmental 

Eliminations

Consolidated 

Total

Intragovernmental

Gross Costs $ 767,663 $ 1,795,752 $ 16,567 $ 45,706 $ 2,625,688 $ (346,202) $ 2,279,486

Less: Earned Revenue (174,424) (916,446) (4,802) 746 (1,094,926) 346,202 (748,724)

Intragovernmental, Net Costs 593,239 879,306 11,765 46,452 1,530,762 – 1,530,762

With the Public

Gross Costs 3,950,729 5,585,372 279,234 69,289 9,884,624 – 9,884,624

Less: Earned Revenue (48,025) (3,235,243) (17) (1,917) (3,285,202) – (3,285,202)

With the Public, Net Costs 3,902,704 2,350,129 279,217 67,372 6,599,422 – 6,599,422

Total Program Costs

Gross Costs 4,718,392 7,381,124 295,801 114,995 12,510,312 (346,202) 12,164,110

Less: Earned Revenue (222,449) (4,151,689) (4,819) (1,171) (4,380,128) 346,202 (4,033,926)

NET COST OF OPERATIONS $ 4,495,943 $ 3,229,435 $ 290,982 $ 113,824 $ 8,130,184 $ – $ 8,130,184

8 8 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

NOTES TO THE FINANCIAL STATEMENTS
NOTE 19. COMBINED STATEMENTS OF BUDGETARY RESOURCES

Other Changes in Unobligated Balance, Net: On the FY 2016 Combined Statement of Budgetary Resources (SBR), Budgetary 

Resources, Budgetary column, the reduction of budgetary resources of $8.93 billion reported includes a reduction of $ 8.80 billion 

for NTIA’s Digital Television Transition and Public Safety Fund. For more financial information for the Digital Television Transition 

and Public Safety Fund, see Note 22, Funds from Dedicated Collections, and the Combining Schedule of Budgetary Resources 

by Major Budget Account (unaudited) for FY 2017, included in Required Supplementary Information (Unaudited).

Appropriations: 

There are reconciling items from the amounts of the Budgetary Resources, Appropriations on the SBR to the amounts of the 

Budgetary Financing Sources, Appropriations Received on the Consolidated Statement of Changes in Net Position (SCNP).

For FY 2017, the primary reconciling item is transfers of current year authority in the amount of $178.6 million, which is included in 

SBR as Appropriations and is included as transfers on SCNP.

For FY 2016, the primary reconciling items are (a) a transfer in of auction proceeds from the Federal Communications Commission 

to NTIA’s Public Safety Trust Fund of $8.43 billion, which is included as Appropriations on SBR, and is included as a budgetary 

transfer in on SCNP (see Note 22, Funds from Dedicated Collections, for more information on the Public Safety Trust Fund); and (b) 

a transfer out from NTIA’s Public Safety Trust Fund to the General Fund of the U.S. Government of $7.78 billion for deficit reduction, 

which is included as negative Appropriations on SBR and is in included as a transfer out on SCNP.

Borrowing Authority: Total borrowing authority available for NOAA’s loan programs amounted to $116.2 million and $65.2 million 

as of September 30, 2017 and 2016, respectively. The Borrowing Authority amounts reported in the SBR Budgetary Resources

section represent only borrowing authority realized during the fiscal year being reported. See Note 1.N, Debt to Treasury, for debt 

repayment requirements, financing sources for repayments, and other terms of borrowing authority used. 

Permanent, Indefinite Appropriations: All of the Department’s reporting entities have one or more permanent, indefinite appropriations 

to finance operations. Permanent, indefinite appropriations are appropriations that are available until expended.

Permanent Reductions to Budgetary Resources: Permanent reductions to the Department’s budgetary resources under Public 

Law 115-31 amounted to $34.38 million for FY 2017, while permanent reductions for FY 2016 under Public Laws 114-223 and 

114-113 amounted to $34.36 million. These permanent reductions are included in the SBR Budgetary Resources section, and are 

also included in the SCNP.

Legal and/or budgetary arrangements affecting the Department’s use of Unobligated Balances of Budget Authority and/or Fund 

Balance with Treasury during FY 2017 and FY 2016 include the following:

● The Department’s Fund Balance with Treasury includes, for NTIA’s Digital Television Transition and Public Safety Fund, 

$8.81 billion of funds not available as of September 30, 2017 and 2016.

● The Department’s Fund Balance with Treasury for Deposit Funds, reported in Note 2, Fund Balance with Treasury, are not 

available to finance operating activities. These funds are also included in Note 2 on the line Non-budgetary (breakdown 

by status).

FY 2017 AGENCY FINANCIAL REPORT | 8 9

NOTES TO THE FINANCIAL STATEMENTS
● The Department’s Fund Balance with Treasury as of September 30, 2017 and 2016 includes $790.1 million of USPTO offsetting 

collections exceeding the current fiscal year and prior fiscal years’ appropriations. USPTO may use these funds only as 

authorized by the U.S. Congress, and only as made available by the issuance of a Treasury warrant. These funds are included 

in Note 2 on the lines General Funds (breakdown by type) and Temporarily Precluded From Obligation (breakdown by status).

● The Omnibus Budget Reconciliation Act of 1990 established surcharges on certain statutory patent fees collected by USPTO. 

Subsequent legislation extended the surcharges through September 30, 1998. These surcharges were deposited into the 

Patent and Trademark Surcharge Fund, a Special Fund Receipt Account at Treasury. USPTO may use monies from this account 

only as authorized by Congress and made available by the issuance of a Treasury warrant. As of September 30, 2017 and 

2016, $233.5 million of Fund Balance with Treasury is held in the Patent and Trademark Surcharge Fund. These funds are 

included in Note 2 on the lines Patent and Trademark Surcharge Fund – Special Funds section (breakdown by type), and 

Non-budgetary (breakdown by status). 

● The Department’s Fund Balance with Treasury as of September 30, 2017 and 2016 includes $147.7 million of USPTO 

sequestered funds temporarily not available. These funds are included in Note 2 on the lines General Funds (breakdown 

by type) and Temporarily Precluded from Obligation (breakdown by status).

● For loan programs prior to the Federal Credit Reform Act of 1990 (pre-FY 1992 loans), most or all liquidating fund unobligated 

balances in excess of working capital needs are required to be transferred to Treasury as soon as practicable during the 

following fiscal year. 

● For direct loan programs under the Federal Credit Reform Act of 1990 (post-FY 1991 loans) that have outstanding debt to 

Treasury, regulations require that most unobligated balances be returned to Treasury on September 30 or require that the 

borrowing authority be cancelled on September 30.

Comparison to Budget of the U.S. Government: 

A comparison was performed between the amounts reported in the FY 2016 SBR and the actual FY 2016 amounts reported in 

the FY 2018 budget of the U.S. Government for SBR lines Total Budgetary Resources; New Obligations and Upward Adjustment; 

Outlays, Net; and Distributed Offsetting (Receipts)/Outlays, Net. There was one material difference in the amount of $377 million 

related to Total Budgetary Resources balances on expired accounts existing on the SBR, that are not reported in the FY 2018 

Budget of the U.S. Government. The President’s Budget that will report actual amounts for FY 2017 has not yet been published, 

and will be made available on OMB’s Budget Web page at https://www.whitehouse.gov/omb/budget/.

Apportionment Categories of New Obligations and Upward Adjustments:

Category A apportionments distribute budgetary resources by fiscal quarters, whereas Category B apportionments typically 

distribute budgetary resources by activities, projects, objects, or a combination of these categories.

9 0 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

NOTES TO THE FINANCIAL STATEMENTS
The amounts of Direct (for example, derived from Appropriations) and Reimbursable (for example, derived from Spending Authority 

From Offsetting Collections) New Obligations and Upward Adjustments by apportionment category are as follows:

FY 2017

Direct Reimbursable Total

Category A $ 2,840,592 $ 3,761,272 $ 6,601,864

Category B 7,401,041 1,963,764 9,364,805

Exempt from Apportionment 4,030 – 4,030

Total New Obligations and Upward Adjustments $ 10,245,663 $ 5,725,036 $ 15,970,699

FY 2016

Direct Reimbursable Total

Category A $ 2,761,562 $ 3,648,368 $ 6,409,930

Category B 8,222,799 821,578 9,044,377

Exempt from Apportionment 5,545 – 5,545

Total New Obligations and Upward Adjustments $ 10,989,906 $ 4,469,946 $ 15,459,852

Undelivered Orders: Undelivered orders (unpaid and paid) were $7.43 billion and $6.48 billion as of September 30, 2017 and 

2016, respectively.

NOTE 20. CONSOLIDATED STATEMENTS OF CUSTODIAL ACTIVITY 

Custodial activity represents revenue (non-exchange and exchange) that was or will be collected on behalf of another entity and 

the disposition of that revenue to Treasury (General Fund of the U.S. Government), a trust fund, or other recipient entities. The 

Department’s custodial activity is reported in the Consolidated Statements of Custodial Activity.

The Department’s custodial revenue in FY 2017 was $376.7 million, primarily received from BIS. BIS primarily receives custodial 

revenue from civil monetary penalties assessed to private entities that violate the Export Administration Act. In FY 2017, BIS 

assessed a civil monetary penalty on a Chinese cellular phone manufacturer for multiple violations of the Export Administration 

Act. The company agreed to a civil penalty of $661.0 million, of which $361.0 million was collected by BIS, and was transferred 

to Treasury in September 2017. Payment to BIS for the remaining $300.0 million was suspended until March 2024 and will be 

waived if the company complies with probationary conditions for the seven years ending March 2024.

The Department’s custodial revenue in FY 2016 was $39.2 million, primarily received by EDA, BIS, and NOAA. EDA and BIS 

received custodial revenue in FY 2016 primarily from miscellaneous collections and civil monetary penalties from private entities 

that violate the Export Administration Act, respectively. NOAA received custodial revenue in FY 2016 primarily from the audit 

resolution of a grants receivable.

FY 2017 AGENCY FINANCIAL REPORT | 9 1

NOTES TO THE FINANCIAL STATEMENTS
NOTE 21. FIDUCIARY ACTIVITIES

Fiduciary activities are the collection or receipt, and the management, protection, accounting, and disposition by the federal government 

of cash or other assets in which non-federal individuals or entities have an ownership interest that the federal government must uphold. 

Fiduciary cash and other assets are not assets of the federal government and accordingly are not recognized on the proprietary financial 

statements. The Patent Cooperation Treaty authorized USPTO to collect patent filing and search fees on behalf of the World Intellectual 

Property Organization (WIPO), European Patent Office, Korean Intellectual Property Office, Russian Intellectual Property Organization, 

Australian Patent Office, Israeli Patent Office, Japanese Patent Office, and Intellectual Property Office of Singapore from U.S. citizens 

requesting an international patent. The Madrid Protocol Implementation Act authorized USPTO to collect trademark application fees on 

behalf of the International Bureau of the WIPO from U.S. citizens requesting an international trademark.

Schedule of Fiduciary Activities for the Year Ended September 30, 2017:

FY 2017

Patent Cooperation 

Treaty

Madrid 

Protocol Total

Fiduciary Net Assets, Beginning Balance $ 14,459 $ 451 $ 14,910

Contributions 151,264 22,812 174,076

Disbursements to and on Behalf of Beneficiaries (151,892) (22,721) (174,613) 

Increase/(Decrease) in Fiduciary Net Assets (628) 91 (537)

Fiduciary Net Assets, Ending Balance $ 13,831 $ 542 $ 14,373

Fiduciary Net Assets as of September 30, 2017: 

FY 2017

Patent Cooperation 

Treaty

Madrid 

Protocol Total

Fund Balance with Treasury $ 13,831 $ 542 $ 14,373

Schedule of Fiduciary Activities for the Year Ended September 30, 2016:

FY 2016

Patent Cooperation 

Treaty

Madrid 

Protocol Total

Fiduciary Net Assets, Beginning Balance $ 16,168 $ 615 $ 16,783

Contributions 154,474 22,572 177,046

Disbursements to and on Behalf of Beneficiaries (156,183) (22,736) (178,919) 

Increase/(Decrease) in Fiduciary Net Assets (1,709) (164) (1,873)

Fiduciary Net Assets, Ending Balance $ 14,459 $ 451 $ 14,910

Fiduciary Net Assets as of September 30, 2016:

FY 2016

Patent Cooperation 

Treaty

Madrid 

Protocol Total

Fund Balance with Treasury $ 14,459 $ 451 $ 14,910

9 2 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

NOTES TO THE FINANCIAL STATEMENTS
NOTE 22. FUNDS FROM DEDICATED COLLECTIONS

The following tables depict major funds from dedicated collections separately chosen based on their significant financial activity and importance 

to taxpayers. All other funds from dedicated collections not shown are aggregated as “Other Funds from Dedicated Collections.” The 

funds from dedicated collections reported in these tables are fully included in the Department’s Consolidated Balance Sheets, Consolidated 

Statements of Net Cost, and Consolidated Statements of Changes in Net Position.

United States Department of Commerce Combining Balance Sheet – Funds from Dedicated Collections

As of September 30, 2017

 NIST 

Wireless 

Innovation 

Fund 

 NOAA 

Damage 

Assessment 

and 

Restoration 

Revolving 

Fund 

 NTIA Digital 

Television 

Transition 

and Public 

Safety Fund 

 NTIA 

Network 

Construction 

Fund 

 NTIA Public 

Safety Trust 

Fund 

 NTIA State 

and Local 

Implementation 

Fund 

 USPTO 

Funds from 

Dedicated 

Collections 

 Other 

Funds from 

Dedicated 

Collections 

 Combined 

Total 

Funds from 

Dedicated 

Collections 

ASSETS 

Fund Balance with Treasury $ 269,704 $ 162,207 $ 8,821,057 $ 5,574,439 $ 145,427 $ 58,850 $ 2,126,008 $ 64,310 $ 17,222,002

Cash – – – – – – 4,038 – 4,038

Investment – – – – 334,106 – – – 334,106

Accounts Receivable, Net – 37 – 31 34 – 334 182 618

General Property, Plant, and 

Equipment, Net – – – 4,307 1,301 – 523,842 – 529,450

Advances and Prepayments 257 29 2,513 678,295 682 246 27,740 709,762

Cost Contribution to 

Buildout of Nationwide 

Public Safety Broadband 

Network – – – 288,000 – – – – 288,000

Other – – – 1,059 – – 1 29 1,089

TOTAL ASSETS $ 269,961 $ 162,273 $ 8,823,570 $ 6,546,131 $ 481,550 $ 59,096 $ 2,681,963 $ 64,521 $ 19,089,065

LIABILITIES 

Accounts Payable $ 308 $ (92) $ – $ 4,539 $ 1,168 $ 56 $ 101,703 $ 6 $ 107,688

Federal Employee Benefits – – – – – – 12,020 – 12,020

Other 

Accrued Payroll and 

Annual Leave 167 124 – 636 2,580 19 235,389 154 239,069

Accrued Grants 3,424 471 601 4,199 – 3,835 – 934 13,464

Unearned Revenue – – – – – – 936,854 – 936,854

Liability to General 

Fund of the 

U.S. Government 

for Deficit Reduction – – – – 336,188 – – – 336,188

Other Liabilities – 41 – 397 163 – 18,447 55 19,103

TOTAL LIABILITIES $ 3,899 $ 544 $ 601 $ 9,771 $ 340,099 $ 3,910 $ 1,304,413 $ 1,149 $ 1,664,386

 NET POSITION 

Unexpended Appropriations $ – $ – $ – $ – $ – $ – $ – $ – $ –

Cumulative Results of 

Operations 266,062 161,729 8,822,969 6,536,360 141,451 55,186 1,377,550 63,372 17,424,679

TOTAL NET POSITION $ 266,062 $ 161,729 $ 8,822,969 $ 6,536,360 $ 141,451 $ 55,186 $ 1,377,550 $ 63,372 $ 17,424,679

TOTAL LIABILITIES AND 

NET POSITION $ 269,961 $ 162,273 $ 8,823,570 $ 6,546,131 $ 481,550 $ 59,096 $ 2,681,963 $ 64,521 $ 19,089,065

FY 2017 AGENCY FINANCIAL REPORT | 9 3

NOTES TO THE FINANCIAL STATEMENTS
United States Department of Commerce Combining Balance Sheet – Funds from Dedicated Collections

As of September 30, 2016

 NIST 

Wireless 

Innovation 

Fund 

 NOAA 

Damage 

Assessment 

and 

Restoration 

Revolving 

Fund 

 NTIA Digital 

Television 

Transition 

and Public 

Safety Fund 

 NTIA 

Network 

Construction 

Fund 

 NTIA Public 

Safety Trust 

Fund 

 NTIA State 

and Local 

Implementation 

Fund 

 USPTO 

Funds from 

Dedicated 

Collections 

 Other 

Funds from 

Dedicated 

Collections 

 Combined 

Total 

Funds from 

Dedicated 

Collections 

ASSETS 

Fund Balance with Treasury $ 277,971 $ 199,491 $ 8,822,531 $ 6,642,633 $ 176,870 $ 79,118 $ 2,222,633 $ 54,902 $ 18,476,149

Cash – – – – – – 3,811 – 3,811

Investment – – – – 333,013 – – – 333,013

Accounts Receivable, Net – 60 – 7 253 2 473 6,832 7,627

General Property, Plant, and 

Equipment, Net – – – 4,364 2,082 – 504,025 – 510,471

Other – 105 2,925 22,701 1,439 23 25,177 105 52,475

TOTAL ASSETS $ 277,971 $ 199,656 $ 8,825,456 $ 6,669,705 $ 513,657 $ 79,143 $ 2,756,119 $ 61,839 $ 19,383,546

LIABILITIES 

Accounts Payable $ 122 $ 146 $ 278 $ 7,090 $ 1,236 $ 129 $ 93,463 $ 86 $ 102,550

Federal Employee Benefits – – – – – – 11,729 – 11,729

Other 

Accrued Payroll and 

Annual Leave 18 91 – 521 1,975 17 225,605 153 228,380

Accrued Grants – 433 229 – – 2,088 – 865 3,615

Capital Lease Liabilities – – – 524 133 – – – 657

Unearned Revenue – – – – – – 960,398 – 960,398

Liability to General 

Fund of the 

U.S. Government 

for Deficit Reduction – – – – 334,054 – – – 334,054

Other Liabilities – 33 – 328 134 – 17,404 54 17,953

TOTAL LIABILITIES $ 140 $ 703 $ 507 $ 8,463 $ 337,532 $ 2,234 $ 1,308,599 $ 1,158 $ 1,659,336

 NET POSITION 

Unexpended Appropriations $ – $ – $ – $ – $ – $ – $ – $ – $ –

Cumulative Results of 

Operations 277,831 198,953 8,824,949 6,661,242 176,125 76,909 1,447,520 60,681 17,724,210

TOTAL NET POSITION $ 277,831 $ 198,953 $ 8,824,949 $ 6,661,242 $ 176,125 $ 76,909 $ 1,447,520 $ 60,681 $ 17,724,210

TOTAL LIABILITIES AND 

NET POSITION $ 277,971 $ 199,656 $ 8,825,456 $ 6,669,705 $ 513,657 $ 79,143 $ 2,756,119 $ 61,839 $ 19,383,546

9 4 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

NOTES TO THE FINANCIAL STATEMENTS
United States Department of Commerce Combining Statement of Net Cost – Funds from Dedicated Collections

For the Year Ended September 30, 2017

 NIST 

Wireless 

Innovation 

Fund 

 NOAA 

Damage 

Assessment 

and 

Restoration 

Revolving 

Fund 

 NTIA Digital 

Television 

Transition 

and Public 

Safety Fund 

 NTIA 

Network 

Construction 

Fund 

 NTIA 

Public 

Safety 

Trust Fund 

 NTIA State 

and Local 

Implementation 

Fund 

 USPTO 

Funds from 

Dedicated 

Collections 

 Other 

Funds from 

Dedicated 

Collections 

 Combined 

Total 

Funds from 

Dedicated 

Collections 

Intragovernmental

Gross Costs $ 12,683 $ 918 $ 411 $ 75,513 $ 5,764 $ 22 $ 641,689 $ 1,225 $ 738,225

Less: Earned Revenue – (2,969) – – (58) – (9,588) – (12,615)

Intragovernmental, Net Costs 12,683 (2,051) 411 75,513 5,706 22 632,101 1,225 725,610

With the Public

Gross Costs 12,059 59,662 1,569 49,270 8,438 21,701 2,551,722 17,610 2,722,031

Less: Earned Revenue – – – – – – (3,095,759) – (3,095,759)

With the Public, Net Costs 12,059 59,662 1,569 49,270 8,438 21,701 (544,037) 17,610 (373,728)

Total Program Costs

Gross Costs 24,742 60,580 1,980 124,783 14,202 21,723 3,193,411 18,835 3,460,256

Less: Earned Revenue – (2,969) – – (58) – (3,105,347) – (3,108,374)

NET COST OF OPERATIONS $ 24,742 $ 57,611 $ 1,980 $ 124,783 $14,144 $ 21,723 $ 88,064 $ 18,835 $ 351,882

United States Department of Commerce Combining Statement of Net Cost – Funds from Dedicated Collections

For the Year Ended September 30, 2016

 NIST 

Wireless 

Innovation 

Fund 

 NOAA 

Damage 

Assessment 

and 

Restoration 

Revolving 

Fund 

 NTIA Digital 

Television 

Transition 

and Public 

Safety Fund 

 NTIA 

Network 

Construction 

Fund 

 NTIA 

Public 

Safety 

Trust Fund 

 NTIA State 

and Local 

Implementation 

Fund 

 USPTO 

Funds from 

Dedicated 

Collections 

 Other 

Funds from 

Dedicated 

Collections 

 Combined 

Total 

Funds from 

Dedicated 

Collections 

Intragovernmental

Gross Costs $ 4,456 $ 1,208 $ 145 $ 39,215 $ 6,130 $ 336 $ 635,435 $ 1,274 $ 688,199

Less: Earned Revenue – – – – (368) (30) (8,957) – (9,355)

Intragovernmental, Net Costs 4,456 1,208 145 39,215 5,762 306 626,478 1,274 678,844

With the Public

Gross Costs 4,113 57,911 1,352 33,676 10,320 22,343 2,484,149 17,944 2,631,808

Less: Earned Revenue – – – – – – (3,124,412) – (3,124,412)

With the Public, Net Costs 4,113 57,911 1,352 33,676 10,320 22,343 (640,263) 17,944 (492,604)

Total Program Costs

Gross Costs 8,569 59,119 1,497 72,891 16,450 22,679 3,119,584 19,218 3,320,007

Less: Earned Revenue – – – – (368) (30) (3,133,369) – (3,133,767)

NET COST OF OPERATIONS $ 8,569 $ 59,119 $ 1,497 $ 72,891 $16,082 $ 22,649 $ (13,785) $ 19,218 $ 186,240

FY 2017 AGENCY FINANCIAL REPORT | 9 5

NOTES TO THE FINANCIAL STATEMENTS
United States Department of Commerce Combining Statement of Changes in Net Position – Funds from Dedicated Collections

For the Year Ended September 30, 2017

 NIST 

Wireless 

Innovation 

Fund 

 NOAA 

Damage 

Assessment 

and 

Restoration 

Revolving 

Fund 

 NTIA Digital 

Television 

Transition and 

Public Safety 

Fund 

 NTIA 

Network 

Construction 

Fund 

 NTIA Public 

Safety Trust 

Fund 

 NTIA State 

and Local 

Implementation 

Fund 

 USPTO 

Funds from 

Dedicated 

Collections 

 Other 

Funds from 

Dedicated 

Collections 

 Combined 

Total 

Funds from 

Dedicated 

Collections 

Cumulative Results of Operations: 

Beginning Balance $ 277,831 $ 198,953 $ 8,824,949 $ 6,661,242 $ 176,125 $ 76,909 $ 1,447,520 $ 60,681 $ 17,724,210

Budgetary Financing Sources: 

Non-exchange Revenue – 13,236 – – 2,133 – – 21,526 36,895

Transfers In/(Out) Without

Reimbursement, Net 13,600 7,151 – – (21,420) – (2,000) – (2,669)

Other Financing Sources 

(Non-exchange): 

Transfers In/(Out) Without 

Reimbursement, Net (627) – – (98) – – – – (725)

Imputed Financing Sources from 

Cost Absorbed by Others – – – – 892 – 20,094 – 20,986

Financing Sources Used for 

Recognizing Liability to General 

Fund of the U.S. Government 

for Deficit Reduction – – – – (2,134) – – – (2,134)

Other Financing 

Sources/(Uses), Net – – – (1) (1) – – – (2)

Total Financing Sources 12,973 20,387 – (99) (20,530) – 18,094 21,526 52,351

Net Cost of Operations (24,742) (57,611) (1,980) (124,783) (14,144) (21,723) (88,064) (18,835) (351,882)

Net Change (11,769) (37,224) (1,980) (124,882) (34,674) (21,723) (69,970) 2,691 (299,531)

Cumulative Results of 

Operations – Ending Balance 266,062 161,729 8,822,969 6,536,360 141,451 55,186 1,377,550 63,372 17,424,679

NET POSITION $ 266,062 $ 161,729 $ 8,822,969 $ 6,536,360 $ 141,451 $ 55,186 $ 1,377,550 $ 63,372 $ 17,424,679

9 6 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

NOTES TO THE FINANCIAL STATEMENTS
United States Department of Commerce Combining Statement of Changes in Net Position – Funds from Dedicated Collections

For the Year Ended September 30, 2016

 NIST 

Wireless 

Innovation 

Fund 

 NOAA 

Damage 

Assessment 

and 

Restoration 

Revolving 

Fund 

 NTIA Digital 

Television 

Transition and 

Public Safety 

Fund 

 NTIA 

Network 

Construction 

Fund 

 NTIA Public 

Safety Trust 

Fund 

 NTIA State 

and Local 

Implementation 

Fund 

 USPTO 

Funds from 

Dedicated 

Collections 

 Other 

Funds from 

Dedicated 

Collections 

 Combined 

Total 

Funds from 

Dedicated 

Collections 

Cumulative Results of Operations: 

Beginning Balance $ 92,700 $ 260,591 $ 8,826,446 $ 6,367,864 $ 540,743 $ 99,558 $ 1,401,156 $ 51,028 $ 17,640,086

Budgetary Financing Sources: 

Non-exchange Revenue – (17,673) – – 6 – – 28,871 11,204

Transfers In of Auction Proceeds 

from Federal Communications 

Commission – – – – 8,430,058 – – – 8,430,058

Transfer Out to Receipt Account for 

Providing Funds to General Fund 

of the U.S. Government – – – – (7,781,010) – – – (7,781,010)

Transfers from Public Safety Trust 

Fund to Dedicated Collections 

Funds 193,700 – – 366,269 (559,969) – – – –

Transfers In/(Out) Without

Reimbursement, Net – 15,154 – – (104,430) – (2,100) – (91,376)

Other Financing Sources 

(Non-exchange): 

Transfer In Received by Receipt 

Account for Providing Funds 

to General Fund of the 

U.S. Government – – – – 7,781,010 – – – 7,781,010

Transfer Out to General Fund 

of the U.S. Government 

for Deficit Reduction – – – – (7,781,010) – – – (7,781,010)

Imputed Financing Sources from 

Cost Absorbed by Others – – – – 863 – 34,679 – 35,542

Financing Sources Used for 

Recognizing Liability to General 

Fund of the U.S. Government 

for Deficit Reduction – – – – (334,054) – – – (334,054)

Total Financing Sources 193,700 (2,519) – 366,269 (348,536) – 32,579 28,871 270,364

Net Cost of Operations (8,569) (59,119) (1,497) (72,891) (16,082) (22,649) 13,785 (19,218) (186,240)

Net Change 185,131 (61,638) (1,497) 293,378 (364,618) (22,649) 46,364 9,653 84,124

Cumulative Results of 

Operations – Ending Balance 277,831 198,953 8,824,949 6,661,242 176,125 76,909 1,447,520 60,681 17,724,210

NET POSITION $ 277,831 $ 198,953 $ 8,824,949 $ 6,661,242 $ 176,125 $ 76,909 $ 1,447,520 $ 60,681 $ 17,724,210

Below is a description of major Funds from Dedicated Collections shown in the tables above and on the previous pages:

NIST’s Wireless Innovation Fund was created in order for NIST, in consultation with the Federal Communications Commission (FCC), 

the Secretary of Homeland Security, and the National Institute of Justice of the U.S. Department of Justice, to conduct research 

and assist with the development of standards, technologies, and applications to advance wireless public safety communications. 

Section 6413 of the Middle Class Tax Relief and Job Creation Act of 2012 requires NTIA to make available $300.0 million to the 

Director of NIST as amounts are deposited into NTIA’s Public Safety Trust Fund to carry out public safety research. The Wireless 

Innovation Fund in FY 2017 and FY 2016 received transfers in totaling $13.6 million and $193.7 million, respectively, from NTIA’s 

Public Safety Trust Fund, which are included in the FY 2017 and FY 2016 SCNP reported in this Note, and which are also included 

in the Department’s FY 2017 and FY 2016 SBR as Spending Authority From Offsetting Collections. The Wireless Innovation Fund 

in FY 2015 also similarly received transfers in totaling $92.7 million from NTIA’s Public Safety Trust fund. The law establishing this 

program can be found in Section 6303 of the Middle Class Tax Relief and Job Creation Act of 2012.

FY 2017 AGENCY FINANCIAL REPORT | 9 7

NOTES TO THE FINANCIAL STATEMENTS
NOAA’s Damage Assessment and Restoration Revolving Fund receives monies for the reimbursement of expenses related to oil or 

hazardous substance spill response activities, or natural resource damages assessment, restoration, rehabilitation, replacement, 

or acquisition activities conducted by NOAA. The recovered sums by a federal, state, Indian, or foreign trustee for natural resource 

damages is retained by the trustee and is only used to reimburse or pay costs incurred by the trustee for the damaged natural 

resources. The law establishing the Damage Assessment and Restoration Revolving Fund can be found in 33 U.S.C. Section 2706. 

NTIA’s Digital Television Transition and Public Safety Fund made digital television available to every home in America, improved 

communications between local, state, and federal agencies, allowed smaller television stations to broadcast digital television, 

and improved how warnings are received when disasters occur. NTIA received initial funding from borrowings from Treasury, 

and repaid Treasury from the proceeds of the auction of recovered analog spectrum which was completed in March 2008. The 

proceeds from the auction provided funding for several programs, and $7.36 billion was transferred in September 2009 to the 

General Fund of the U.S. Government as required by the Deficit Reduction Act of 2005. The Fund has a Net Position, Cumulative 

Results of Operations balance of $8.82 billion included in the Balance Sheet as of September 30, 2017 reported in this Note, and 

OMB’s FY 2017 apportionment for the Fund indicates that $8.82 billion is not available. The law establishing programs under this 

fund can be found in the Deficit Reduction Act of 2005, Sections 3001-3014. For FY 2017 budgetary financial information for the 

Digital Television Transition and Public Safety Fund, see the Combining Schedule of Budgetary Resources by Major Budget Account

(unaudited), included in Required Supplementary Information (Unaudited).

NTIA’s Network Construction Fund primarily provides funding for buildout and operations, excluding administrative expenses which are 

paid by NTIA’s Public Safety Trust Fund, of the First Responder Network Authority (FirstNet), an independent authority within NTIA, 

and also provides funding for NTIA to make grants to states under the “Opt-Out” program. FirstNet shall ensure the establishment 

of a nationwide interoperable broadband network to help police, firefighters, emergency medical service professionals, and 

other public safety officials stay safe and do their jobs. The Network Construction Fund in FY 2016 received transfers in totaling 

$366.3 million from NTIA’s Public Safety Trust Fund, which are included in the FY 2016 SCNP reported in this Note, and which are 

also included in the Department’s FY 2016 SBR as Spending Authority From Offsetting Collections. The Network Construction 

Fund in FY 2015 also similarly received transfers in totaling $6.40 billion from NTIA’s Public Safety Trust Fund. 

Advances and Prepayments reported on the Balance Sheet as of September 30, 2017 in this Note includes $672.0 million for 

the balance of an advance payment made by the Network Construction Fund to the U.S. Department of the Interior (DOI) for the 

advance funding of certain task orders under the DOI contract with AT&T for AT&T to build, operate, and maintain the Nationwide 

Public Safety Broadband Network (NPSBN).

The initial advance payment made to DOI during FY 2017 for certain task orders was $1.00 billion, which is also included in the 

Department’s FY 2017 SBR as New Obligations and Upward Adjustments and as Outlays, Gross. The initial advance payment 

of $1.00 billion to DOI has been reduced by $328.0 million in FY 2017 as a result of (a) completed and accepted AT&T contract 

performance totaling $20.0 million; and (b) FY 2017 accrued costs for estimated, unbilled AT&T contract performance progress 

through September 30, 2017 of $308.0 million.

The above described FY 2017 accrued costs of $308.0 million for estimated, unbilled AT&T contract performance progress through 

September 30, 2017 are estimated to include $288.0 million for the buildout of NPSBN. These costs are included as an asset in 

the Balance Sheet (Cost Contribution to Buildout of NPSBN) as of September 30, 2017. See Note 1.L for information regarding 

the classification of these costs as an asset.

The law establishing the Network Construction Fund can be found under Section 6206 of the Middle Class Tax Relief and Job 

Creation Act of 2012. For FY 2017 budgetary financial information for the Network Construction Fund, see the Combining Schedule of 

Budgetary Resources by Major Budget Account (unaudited) for FY 2017, included in Required Supplementary Information (Unaudited).

9 8 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

NOTES TO THE FINANCIAL STATEMENTS
NTIA’s Public Safety Trust Fund was created as a result of Section 6413 of the Middle Class Tax Relief and Job Creation Act of 

2012 (Act). The Act provides funding for specified programs and activities to be derived from the proceeds of FCC auctions of 

spectrum licenses, to be deposited into the Public Safety Trust Fund. 

Prior to the receipt of auction proceeds from FCC, the Act provided authority to NTIA to borrow up to $2.00 billion from Treasury, 

interest-free, with the debt to be repaid from auction proceeds as the first priority. The Public Safety Trust Fund borrowed 

$2.00 billion from Treasury through FY 2014, which was repaid in full as of September 30, 2015.

FCC carries out auctions in accordance with the Act, of which certain earned net auction proceeds (earned auction proceeds 

less any FCC administrative fees) are transferred from FCC to the Public Safety Trust Fund. A transfer in from FCC becomes a 

budgetary financing source on the SCNP and a budgetary resource on the SBR when the transfer is received. Transfers in of 

auction proceeds from FCC totaling $8.43 billion were received in FY 2016, and were included as a Budgetary Financing Source 

on the FY 2016 SCNP and as a Budgetary Resource on the FY 2016 SBR (Appropriations). Transfers in of auction proceeds from 

FCC totaling $19.85 billion were also similarly received through FY 2015.

The Act directs the use of auction proceeds in an order of priority after the repayment of borrowings from Treasury (priority 1):

● Priority 1, the repayment of borrowings from Treasury, was fully completed as of September 30, 2015 as previously discussed.

● In FY 2015, the Public Safety Trust Fund transferred out $130.9 million, net of sequestration, to NTIA’s State and Local 

Implementation Fund, fully completing priority 2.

● In FY 2016, the Public Safety Trust Fund transferred out a total of $366.3 million to NTIA’s Network Construction Fund, 

towards priority 3 of up to $7.00 billion. These transfers out are included in the FY 2016 SCNP reported in this Note, and 

are also included in the Department’s FY 2016 SBR as New Obligations and Upward Adjustments and as Outlays, Gross. 

The Public Safety Trust Fund also similarly transferred out a total of $6.40 billion to the Network Construction Fund in 

FY 2015 towards priority 3. 

● In FY 2017 and FY 2016, the Public Safety Trust Fund transferred out a total of $13.6 million and $193.7 million, respectively, 

to NIST’s Wireless Innovation Fund, fully completing priority 4 and priority 7 totaling $300.0 million for transfers to NIST 

to carry out public safety research. These transfers are included in the FY 2017 and FY 2016 SCNP reported in this Note, 

and are also included in the Department’s FY 2017 and FY 2016 SBR as New Obligations and Upward Adjustments and as 

Outlays, Gross. The Public Safety Trust Fund also similarly transferred out a total of $92.7 million to the Wireless Innovation 

Fund in FY 2015 towards priority 4 and priority 7.

● Priority 5 specifies that the Public Safety Trust Fund is to deposit a total of $20.40 billion in the General Fund of the 

U.S. Government for deficit reduction. Fully completing this priority, the Public Safety Trust Fund transferred out a total of 

$7.78 billion in FY 2016 to a receipt account utilized for transferring these funds to the General Fund of the U.S. Government, 

and the receipt account transferred a total of $7.78 billion in FY 2016 to the General Fund of the U.S. Government. These 

transfers are included in the FY 2016 SCNP reported in this Note. The Public Safety Trust Fund transfers out of a total of 

$7.78 billion in FY 2016 to the receipt account are also included as reductions of Budgetary Resources, Appropriations in 

the Department’s FY 2016 SBR. The Public Safety Trust Fund also similarly transferred out a total of $12.62 billion to the 

General Fund of the U.S. Government in FY 2015 for deficit reduction towards priority 5.

● Priority 6 specifies that the Public Safety Trust Fund make available $115.0 million to the Assistant Secretary (NTIA) and 

the Administrator of the National Highway Traffic Safety Administration (NHTSA) to carry out the grant program of Next 

Generation 9-1-1. Fully completing this priority, the Public Safety Trust Fund transferred out $7.8 million in FY 2017 and 

$104.4 million in FY 2016 to NHTSA, and made available in FY 2016 $2.8 million within the Public Safety Trust Fund for the 

FY 2017 AGENCY FINANCIAL REPORT | 9 9

NOTES TO THE FINANCIAL STATEMENTS
Assistant Secretary (NTIA). The transfers out to NHTSA are included in the FY 2017 and FY 2016 SCNP reported in this 

Note, and are also included in the Department’s FY 2017 and FY 2016 SBR as New Obligations and Upward Adjustments 

and as Outlays, Gross. 

● Priority 8 specifies that any remaining amounts deposited in the Public Safety Trust Fund shall be deposited in the General 

Fund of the U.S. Government for deficit reduction. The Act further specifies that any amounts remaining in the Public Safety 

Trust Fund after the end of FY 2022 shall be deposited in the General Fund of the U.S. Government for deficit reduction. 

Towards priority 8, the Public Safety Trust Fund has recorded a liability (not covered by budgetary resources) to the General 

Fund of the U.S. Government of $336.2 million and $334.1 million as of September 30, 2017 and September 30, 2016, 

respectively. The corresponding FY 2017 and FY 2016 financing sources used to increase (FY 2017) or initially recognize 

(FY 2016) this liability are reported in the FY 2017 and FY 2016 SCNP reported in this Note, Other Financing Sources 

(Non-exchange) section.

The Act specifies that amounts in the Public Safety Trust Fund be invested in accordance with Section 9702 of Title 31, United States 

Code. The Public Safety Trust Fund has an investment in a market-based Treasury security of $334.1 million and $333.0 million as 

of September 30, 2017 and 2016, respectively; see Note 3, Investment, for more information. The federal government does not set 

aside assets to pay future expenditures associated with the Public Safety Trust Fund. The dedicated cash receipts collected from 

the public into the Public Safety Trust Fund are deposited with Treasury, which uses the cash for general government purposes. 

Treasury securities are issued to the Public Safety Trust Fund as evidence of its receipts. Treasury securities are an asset to the 

Public Safety Trust Fund, and Treasury securities are a liability of Treasury. Because the Public Safety Trust Fund and Treasury are 

both parts of the federal government, these assets and liabilities offset each other from the standpoint of the federal 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 the Public Safety Trust Fund with authority to draw upon Treasury to make future expenditures. When 

the Public Safety Trust Fund requires redemption of these securities to make expenditures, the federal 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. This is the same way that the federal government finances all other expenditures.

For FY 2017 budgetary financial information for the Public Safety Trust Fund, see the Combining Schedule of Budgetary Resources 

by Major Budget Account (unaudited) for FY 2017 included in Required Supplementary Information (Unaudited).

NTIA’s State and Local Implementation Fund includes a matching grants program to states, carried out by NTIA, in consultation with 

FirstNet, to assist state, regional, tribal, and local jurisdictions to identify, plan, and implement the most efficient and effective 

way for such jurisdictions to utilize and integrate the infrastructure, equipment, and other architecture associated with NPSBN 

to satisfy the wireless communications and data services needs of that jurisdiction, including with regards to coverage, siting, 

and other needs. The program was initially funded by borrowings from Treasury, without interest, which had been fully repaid 

in FY 2015. The State and Local Implementation Fund in FY 2015 received transfers in totaling $130.9 million from NTIA’s Public 

Safety Trust Fund. If there is a balance remaining in the Fund on September 30, 2022, the Fund shall transfer such balance to the 

General Fund of the U.S. Government for deficit reduction. The law establishing this program can be found in Sections 6301 and 

6302 of the Middle Class Tax Relief and Job Creation Act of 2012.

USPTO’s Funds from Dedicated Collections consist of its Salaries and Expenses Fund, Patent and Trademark Fee Reserve Fund, 

and Patent and Trademark Surcharge Fund.

100 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

NOTES TO THE FINANCIAL STATEMENTS
The Salaries and Expenses Fund contains monies used for the administering of the laws relevant to patents and trademarks and 

advising the Secretary of Commerce, the President of the United States, and the Administration on patent, trademark, and copyright 

protection, and trade-related aspects of intellectual property. This fund is used for USPTO’s three core business activities–granting 

patents; registering trademarks; and intellectual property policy, protection, and enforcement–that promote the use of intellectual 

property rights as a means of achieving economic prosperity. These activities give innovators, businesses, and entrepreneurs the 

protection and encouragement they need to turn their creative ideas into tangible products, and also provide protection for their 

inventions and trademarks. USPTO may use monies from this account only as authorized by Congress. For FY 2017 budgetary 

financial information for the Salaries and Expenses Fund, see the Combining Schedule of Budgetary Resources by Major Budget 

Account (unaudited) for FY 2017, included in Required Supplementary Information (Unaudited).

The Patent and Trademark Surcharge Fund, a Special Fund Receipt Account at Treasury, is discussed in Note 19, Combined 

Statements of Budgetary Resources. USPTO may use monies from this account only as authorized by Congress and made 

available by the issuance of a Treasury warrant. As of September 30, 2017 and 2016, $233.5 million of Fund Balance with Treasury 

is held in this fund.

The Patent and Trademark Fee Reserve Fund results from a provision that requires USPTO to deposit all patent and trademark 

fees collected in excess of the annual appropriation amount into the Fund. Funds made available may only be used for expenses 

of USPTO relating to the processing of patent applications and for other activities, services, and materials relating to patents 

and applicable administrative costs. No monies have yet been deposited into this Fund through September 30, 2017. The law 

establishing the Patent and Trademark Fee Reserve Fund can be found in 35 U.S.C. Section 42(c).

FY 2017 AGENCY FINANCIAL REPORT | 101

NOTES TO THE FINANCIAL STATEMENTS
NOTE 23. RECONCILIATION OF NET COST OF OPERATIONS TO BUDGET

The Reconciliation of Net Cost of Operations to Budget reconciles the Department’s Resources Used to Finance Activities

(first section), which consists of the budgetary basis of accounting Net Obligations and Upward Adjustments (composed of items 

reported in the Department’s SBR) plus the proprietary basis of accounting Other Resources (as reported in the Department’s 

SCNP), to the proprietary basis of accounting Net Cost of Operations as reported in the Department’s Consolidated Statement of 

Net Cost. The second section, Resources Used to Finance Items Not Part of Net Cost of Operations, reverses out items included 

in the first section that are not included in Net Cost of Operations. The third section, Components of Net Cost of Operations 

that Will Not Require or Generate Resources in the Current Period, adds items included in Net Cost of Operations that are not 

included in the first section. 

The third section’s subsection, Components Requiring or Generating Resources in Future Periods, includes costs reported in the 

current period that are included in the Liabilities Not Covered by Budgetary Resources reported in Note 16. This subsection does 

not include costs reported in prior fiscal years that are also included in Liabilities Not Covered by Budgetary Resources reported 

in Note 16.

The reconciliations of Net Cost of Operations to Budget for FY 2017 and 2016 are as follows:

FY 2017 FY 2016

Resources Used to Finance Activities:

Budgetary Resources Obligated:

New Obligations and Upward Adjustments $ 15,970,699 $ 15,459,852

Less: Spending Authority From Offsetting Collections and Actual Recoveries of Prior-years Unpaid Obligations (5,292,233) (5,873,951)

New Obligations and Upward Adjustments Net of Offsetting Collections and Actual Recoveries 10,678,466 9,585,901

Less: Distributed Offsetting (Receipts)/Outlays, Net (40,066) (64,352)

Net Obligations and Upward Adjustments 10,638,400 9,521,549

Other Resources: 

Donations and Forfeitures of Property 399 779 

Transfer In Received by Receipt Account for Providing Funds to General Fund of the U.S. Government – 7,781,010 

Transfer Out to General Fund of the U.S. Government for Deficit Reduction – (7,781,010)

Transfers In/(Out) Without Reimbursement, Net (6,900) (78,549)

Imputed Financing Sources From Cost Absorbed by Others 200,225 247,277 

Financing Sources Used for Recognizing Liability to General Fund of the U.S. Government for Deficit Reduction (2,134) (334,054)

Other Financing Sources/(Uses), Net (13,372) (3,598)

Net Other Resources Used to Finance Activities 178,218 (168,145) 

Total Resources Used to Finance Activities 10,816,618 9,353,404 

(continued on next page)

102 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

NOTES TO THE FINANCIAL STATEMENTS
(continued from previous page)

FY 2017 FY 2016

Resources Used to Finance Items Not Part of Net Cost of Operations:

Change in Budgetary Resources Obligated for Goods, Services, and Benefits Ordered but Not Yet Provided (953,133) (267,019)

Resources that Fund Expenses Recognized in Prior Periods (7,046) (16,249)

New Obligations for Downward Subsidy Reestimates Payable to Treasury (15,299) (13,359)

New Obligation for a Transfer Out to National Highway Traffic Safety Administration 

(Note 22 – NTIA’s Public Safety Trust Fund) (7,820) (104,430)

Budgetary Offsetting Collections and Receipts that Do Not Affect Net Cost of Operations:

Distributed Offsetting (Receipts)/Outlays, Net (excludes Clearing Accounts’ Gross Costs) 40,066 64,352 

Credit Program Collections 75,300 86,768 

Repayments of Debt that reduce Debt to Treasury Liability – (89,561)

Budgetary Financing Sources/(Uses), Net (54,327) (17,833)

Resources that Finance the Acquisition of Assets (2,431,084) (2,189,998)

Other Resources or Adjustments to Net Obligated Resources that Do Not Affect Net Cost of Operations: 

Change in Unfilled Customer Orders 31,611 27,939 

Donations and Forfeitures of Property (399) (779)

Transfer In Received by Receipt Account for Providing Funds to General Fund of the U.S. Government – (7,781,010)

Transfer Out to General Fund of the U.S. Government for Deficit Reduction – 7,781,010 

Transfers In/(Out) Without Reimbursement, Net 6,900 78,549 

Financing Sources Used for Recognizing Liability to General Fund of 

the U.S. Government for Deficit Reduction 2,134 334,054 

Other Financing Sources/(Uses), Net 13,372 3,598 

Other 1,789 (7,729)

Total Resources Used to Finance Items Not Part of Net Cost of Operations (3,297,936) (2,111,697)

Total Resources Used to Finance Net Cost of Operations 7,518,682 7,241,707 

Components of Net Cost of Operations that Will Not Require or Generate Resources in the Current Period:

Components Requiring or Generating Resources in Future Periods:

Increase in Accrued Annual Leave Liability 7,553 10,443 

Increase in Federal Employee Benefits 8,734 –

Increase in Environmental and Disposal Liabilities 2,047 –

Increase/(Decrease) in Contingent Liabilities 17,215 6,545

Other 3,558 18,649

Total Components of Net Cost of Operations that Will Require or Generate Resources in Future Periods 39,107 35,637 

Components Not Requiring or Generating Resources:

Depreciation and Amortization 793,047 816,874 

NOAA Issuances of Materials and Supplies 33,117 23,320

Revaluation of Assets or Liabilities 6,623 28,204 

Other 6,363 6,024 

Total Components of Net Cost of Operations that Will Not Require or Generate Resources 839,150 874,422 

Total Components of Net Cost of Operations that Will Not Require or Generate Resources in the Current Period 878,257 910,059

Negative Gross Costs for Recoveries of Prior-years Delivered Orders that are Excluded from 

Net Obligations and Upward Adjustments (18,905) (21,582) 

NET COST OF OPERATIONS $ 8,378,034 $ 8,130,184

FY 2017 AGENCY FINANCIAL REPORT | 103

NOTES TO THE FINANCIAL STATEMENTS
NOTE 24. STEWARDSHIP ASSETS

Preservation of stewardship assets promotes the Department’s mission of providing effective management and monitoring of 

our Nation’s resources and assets to support both environmental and economic health. The physical properties of stewardship 

assets resemble those of General PP&E that is capitalized traditionally in the Balance Sheet of the financial statements of federal 

entities. Due to the nature of these assets, however, valuation would be difficult and matching costs with specific periods would 

not be meaningful. Therefore, federal accounting standards require the disclosure of the nature and quantity of these assets. 

NOAA, NIST, and the Census Bureau are the only entities within the Department that have stewardship assets. 

Heritage Assets 

Heritage assets are unique for their historical or natural significance, for their cultural, educational, or artistic importance, 

or for their significant architectural characteristics. The Department generally expects that these assets will be preserved 

indefinitely.

In cases where a heritage asset also has a practical and predominant use for general federal government operations, the 

asset is considered a multi-use heritage asset. The cost of a multi-use heritage asset is capitalized as General PP&E and 

is depreciated over the useful life of the asset.

NOAA has established policies for heritage assets to ensure the proper care and handling of these assets under its control 

or jurisdiction. The Deputy Under Secretary of NOAA established the Heritage Assets Working Committee to administer 

NOAA’s stewardship policies and procedures. In carrying out these policies and procedures, the Working Committee:

● Maintains a nationwide inventory of heritage assets, ensuring that they are identified and recorded in the Personal Property 

Heritage Asset Accountability System;

● Establishes nationwide NOAA policies, procedures, and standards for the preservation, security, handling, storage, and 

display of NOAA heritage assets;

● Tracks and updates each loan of NOAA heritage assets, including assigning current values and inventory numbers, and 

reporting the current conditions of heritage assets;

● Determines the feasibility of new asset loans, such as meters, standard tide gauges, portraits, and books for exhibit 

loans; and

● Collects heritage assets and properties of historic, cultural, artistic, or educational significance to NOAA. 

Heritage Assets maintained by NOAA include the Galveston Laboratory; National Marine Fisheries Service (NMFS) St. George 

Sealing Plant; NMFS Cottage M, St. George; NMFS St. Paul Old Clinic/Hospital; NMFS Woods Hole Science Aquarium; and Great 

Lakes Environmental Research Laboratory/Lake Michigan Field Station.

Information regarding deferred maintenance and repairs for heritage assets is included in the Required Supplementary 

Information (Unaudited) section.

104 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

NOTES TO THE FINANCIAL STATEMENTS
Stewardship National Marine Sanctuaries, Marine National Monuments, Conservation Area, and Habitat Blueprint

Written policy statements or permit guidelines for the National Marine Sanctuaries and Marine National Monuments have been 

developed for the areas of acoustic impacts, artificial reefs, climate change, invasive species, and marine debris. The Office of 

Marine National Sanctuaries answers the most frequently asked questions related to alternative energy and oil and gas policy 

decisions for national marine sanctuaries.

NOAA maintains the following stewardship assets: 

National Marine Sanctuaries: In 1972, Congress passed the Marine Protection, Research, and Sanctuaries Act (Act) in response 

to a growing awareness of the intrinsic environmental and cultural value of coastal waters. The Act authorized the Secretary of 

Commerce to designate special nationally-significant areas of the marine environment as national marine sanctuaries.

These protected waters provide a secure habitat for species close to extinction, and also protect historically significant shipwrecks 

and prehistoric artifacts. National marine sanctuaries are also used for recreation (e.g., boating, diving, and sport fishing), and 

support valuable commercial industries such as fishing and kelp harvesting. As of September 30, 2017, 13 National Marine 

Sanctuaries, which include both coastal and offshore areas, have been designated, as follows:

● Channel Islands National Marine Sanctuary

● Cordell Bank National Marine Sanctuary

● Florida Keys National Marine Sanctuary

● Flower Garden Banks National Marine Sanctuary

● Gray’s Reef National Marine Sanctuary

● Greater Farallones National Marine Sanctuary

● Hawaiian Island Humpback Whale National Marine Sanctuary

● Monitor National Marine Sanctuary

● Monterey Bay National Marine Sanctuary

● National Marine Sanctuary of American Samoa

● Olympic Coast National Marine Sanctuary

● Stellwagen Bank National Marine Sanctuary

● Thunder Bay National Marine Sanctuary

Marine National Monuments: The Marine National Monuments were created to protect the abundant and diverse coral, fish, and 

seabird populations; to facilitate exploration and scientific research; and to promote public education regarding the value of these 

national treasures. The establishment of the Monuments provides the opportunity to protect areas of outstanding scientific, 

cultural, conservation, and aesthetic value, and provide for the long-term preservation of these natural and cultural legacies. There 

are currently five Marine National Monuments, as follows:

● Marianas Trench Marine National Monument 

● Northeast Canyons and Seamounts Marine National Monument 

● Pacific Remote Islands Marine National Monument 

● Papahãnaumokuãkea Marine National Monument 

● Rose Atoll Marine National Monument 

Aleutian Islands Habitat Conservation Area: On July 28, 2006, NOAA formally established the Aleutian Islands Habitat Conservation 

Area in Alaska. The conservation area established a network of fishing closures in the Aleutian Islands and Gulf of Alaska, and 

protects habitat for deep-water corals and other sensitive features that are slow to recover once disturbed by fishing gear or other 

activities. This effort is part of a network of marine protected areas in Alaskan waters designed to protect essential fish habitat 

and prevent any further damage of the area.

FY 2017 AGENCY FINANCIAL REPORT | 105

NOTES TO THE FINANCIAL STATEMENTS
NOAA Habitat Blueprint: NOAA has responsibility for protecting habitat for fish, threatened and endangered species, marine 

mammals, and other natural resources within the coastal zone. Recognizing the need for more concerted efforts to conserve, 

protect, and restore habitat, NOAA developed the NOAA Habitat Blueprint to build on existing programs, prioritize its activities, 

and guide its future actions. This is being accomplished by creating Habitat Focus Areas. There are currently 10 Habitat Focus 

Areas, as follows:

● Penobscot River Watershed, ME

● Choptank River Watershed, MD/DE

● Muskegon Lake, MI

● St. Louis River Estuary, MN/WI

● Russian River Watershed, CA

● Kachemak Bay, AK

● West Hawaii, HI 

● Manell-GeusWatershed, GU

● Biscayne Bay, FL

● Northeast Reserves and Culebra Island, PR

Collection-type Heritage Assets: 

NOAA:

NOAA’s historical artifacts are designated collection-type heritage assets if they help illustrate the social, educational, and cultural 

heritage of NOAA and its predecessor agencies (Coast and Geodetic Survey, U.S. Fish Commission, the Weather Bureau, the 

Institutes for Environmental Research, the Environmental Science Services Administration, etc.). These artifacts include, but 

are not limited to: books, journals, publications, photographs, motion pictures, manuscripts, records, nautical chart plates, bells, 

gyrocompasses, brass citations, flags, pennants, chronometers, ship seals, clocks, compasses, fittings, miscellaneous ship 

fragments, lithographic plates, barometers, rain gauges, and any items that represent the uniqueness of the mission of NOAA 

and its predecessor agencies.

NOAA’s Logistics Office continually conducts inventories of its collection-type heritage assets. Many items that were once 

classified as an individual collection are now included in existing collections. Other items are now deemed as not meeting the 

heritage asset criteria. 

NOAA’s collection-type heritage assets include items in the Thunder Bay Sanctuary Research Collection (Collection). In 2004, the 

Thunder Bay National Marine Sanctuary (jointly managed by NOAA and the state of Michigan to protect and interpret a nationally 

significant collection of shipwrecks and other maritime heritage resources) established an agreement with the Alpena County George 

N. Fletcher Public Library to jointly manage this Collection. Amassed over a period of more than 40 years by historian C. Patrick 

Labadie, the Collection includes information about such diverse subjects as Great Lakes ports and waterways, docks, cargoes, 

ships, shipbuilders, owners and fleets, machinery and rigging, notable maritime personalities, and shipwrecks. Special features 

of the Collection are extensive collections of (1) data cards listing most of the ships on the Great Lakes before year 1900, a roster 

of some 15 thousand vessels complete with descriptive data and highlights of the ships’ careers and their ultimate losses; and 

(2) ship photograph negatives of 19th and 20th century Great Lakes ships. Heritage assets also include copies of vessel ownership 

documents, contemporary ship photographs, books, and other items documenting the Great Lakes history. 

NOAA’s collection-type heritage assets also include items in the National Climatic Data Center Library. Heritage assets include 

(1) books, manuals, and slides; (2) thermometers, gauges, and radiosondes; and (3) laboratory equipment. 

The Florida Keys National Marine Sanctuary (FKNMS) collection-type heritage assets include artifacts from shipwreck and wrecking 

events occurring in the Florida Keys over a 500-year period. FKNMS is an abundant mixture of natural and cultural, historical 

resources that include prehistoric cultures, and maritime history.

106 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

NOTES TO THE FINANCIAL STATEMENTS
NIST: 

NIST currently maintains collection-type heritage assets under its Museum and History Program, which collects, preserves, 

and exhibits artifacts, such as scientific instruments, equipment, and objects of significance to NIST and predecessor agencies. 

This program provides institutional memory and demonstrates the contributions of NIST to the development of standards 

measurement, technology, and science. The Information Services Office (ISO) maintains the historical archives and rare book 

collection, and oversees the oral history program. The historical archives and rare book collection contain titles that are considered 

“classics” of historical scientific interest, books by prominent scientists, and books by NIST authors or about NIST work. Titles 

are recommended for inclusion by ISO staff and customers. Materials are not specifically purchased for the collection nor are 

funds specifically allocated for the collection. Photos and manuscripts include images of NIST staff, facilities, and artifacts that 

demonstrate NIST history and accomplishments. The Heritage Assets listed in the chart is a subset of the total collection within 

the Museum and History Program.

NIST’s Museum and History Program has policies in place for acquisitions and loans. Objects are either on display or in storage 

and are not used by visitors. Archives, including the historical book collection, are used according to established research library 

policies and procedures. When considering artifacts for accession, the following criteria are considered: 

● Direct connection to NIST program activity; 

● Direct connection to a NIST prominent person; 

● Physical size; and 

● Safety considerations. 

Census Bureau: 

Collection-type heritage assets maintained by the Census Bureau are items considered unique for their historical, cultural, 

educational, technological, methodological, or artistic importance. They help illustrate the social, educational, and cultural heritage 

of the Census Bureau. Some items because of their age or obvious historical significance are inherently historical artifacts.

The Census Bureau has in place a Project Charter that outlines policies and procedures for the acquisition and removal of Census 

Bureau’s heritage assets. The Census Bureau Heritage Assets Committee decides if an item meets the criteria for a heritage 

asset based on the uniqueness, historical age, and/or if the item helps to illustrate the Census Bureau’s historic contributions to 

the Nation’s growth. If the item is deemed a heritage asset, the applicable property management office will ensure the heritage 

asset is catalogued and stored in a safe, secure environment, allowing for appropriate preservation and conservation. All necessary 

actions will be taken to reduce deterioration of heritage assets due to environmental conditions, and to limit damage, loss, and 

misuse of heritage assets. The Committee meets on a regular basis to determine if any heritage assets should be removed from 

the approved list, or if a newly arrived item should be classified as a heritage asset. Once a determination has been made to no 

longer classify an item as a heritage asset, the Census Bureau will follow any applicable established policies and procedures for 

surplus property.

FY 2017 AGENCY FINANCIAL REPORT | 107

NOTES TO THE FINANCIAL STATEMENTS
The following tables summarize the Department’s Collection-type Heritage Assets activity and balances.

Collection-type Heritage Assets: Collections

(In Actual Quantities)

Category Description of Assets

Quantity of 

Items Held 

September 30, 

2016

FY 2017 

Additions

FY 2017 

Withdrawals

Quantity of 

Items Held

September 30, 

2017

NOAA Central Library: 

Circulating Collection

Books, journals, and other 

publications 1 N/A1 N/A1 1

Rare Book Room 

Collection Books and publications 1 N/A1 N/A1 1

Collection of 

Photographs and 

Motion Pictures Photographs and motion pictures 1 N/A1 N/A1 1

Total 3 – – 3

1 N/A – Not applicable; this category is reported as one collection. 

Collection-type Heritage Assets: Individual Items

(In Actual Quantities)

Category Description of Assets

Quantity of 

Items Held 

September 30, 

2016

FY 2017 

Additions

FY 2017 

Withdrawals

Quantity of 

Items Held

September 30, 

2017

NOAA National Ocean Service 

– Thunder Bay Sanctuary 

Research Collection

Data cards, photograph negatives, 

document copies, photographs, 

books, and other items 106,254 – – 106,254

NOAA Central Library – Other 

Artifacts, documents, and 

other items 56 – 28 28

NOAA National Climatic Data 

Center Library 

Artifacts, books, documents, and 

other items 66 – – 66

NOAA Others 

Artifacts, artwork, books, films, 

instruments, maps, and records 3,384 34 8 3,410

NIST Artifacts and 

Scientific Measures 

National Bureau of Standards1/

NIST scientific instruments, 

equipment, and objects 1,320 69 4 1,385

NIST Historical Books 

and Manuscripts 

Books/manuscripts of historical 

scientific interest by prominent 

scientists 61 – – 61

Census Bureau Artwork 

and Gifts 

Artifacts, artwork, books, films, 

instruments, and records 159 – – 159

Census Bureau 

Collectable Assets 

Publications, books, manuscripts, 

photographs, and maps 33 – – 33

Total 111,333 103 40 111,396

1 National Bureau of Standards is the former name of NIST.

108 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

NOTES TO THE FINANCIAL STATEMENTS
Required Supplementary

Information

(Unaudited)

FINANCIAL SECTION
REQUIRED SUPPLEMENTARY INFORMATION (Unaudited)

A Deferred Maintenance and Repairs 

Deferred Maintenance and Repairs (DM&R) are maintenance and repairs that were not performed when they should have 

been, that were scheduled and not performed, or that were delayed for a future period. Maintenance and Repairs are activities 

directed towards keeping Property, Plant, and Equipment (PP&E) in acceptable operating condition. These activities include 

preventive maintenance, replacement of parts and structural components, and other activities needed to preserve the asset 

so that it can deliver acceptable performance and achieve its expected life. Maintenance and Repairs exclude activities 

aimed at expanding the capacity of an asset or otherwise upgrading it to serve needs different from, or significantly greater, 

than those originally intended. The significant portions of Departmental DM&R relate to PP&E of both the National Oceanic 

and Atmospheric Administration (NOAA) and the National Institute of Standards and Technology (NIST). These two entities 

comprise 94 percent of the Department’s General PP&E, Net balance as of September 30, 2017.

NOAA:

NOAA measures DM&R using Condition Assessment Surveys, which are periodic visual (i.e., physical) inspections of 

applicable PP&E to determine their current condition and estimated cost to correct any deficiencies, and by collecting 

information from its line offices. NOAA schedules its surveys for real property on a cyclical basis, with each appropriate 

asset being surveyed every five years. NOAA completed a condition survey of the entire applicable real property inventory 

in FY 2011. In FY 2015, NOAA started completing a new round of facility condition assessments (FCAs), and plans to 

complete assessments of the applicable inventory by the end of FY 2020. NOAA plans to continue a five-year assessment 

cycle so that the entire applicable inventory is assessed approximately every five years.

NOAA performs condition assessment surveys for capitalized NOAA-owned buildings, structures with acquisition cost over 

$200 thousand, heritage assets, and properties covered by capital lease that NOAA has executed. For financial reporting 

purposes, NOAA does not report on DM&R for:

● Owned real property that has been permanently removed from service or which NOAA is planning to permanently 

remove from service within five years;

● Structures with acquisition cost under $200 thousand; and

● Land and Stewardship Land as land does not have deferred maintenance.

NOAA prioritizes maintenance and repair projects to sustain its PP&E in good operating condition, including maintaining 

warranties. DM&R is impacted by funding shortfalls. As such, NOAA selects projects that will remedy life safety deficiencies 

and minimize risk of mission failure. 

Acceptable condition standards are established for real property by using building codes and/or industry standards for 

benchmarking and cost estimating. These standards are used to evaluate site and building conditions, which include 

the review of building systems such as civil, structure, architectural, life safety, mechanical, plumbing, elevators, electric, 

and others.

110 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED)
In measuring DM&R, the FCAs report physical deficiencies that cannot be remedied with normal operating maintenance, 

excluding de minimis conditions that generally do not present a material physical deficiency to the subject property. 

Actionable items are typically considered to be (1) material existing or potential unsafe conditions; (2) material building or 

fire code violations as revealed by municipal agencies; or (3) conditions that if left unremedied, have the potential to result 

in or contribute to critical element or system failure in the near term, or shall result most probably in a significant escalation 

of its remedial cost.

NOAA made changes in the method of calculating DM&R in the fourth quarter of FY 2017 to more accurately report DM&R. 

As discussed above, DM&R is not being reported for real property that is permanently removed from service or which 

NOAA plans to permanently remove from service within five years. NOAA has added, to its reporting, DM&R for structures 

that are above the $200 thousand acquisition cost materiality threshold. In addition, as a large number of FCAs have now 

been completed, NOAA reviewed all DM&R data and recalculated escalations as described below. 

The September 30, 2017 estimated DM&R is composed of DM&R for the applicable inventory from FCAs completed 

in FY 2015, FY 2016, and FY 2017. FCAs completed in FY 2015 utilized cost databases from 2014 and FCAs completed 

in FY 2016 and FY 2017 used a 2016 cost database. DM&R estimates have been escalated based on changes to the 

“Engineering News-Record” construction cost index changes since January 2014 and January 2016 for FCAs completed in 

FY 2015 and FY 2016/FY 2017 respectively. If the asset has yet to be assessed, the DM&R estimate from the Integrated 

Facilities Inspection Program in FY 2011 was utilized and escalated. All data has been escalated through August 2017.

The following table shows NOAA’s DM&R as of September 30, 2017 and September 30, 2016:

(In Thousands)

Asset Category

Deferred Maintenance 

and Repairs as of 

September 30, 2017

Deferred Maintenance 

and Repairs as of 

September 30, 2016

Buildings $ 90,178 $ 105,549

Multi-use Heritage Assets 529 95

Ships 25,119 28,441

Total $ 115,826 $ 134,085

NIST:

NIST measures DM&R using FCA surveys, which are periodic visual inspections of PP&E to determine their current 

condition, and estimates the costs to correct identified deficiencies. NIST accomplishes its facility condition assessments 

by contract. NIST originally scheduled its surveys on a cyclical basis with each appropriate asset being surveyed once every 

three years. For DM&R reporting purposes, NIST completed a baseline condition survey of the entire applicable inventory 

for the Gaithersburg, MD campus in 2011 and for the Boulder, CO campus in 2013. A third of the Gaithersburg inventory 

was reassessed in the third quarter of FY 2013, in the third quarter of FY 2014, and in the first quarter of FY 2015. A third 

of the Boulder inventory was reassessed in the second quarter of FY 2015, in the fourth quarter of FY 2016, and in the first 

quarter of FY 2017. 

Deficiencies can be added to the respective location’s backlog in years when contractor inspections are not scheduled. 

During the scheduled on-site assessment, the contract inspector estimates the remaining useful life of various components 

that comprise a building’s mechanical or electrical or architectural system, and records this information in the assessment 

FY 2017 AGENCY FINANCIAL REPORT | 111

REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED)
software program. When a particular building system nears the end of its useful life, a new self-generated (by the software 

program) facility deficiency is added to the backlog list.

With the end of the Gaithersburg Condition Assessment Surveys contract in 2016 and anticipating the end of the Boulder 

contract in 2018, NIST is evaluating the need for the three-year cycle frequency of the reassessments as it prepares the 

Statement of Work requirements for the follow-on contract. The next contract will encompass both campuses within the 

same contract, unlike in the past where the FCAs were conducted through separate, individual campus-focused contracts. 

The Federal Real Property Council’s latest guidance requires facility assessments for each facility every five years if using 

condition assessments for reporting DM&R needs. NIST, in coordination with the Department, is migrating its facility condition 

assessments data over to the U.S. Army Corps of Engineer’s BUILDER Sustainment Management System (SMS). The 

BUILDER SMS uses a knowledge-based philosophy that does not rely on fixed frequencies of inspections or assessments. 

It is widely accepted and being used by all branches of the U.S. Department of Defense, the National Nuclear Security 

Administration within the U.S. Department of Energy, and other Executive Branch offices of the U.S. Government.

DM&R relates to capitalized, non-capitalized, and fully depreciated real property. DM&R for real property is reported for 

individual items with DM&R estimates greater than $5 thousand. Items estimated to cost less than $5 thousand are 

shared with the facility managers for correction as emergency/service calls or minor work orders. Examples of the types 

of items that fall below the $5 thousand threshold include minor repairs to interior finishes and doors, caulk replacement, 

minor pipe and valve leaks, and minor mechanical and electrical repairs.

NIST prioritizes real property maintenance and repair projects to sustain its PP&E in good operating condition, including 

maintaining warranties. DM&R is impacted by funding shortfalls. As such, NIST selects projects that will remedy life safety 

deficiencies and minimize risk of mission failure as PP&E enables the accomplishment of the mission. 

Individual real property maintenance and repair projects are prioritized using a risk matrix procedure which determines the 

severity of the risk-rank (i.e., minimal, low, medium, serious, or critical). Based on the type of project (maintenance and repair, 

code compliance and safety, or capacity) and the distress type, the appropriate risk matrix is used and a risk-rank assigned. 

Ranking can be adjusted to take into account current projects underway, prioritization of future candidate projects, and 

budgetary funding outlook.

Acceptable real property facility condition standards are established by using building codes and/or industry standards for 

benchmarking and cost estimating. These standards are used to evaluate site and interior conditions, life safety, mechanical 

and plumbing systems, elevator and conveying systems, electrical systems, structural systems, building envelope closure 

systems, etc.

Real property facility condition index (FCI) values are calculated for each NIST facility. The ratio of the cost of correcting all 

facility deficiencies in a building divided by the cost of replacing the building is expressed on a 100 percentage point scale. 

The FCI index is 100 minus this ratio of cost expressed. This is somewhat similar to a system described by the Building 

Research Board of the National Research Council. Generally, a facility with an index above 95 is considered excellent, 

between 95 and 90 is good, between 90 and 85 is fair, and below 85 is considered poor.

Effective 2016, NIST measures DM&R for personal property by assessing the value/cost of a scheduled maintenance or repair 

event that has been delayed for any reason and the delay extends beyond the end of the current fiscal year. Assessments 

are performed on all capitalized personal property with costs that exceed $100 thousand. DM&R for personal property is 

reported for individual items with DM&R estimates greater than $5 thousand.

112 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED)
The following table shows NIST’s DM&R as of September 30, 2017 and September 30, 2016:

(In Thousands)

Assets Category

Deferred Maintenance 

and Repairs as of 

September 30, 2017

Deferred Maintenance 

and Repairs as of 

September 30, 2016

Buildings $ 331,737 $ 319,426

Site Utilities and Infrastructure 25,777 26,802

Total $ 357,514 $ 346,228

B Combining Schedule of Budgetary Resources by Major Budget Account

The table on the following pages illustrates the Department’s FY 2017 budgetary resources by major budget account.

FY 2017 AGENCY FINANCIAL REPORT | 113

REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED)
United States Department of Commerce Combining Schedule of Budgetary Resources by Major Budget Account

For the Year Ended September 30, 2017 (In Thousands)

Combined 

Total

Census 

Bureau 

Periodic 

Censuses and 

Programs

NIST 

Scientific 

and 

Technical 

Research 

and Services

NOAA

Operations, 

Research, and

Facilities

NOAA

Procurement,

Acquisition, 

and 

Construction

NTIA Digital 

Television 

Transition 

and Public 

Safety Fund

NTIA

Network 

Construction 

Fund

NTIA

Public Safety 

Trust Fund

USPTO

 Salaries

 and

Expenses

Other 

Budget 

Accounts

BUDGETARY RESOURCES:Unobligated Balance, Brought Forward, October 1 $ 9,516,833 $ 33,242 $ 21,817 $ 379,957 $ 264,553 $ – $ 6,595,215 $ 481,862 $ 461,238 $ 1,278,949Adjustments to Unobligated Balance, Brought Forward 80,050 – – – 80,050 – – – – –Unobligated Balance, Brought Forward, October 1, as Adjusted 9,596,883 33,242 21,817 379,957 344,603 – 6,595,215 481,862 461,238 1,278,949Actual Recoveries of Prior-years Unpaid Obligations 290,631 29,310 4,666 58,663 21,584 – 7,207 864 33,163 135,174Actual Nonexpenditure Transfers of Unobligated Balance, Net 986 – – (800) – – – – – 1,786Borrowing Authority Withdrawn (3,324) – – – – – – – – (3,324)Other Changes in Unobligated Balance, Net (50,757) (7,135) 2 (27,960) (8,451) – 1,734 – 340 (9,287)Unobligated Balance From Prior-years Budget Authority, Net 9,834,419 55,417 26,485 409,860 357,736 – 6,604,156 482,726 494,741 1,403,298Appropriations 9,524,248 1,210,345 695,900 3,543,178 2,223,236 – – 22,461 – 1,829,128Borrowing Authority 76,637 – – – – – – – – 76,637Spending Authority From Offsetting Collections 5,001,602 – – 266,305 – – – 77 3,082,829 1,652,391TOTAL BUDGETARY RESOURCES $ 24,436,906 $ 1,265,762 $ 722,385 $ 4,219,343 $ 2,580,972 $ – $ 6,604,156 $ 505,264 $ 3,577,570 $ 4,961,454STATUS OF BUDGETARY RESOURCES:New Obligations and Upward Adjustments $ 15,970,699 $ 1,246,082 $ 712,117 $ 3,874,921 $ 2,182,327 $ – $ 1,064,676 $ 32,801 $ 3,203,995 $ 3,653,780Unobligated Balance, End of Year 

Apportioned, Unexpired Accounts 7,547,610 6,807 9,400 207,665 275,569 – 5,530,538 136,889 373,575 1,007,167Exempt From Apportionment, Unexpired Accounts 1,415 – – – – – – – – 1,415Unapportioned, Unexpired Accounts 567,714 – 820 50,793 105,075 – 8,942 335,574 – 66,510

Unobligated Balance, End of Year, Unexpired Accounts 8,116,739 6,807 10,220 258,458 380,644 – 5,539,480 472,463 373,575 1,075,092Unobligated Balance, End of Year, Expired Accounts 349,468 12,873 48 85,964 18,001 – – – – 232,582Total Unobligated Balance, End of Year 8,466,207 19,680 10,268 344,422 398,645 – 5,539,480 472,463 373,575 1,307,674TOTAL STATUS OF BUDGETARY RESOURCES $ 24,436,906 $ 1,265,762 $ 722,385 $ 4,219,343 $ 2,580,972 $ – $ 6,604,156 $ 505,264 $ 3,577,570 $ 4,961,454

(Continued on next page)

114 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED)
(continued from previous page)

United States Department of Commerce Combining Schedule of Budgetary Resources by Major Budget AccountFor the Year Ended September 30, 2017 (In Thousands) (continued)

Combined 

Total

Census 

Bureau 

Periodic 

Censuses and 

Programs

NIST 

Scientific 

and 

Technical 

Research 

and Services

NOAA

Operations, 

Research, and

Facilities

NOAA

Procurement,

Acquisition, 

and 

Construction

NTIA Digital 

Television 

Transition 

and Public 

Safety Fund

NTIA

Network 

Construction 

Fund

NTIA

Public Safety 

Trust Fund

USPTO

 Salaries

 and

Expenses

Other 

Budget 

Accounts

CHANGE IN UNPAID OBLIGATED BALANCE, NET:Unpaid Obligations:Unpaid Obligations, Brought Forward, October 1 $ 7,140,752 $ 352,095 $ 214,995 $ 2,033,643 $ 1,513,865 $ 15,136 $ 47,418 $ 6,926 $ 590,099 $ 2,366,575New Obligations and Upward Adjustments 15,970,699 1,246,082 712,117 3,874,921 2,182,327 – 1,064,676 32,801 3,203,995 3,653,780Outlays, Gross (15,323,401) (1,180,953) (726,648) (3,668,739) (1,931,834) (1,473) (1,069,927) (32,762) (3,179,846) (3,531,219)Actual Recoveries of Prior-years Unpaid Obligations (290,631) (29,310) (4,666) (58,663) (21,584) – (7,207) (864) (33,163) (135,174)UNPAID OBLIGATIONS, END OF YEAR $ 7,497,419 $ 387,914 $ 195,798 $ 2,181,162 $ 1,742,774 $ 13,663 $ 34,960 $ 6,101 $ 581,085 $ 2,353,962Uncollected Customer Payments:Uncollected Customer Payments, Brought Forward, October 1 $ (564,742) $ – $ – $ (363,663) $ – $ – $ – $ (326) $ (53) $ (200,700)Change in Uncollected Customer Payments (70,925) – – (38,402) – – – 200 52 (32,775)UNCOLLECTED CUSTOMER PAYMENTS, END OF YEAR $ (635,667) $ – $ – $ (402,065) $ – $ – $ – $ (126) $ (1) $ (233,475)Unpaid Obligated Balance, Net, Brought Forward, October 1 $ 6,576,010 $ 352,095 $ 214,995 $ 1,669,980 $ 1,513,865 $ 15,136 $ 47,418 $ 6,600 $ 590,046 $ 2,165,875Unpaid Obligated Balance, Net, End of Year $ 6,861,752 $ 387,914 $ 195,798 $ 1,779,097 $ 1,742,774 $ 13,663 $ 34,960 $ 5,975 $ 581,084 $ 2,120,487BUDGET AUTHORITY, NET:Budget Authority, Gross $ 14,602,487 $ 1,210,345 $ 695,900 $ 3,809,483 $ 2,223,236 $ – $ – $ 22,538 $ 3,082,829 $ 3,558,156Actual Offsetting Collections (5,021,102) (2,408) (56) (232,760) (212) – (1,734) (278) (3,085,221) (1,698,433)Change in Uncollected Customer Payments (70,925) – – (38,402) – – – 200 52 (32,775)Less: Recoveries of Prior-years Paid Obligations

Included in Actual Offsetting Collections 22,120 2,408 56 4,857 212 – 1,734 – 340 12,513

BUDGET AUTHORITY, NET $ 9,532,580 $ 1,210,345 $ 695,900 $ 3,543,178 $ 2,223,236 $ – $ – $ 22,460 $ (2,000) $ 1,839,461OUTLAYS, NET:Outlays, Gross $ 15,323,401 $ 1,180,953 $ 726,648 $ 3,668,739 $ 1,931,834 $ 1,473 $ 1,069,927 $ 32,762 $ 3,179,846 $ 3,531,219Actual Offsetting Collections (5,021,102) (2,408) (56) (232,760) (212) – (1,734) (278) (3,085,221) (1,698,433)Outlays, Net 10,302,299 1,178,545 726,592 3,435,979 1,931,622 1,473 1,068,193 32,484 94,625 1,832,786Distributed Offsetting (Receipts)/Outlays, Net (40,066) – – – – – – – – (40,066)AGENCY OUTLAYS, NET $ 10,262,233 $ 1,178,545 $ 726,592 $ 3,435,979 $ 1,931,622 $ 1,473 $ 1,068,193 $ 32,484 $ 94,625 $ 1,792,720

FY 2017 AGENCY FINANCIAL REPORT | 115

REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED)
116 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED)
Required Supplementary

Stewardship Information

(Unaudited)

FINANCIAL SECTION
REQUIRED SUPPLEMENTARY STEWARDSHIP INFORMATION

(Unaudited)

Stewardship Investments

Stewardship investments are substantial investments made by the federal government for the benefit of the Nation, but are not 

physical assets owned by the federal government. Though treated as expenses when incurred to determine the Department’s Net 

Cost of Operations, these items merit special treatment so that users of federal financial reports know the extent of investments 

that are made for the long-term benefit of the Nation.

Investments in Non-federal Physical Property:

Non-federal physical property investments are expenses included in the Department’s Net Cost of Operations for the purchase, 

construction, or major renovation of physical property owned by state and local governments. Based on a review of the Department’s 

programs, the Economic Development Administration (EDA) and the National Oceanic and Atmospheric Administration (NOAA) 

have significant investments in non-federal physical property.

EDA’s and NOAA’s investments in non-federal physical property for FY 2013 through FY 2017 were as follows:

(In Millions)

Program FY 2017 FY 2016 FY 2015 FY 2014 FY 2013 Total

EDA:

Public Works $ 121.3 $ 113.8 $ 101.0 $ 114.0 $ 120.5 $ 570.6

Economic Adjustment Assistance 16.3 25.4 32.5 42.3 66.8 183.3

Global Climate Change Mitigation Incentive Fund – – – 10.6 14.9 25.5

Assistance to Coal Communities 20.3 8.5 – – – 28.8

Disaster Recovery 7.7 15.6 8.8 98.7 146.2 277.0

EDA Subtotal 165.6 163.3 142.3 265.6 348.4 1,085.2

NOAA:

National Estuarine Research Reserves 1.2 1.6 0.7 1.1 2.4 7.0

Coastal and Estuarine Land Conservation Program – 0.5 0.2 0.5 5.7 6.9

NOAA Subtotal 1.2 2.1 0.9 1.6 8.1 13.9

Total $ 166.8 $ 165.4 $ 143.2 $ 267.2 $ 356.5 $ 1,099.1

EDA:

EDA’s investments in non-federal physical property, other than Disaster Recovery, require matching funds by state and local 

governments of 20 to 50 percent. Disaster Recovery grants do not require matching funds and can be up to 100 percent 

of the investment costs.

118 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

REQUIRED SUPPLEMENTARY STEWARDSHIP INFORMATION (UNAUDITED)
Public Works: The Public Works program promotes long-term economic development in distressed areas by providing 

investments for vital public infrastructure and development facilities. These critical investments enable communities to 

attract new, or support existing, businesses that will generate new jobs and income for unemployed and underemployed 

residents. Among the types of projects funded are water, sewer, fiber optics, access roads, and facilities such as industrial 

and business parks, business incubator and skill training facilities, and port improvements.

Economic Adjustment Assistance: The Economic Adjustment Assistance program provides flexible investments for communities 

facing sudden or severe economic distress to diversify and stabilize their economies. Factors that seriously threaten the 

economic survival of communities include plant closures, military base closures or realignments, defense laboratory or 

contractor downsizings, natural resource depletion, out-migration, under-employment, and the impacts of foreign trade. 

Global Climate Change Mitigation Incentive Fund (GCCMIF): The last fiscal year of funding for the GCCMIF program was 

FY 2011. The funding for this program is fully expensed. EDA is not anticipating future grants from this funding source. 

GCCMIF program financed projects that fostered economic development by advancing the green economy in distressed 

communities and developed and used products and services that contributed to economic growth and alleviated economic 

distress by respecting and revitalizing the environment. GCCMIF program supported projects that created jobs through, and 

increase private capital investment in, efforts to limit the Nation’s dependence on fossil fuels, enhance energy efficiency, 

curb greenhouse gas emissions, and protect natural systems.

Assistance to Coal Communities: This program competitively awards grants to coalitions of regionally-driven economic 

development and workforce development organizations anchored in impacted coal communities. These grants enable 

grantees to take deliberate and measured steps to build economic resilience, industry diversification, and promote new job 

creation opportunities. Competitive projects are tightly linked to existing economic and workforce development strategic 

plans. These activities should result in more competitive and resilient “pipelines” of skilled workers moving into new 

job opportunities. Eligible activities include helping communities: organize themselves to respond on behalf of affected 

workers and businesses; strengthen or develop targeted industry clusters; prepare and train the existing workforce for 

new jobs; and help and execute coordinated economic and workforce development activities based on communities 

strategic plans. These activities should result in more competitive and resilient “pipelines” of skilled workers moving into 

new job opportunities.

Disaster Recovery: EDA supports the repair of infrastructure and economic development-related facilities damaged by floods 

and other natural disasters. Funding for Disaster Recovery is generally through supplemental appropriations from Congress 

for recovery efforts to save, sustain, and preserve private enterprise and job creation in economically distressed communities. 

NOAA:

National Estuarine Research Reserves (NERR): NERR system consists of 29 estuarine reserves protected by federal, state, and 

local partnerships that work to preserve and protect the Nation’s estuaries. NERR system helps to fulfill NOAA’s stewardship 

mission to sustain healthy coasts by improving the Nation’s understanding and stewardship of estuaries. Estuarine reserves 

are the areas where freshwater from rivers meet the ocean. These areas are known as bays, swamps, sloughs, and sounds. 

These important coastal habitats are used as spawning grounds and nurseries for the Nation’s commercial fish and shellfish. 

Estuaries filter much of the polluted runoff from rivers and streams that would otherwise contaminate oceans. The reserves 

were created with the passage of the Coastal Zone Management Act of 1972, and, as of September 30, 2017, encompassed 

approximately 1.4 million acres of estuarine waters, wetlands, and uplands. The most recent reserve, He’eia, HI, was 

designated on January 19, 2017. NERRs are state-operated and managed in cooperation with NOAA. NOAA’s investments in 

non-federal physical property are for the acquisition of lands and development or construction of facilities, auxiliary structures, 

and public access routes for any NERR site.

FY 2017 AGENCY FINANCIAL REPORT | 119

REQUIRED SUPPLEMENTARY STEWARDSHIP INFORMATION (UNAUDITED)
Coastal and Estuarine Land Conservation Program: This program was established under the Commerce, Justice, and State 

Appropriations Act of 2002, “for the purpose of protecting important coastal and estuarine areas that have significant 

conservation, recreation, ecological, historical, or aesthetic values, or that are threatened by conversion from their natural 

or recreational state to other uses.” The investments in non-federal physical property include matching grants awarded to 

state and local governments for land acquisition in coastal and estuarine areas. Since FY 2002, matching grants have been 

directed to 208 such projects.

Coastal Zone Management Fund: The Coastal Zone Management Program is authorized by the Coastal Zone Management 

Act of 1972, and administered at the federal level by NOAA’s Office of Ocean and Coastal Resource Management. NOAA’s 

financing supports various coastal states in their redevelopment of deteriorating and urbanized waterfronts and ports, as 

well as providing for public access to beaches and coastal areas. The state and local governments receive funding for these 

investments through NOAA grant expenditures, for the purpose of preservation or restoration of coastal resources and 

habitats. There is currently not in place a mechanism for the state and local governments to determine and report to NOAA 

the amount of monies they expend for the investments in non-federal physical property. The Department, accordingly, cannot 

report the amount of investments in non-federal physical property for the Coastal Zone Management Fund. The amount of 

Coastal Zone Management Funds expended by the U.S. federal government is zero.

Investments in Human Capital:

Human capital investments are expenses, included in the Department’s Net Cost of Operations, for education and training programs 

that are intended to increase or maintain national economic productive capacity and produce outputs and outcomes that provide 

evidence of the constant or increasing national productive capacity. These investments exclude education and training expenses 

for federal civilian and military personnel. Based on a review of the Department’s programs, the most significant investments in 

human capital are by NOAA.

The following table summarizes NOAA’s investments in human capital for FY 2013 through FY 2017:

(In Millions)

Program FY 2017 FY 2016 FY 2015 FY 2014 FY 2013 Total

National Sea Grant College Program $ 1.1 $ 0.9 $ 0.7 $ 0.8 $ 0.7 $ 4.2

National Estuarine Research Reserve Program 1.5 1.5 1.5 1.3 1.4 7.2

Educational Partnership Program 14.1 14.3 14.3 14.3 13.0 70.0

Ernest F. Hollings Undergraduate Scholarship Program 5.7 5.8 5.5 6.2 5.0 28.2

Other Programs 0.2 0.2 0.4 0.7 0.7 2.2

Total $ 22.6 $ 22.7 $ 22.4 $ 23.3 $ 20.8 $ 111.8

National Sea Grant College Program: Sea Grant is a nationwide network, administered through NOAA, of 34 university-based 

programs that work with coastal communities. With the adoption in 1966 of the National Sea Grant College Act, Congress 

established an academic/industry/government partnership that would enhance the Nation’s education, economy, and 

environment into the 21st century. The program supports activities designed to increase public awareness of coastal, ocean, 

and Great Lakes issues; to provide information to improve management decisions in coastal, ocean, and Great Lakes policy; 

and to train graduate students in marine and Great Lakes science. The Knauss Fellowship Program offers qualified masters 

and doctoral students the opportunity to spend a year working on marine and Great Lakes policy issues with the Executive 

and Legislative branches of the federal government. During FY 2017, the program awarded 62 fellowships: 14 fellowships 

120 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

REQUIRED SUPPLEMENTARY STEWARDSHIP INFORMATION (UNAUDITED)
funded by the National Sea Grant College Program, and 48 fellowships funded by other NOAA offices and other federal 

agencies. During FY 2017, the NMFS-Sea Grant Graduate Fellowship Program began funding seven new fellows. Participants 

in this program can receive up to three years of funding.

National Estuarine Research Reserve Program: This program supports activities designed to increase public awareness of 

estuary issues, provide information to improve management decisions in estuarine areas, and train graduate students in 

estuarine science.

Educational Partnership Program: The NOAA Educational Partnership Program (EPP) with Minority Serving Institutions (MSI) 

provides financial assistance through competitive processes to minority serving institutions that support research and training 

of students in NOAA-related sciences (EPP Cooperative Science Centers). The program’s goal is to increase the number of 

trained and graduated students, from underrepresented communities in science and technology, directly related to NOAA’s 

mission. EPP/MSI also seeks to increase collaborative research efforts between NOAA scientists and researchers at minority 

serving academic institutions through the EPP Cooperative Science Centers. In FY 2017, EPP Cooperative Science Centers 

awarded approximately 70 degrees to students.

Ernest F. Hollings Undergraduate Scholarship Program: This program was established in 2005 to (1) increase undergraduate 

training in oceanic and atmospheric science, research, technology, and education, and foster multidisciplinary training 

opportunities; (2) increase public understanding and support for stewardship of the ocean and atmosphere and improve 

environmental literacy; (3) recruit and prepare students for public service careers with NOAA and other agencies at the 

federal, state, and local levels of government; and (4) recruit and prepare students for careers as teachers and educators in 

oceanic and atmospheric science and to improve scientific and environmental education in the United States. In FY 2017, 

the program added 110 students.

Other Programs:

Southeast Fisheries Science Center’s Recruiting Training Research Program: This is a joint program between NOAA’s National 

Marine Fisheries Service (NMFS) and the University of Florida. The objectives of the program are the following: (1) to recruit 

top undergraduate and graduate students into the field of fisheries population dynamics and careers with NMFS; (2) to train 

graduate students; and (3) to conduct population dynamics and stock assessment research in support of the NMFS mission. 

The program also offers graduate courses and workshops in computer programming, simulation modeling, and fish population 

dynamics.

Northeast Fisheries Science Center Partnership Education Program (PEP): This program of NOAA’s NMFS leads a consortium 

of six science institutions in Woods Hole, MA, offering a 10-week summer program that combines undergraduate course 

work with research in marine and environmental science. Launched in 2009, PEP is an ongoing diversity program designed 

to recruit talent from minority groups that are under-represented in marine and environmental sciences. PEP recruitment 

targets college students with priority given to entering juniors and seniors majoring in the natural sciences who have had 

some course work in marine and/or environmental science. The program includes a credit course taught in Woods Hole by 

research scientists from Woods Hole science institutions, student research projects, and presentation of research results in 

a one-day seminar. In FY 2017, 16 students participated in the 10-week summer program. 

Woods Hole Science Aquarium (WHSA) High School Intern Program: WHSA typically offers three summer programs for 

students who have completed grades 10, 11, or 12. Interns selected for the five-week program work in the aquarium, help 

lead public collecting walks, and participate in the Careers in Marine Science seminars. The one and two-week Careers in 

Marine Science seminars consist of short presentations by marine scientists, activities, and field trips that introduce students 

to marine-related careers. All students learn basic animal husbandry and aquarist skills, visit the local Woods Hole research 

FY 2017 AGENCY FINANCIAL REPORT | 121

REQUIRED SUPPLEMENTARY STEWARDSHIP INFORMATION (UNAUDITED)
institutions, meet with working scientists in a variety of fields, and visit area aquariums, zoos, and waterfronts. During 

FY 2017, the program consisted of a six-week internship and a two-week seminar program. Two students participated in the 

six-week program, and seven in the two-week program. The Aquarium also hosted three college undergraduate summer 

interns from the University of Chicago. 

Pacific Islands Fisheries Science Center (PIFSC) Young Scientist Opportunity (PYSO): PYSO offers qualified college students 

professional work experience and formal training opportunities tailored to meet their educational and professional goals and 

interests. PYSO is a paid, summer-long (8-12 weeks) internship program that combines on-the-job training, formal training, 

one-to-one mentoring, and developmental assignments at PIFSC. Internship opportunities are available in specific PIFSC 

research topics ranging from marine ecology to socioeconomics. During FY 2017, PIFSC hosted four undergraduate summer 

interns at the Inouye Regional Center in Honolulu, HI.

Investments in Research and Development (R&D):

Investments in R&D are expenses that are included in the Department’s Net Cost of Operations. The investments are divided 

into three categories: (1) basic research, the systematic study to gain knowledge or understanding of the fundamental aspects 

of phenomena and of observable facts without specific applications toward processes or products in mind; (2) applied research, 

the systematic study to gain knowledge or understanding necessary for determining the means by which a recognized 

and specific need may be met; and (3) development, the systematic use of the knowledge and understanding gained from 

research for the production of useful materials, devices, systems, or methods, including the design and development of 

prototypes and processes. The investments are made with the expectation of maintaining or increasing national economic 

productive capacity, or yielding other future economic or societal benefits. Based on a review of the Department’s programs, 

the significant investments in R&D are by the National Institute of Standards and Technology (NIST) and NOAA.

NIST:

The following table summarizes NIST’s R&D investments for FY 2013 through FY 2017:

(In Millions)

Program

FY 2017 

Basic Applied Development Total FY 2016 FY 2015 FY 2014 FY 2013 Total

NIST Laboratories Program $ 274.7 $ 448.9 $ 10.6 $ 734.2 $ 756.0 $ 717.2 $ 657.5 $ 603.6 $ 3,468.5

Manufacturing USA, Advanced 

Manufacturing Technology 

Consortia, and Technology 

Innovation Program 2.9 3.4 2.3 8.6 14.4 5.2 7.2 21.2 56.6

Public Safety Communications 

Research Program – 21.7 – 21.7 – – – – 21.7

Total $ 277.6 $ 474.0 $ 12.9 $ 764.5 $ 770.4 $ 722.4 $ 664.7 $ 624.8 $ 3,546.8

NIST Laboratories Program: 

For more than 100 years, NIST has maintained the national standards of measurement, a role that the U.S. Constitution 

assigns to the federal government. Today, NIST Laboratories address increasingly complex measurement challenges. NIST 

develops measurements focusing on the very small (e.g., nanotechnology devices), the very large (e.g., skyscrapers), the 

physical (e.g., methods for characterizing strands of DNA for forensic testing), and the virtual (e.g., methods for testing 

electronic health record systems). 

122 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

REQUIRED SUPPLEMENTARY STEWARDSHIP INFORMATION (UNAUDITED)
● NIST Laboratories work at the frontiers of measurement science to ensure that the Nation’s system of measurements 

is firmly grounded on a sound scientific and technical foundation. NIST also promotes the use of measurements based 

on the international system of units.

● NIST Laboratories work to assure that the Nation’s realization of the basic and derived measurement units is consistent 

with the realization in other nations. NIST Laboratories engage in a number of international activities to support trade and 

global science, and to promote the international acceptance of the Nation’s measurement standards. 

● NIST Laboratories provide industry and academia with unique user facilities that support innovation in materials science, 

nanotechnology, and other emerging technology areas through the NIST Center for Neutron Research, which provides 

world-class neutron measurement capabilities to the Nation’s research community, and through the NIST Center for 

Nanoscale Science and Technology, which supports nanotechnology development from discovery to production. 

● NIST Laboratories also support the development of standards and specifications that define technical and performance 

requirements for goods and services. These standards—also known as documentary standards—are often developed 

collaboratively with the private sector through an open, consensus-based process. NIST scientists and engineers lend 

their expertise to these efforts in order to promote standards that are based on sound science, and to ensure that the 

standards are supported by effective measurements and testing methods for conformity. In addition, NIST is designated 

under the National Technology Transfer Advancement Act as the coordinator for all federal agencies using documentary 

standards that are developed by private sector consensus bodies to carry out their policy objectives.

Manufacturing USA:

Manufacturing USA was renamed from the National Network for Manufacturing Innovation in September 2016. This 

program was first appropriated funds of $25.0 million in FY 2016, pursuant to the Revitalize American Manufacturing and 

Innovation Act of 2014 (RAMI). The FY 2017 appropriations for NIST also provided funding for this program of $25.0 million. 

This program and funding is part of government-wide efforts to strengthen the U.S. advanced manufacturing sector.

As part of its efforts to revitalize U.S. manufacturing, NIST proposed and Congress authorized (RAMI) Manufacturing USA, 

which would consist of a network of manufacturing innovation institutes where researchers, companies, universities, 

community colleges, and entrepreneurs can come together to develop new manufacturing technologies with broad 

applications, as well as train the workforce needed to work in advanced manufacturing industries. The primary goal is to 

ensure that American innovations and inventions, currently going off-shore for production in competitor nations, would 

be scaled up from the lab-scale experiments to industrial scale by developing new manufacturing processes to be used 

by entire industry sectors.

Each institute in Manufacturing USA has a unique technology focus with the objective of creating self-sustaining regional 

manufacturing hubs that have national impact. The institutes help support an ecosystem of manufacturing activity in 

regions of the United States. The institutes support manufacturing technology commercialization by helping to bridge the 

gap from the laboratory to the market and address core gaps in scaling manufacturing process technologies.

Already, Manufacturing USA has established or announced nine manufacturing innovation institutes, with six more planned by 

the end of 2017. Within each institute, manufacturers of all sizes partner with academia and government to share manufacturing 

technology and workforce challenges—and build a robust, sustainable R&D infrastructure.

In FY 2017, six new Manufacturing USA institutes were added to the network, for a total of 14 manufacturing innovation 

institutes. NIST provides funding for the National Institute for Innovation in Manufacturing Biopharmaceuticals. This institute’s 

mission is to accelerate biopharmaceutical manufacturing innovation, support the development of standards that enable 

FY 2017 AGENCY FINANCIAL REPORT | 123

REQUIRED SUPPLEMENTARY STEWARDSHIP INFORMATION (UNAUDITED)
more efficient and rapid manufacturing capabilities, and educate and train a world-leading biopharmaceutical manufacturing 

workforce, fundamentally advancing the United States competitiveness in this industry. 

The Manufacturing USA network is operated by the interagency Advanced Manufacturing National Program Office of NIST. 

The office is staffed by representatives from federal agencies with manufacturing-related missions as well as fellows from 

manufacturing companies and universities, and provides infrastructure support for the network and all institutes within the 

network. The office operates in partnership with the U.S. Department of Defense, U.S. Department of Energy, National 

Aeronautics and Space Administration, National Science Foundation, U.S. Department of Education, U.S. Department of 

Agriculture, and U.S. Department of Labor.

Public Safety Communications Research Program:

NIST executes funding provided to its Wireless Innovation Fund to help develop cutting-edge wireless technologies for public 

safety users, as part of the National Wireless Initiative included in the Middle Class Tax Relief and Job Creation Act of 2012. 

This Act provides for a total of $300.0 million in public safety research funding for NIST, that has or will be provided to the 

Wireless Innovation Fund as applicable, to help industry and public safety organizations conduct research and develop new 

standards, technologies, and applications to advance public safety communications in support of the initiative’s efforts to 

build an interoperable Nationwide Public Safety Broadband Network.

NOAA:

NOAA’s R&D investments by program from FY 2013 through FY 2017 were as follows:

(In Millions)

Program

FY 2017 

Basic Applied Development Total FY 2016 FY 2015 FY 2014 FY 2013 Total

Environmental and Climate $ – $ 382.8 $ 69.7 $ 452.5 $ 405.5 $ 298.4 $ 294.1 $ 326.3 $ 1,776.8

Fisheries – 43.1 14.6 57.7 53.4 50.3 43.4 51.2 256.0

Marine Operations and 

Maintenance and Aircraft 

Services – 15.6 10.4 26.0 29.9 29.2 29.7 32.4 147.2

Weather Service – 3.8 16.9 20.7 18.7 42.7 29.3 28.6 140.0

Other – 53.3 14.8 68.1 70.4 30.0 63.5 74.8 306.8

Total $ – $ 498.6 $ 126.4 $ 625.0 $ 577.9 $ 450.6 $ 460.0 $ 513.3 $ 2,626.8

NOAA conducts a substantial program of environmental R&D in support of its mission, much of which is performed to 

improve the United States’ understanding of and ability to predict environmental phenomena, and is intended to provide a 

solid scientific basis for environmental policy-making in government. The scope of research includes:

● Improving predictions and warnings associated with the weather, on timescales ranging from minutes 

to weeks;

● Improving predictions of climate, on timescales ranging from months to centuries; and

● Improving understanding of natural relationships to better predict and manage renewable marine resources 

and coastal and ocean ecosystems.

124 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

REQUIRED SUPPLEMENTARY STEWARDSHIP INFORMATION (UNAUDITED)
Here is a brief description of the major R&D programs of NOAA:

Environmental and Climate: The Office of Oceanic and Atmospheric Research (OAR) is NOAA’s primary R&D office. This 

office conducts research in three major areas: climate research; weather and air quality research; and ocean, coastal, 

and Great Lakes research. NOAA’s research laboratories, Climate Program Office, and research partners conduct 

wide-ranging research into complex climate systems, including the exploration and investigation of ocean habitats 

and resources. NOAA’s research organizations conduct applied research on the atmosphere to predict severe weather 

events and hazardous conditions that threaten life, property, and economic well being. OAR research laboratories 

then develop high-resolution regional and global weather prediction models and software applications for forecasters 

that transfer into operations at the National Weather Service to significantly improve services to the public. These 

products are helping to evolve the National Weather Service into providing decision support to users in addition to 

weather forecasts.

Fisheries: NOAA’s NMFS is responsible for the conservation and management of living marine resources and their 

habitat within the Nation’s Exclusive Economic Zone. NMFS manages these resources through science-based 

conservation and management to ensure their continuation as functioning components of productive ecosystems, 

while also affording economic opportunities and enhancing the quality of life for the American public. Fishery stocks 

and protected species are surveyed; catch, by catch, incidental take, economic and social data are collected; and 

research is conducted to better understand the variables affecting the abundance and variety of marine fishes and 

protected species, their habitat, and the benefits they provide to society. Protection of endangered species, restoration 

of coastland estuarine fishery habitats, and enforcement of fishery regulations are primary NOAA activities. The 

research and management of living marine resources is conducted in partnership with states, tribes, universities, other 

countries, international organizations, and a broad range of stakeholders who benefit from the use and existence of 

living marine resources and their habitats. 

R&D at NMFS laboratories supports resource management in NOAA, fishery management councils, interstate fishery 

commissions, and other agencies to facilitate informed decision-making about marine resource management decisions 

for sustainable fisheries, protected resources, endangered species, and habitat. NMFS conducts applied research 

to gain knowledge or understanding necessary for determining the means by which a recognized and specific need 

may be met. It includes research that improves understanding of technologies, leading to development that supports 

the mission. Development activities include the production of useful tools, materials, devices, systems, or methods, 

including the design and development of prototypes and processes. Examples of NMFS R&D include process-oriented 

studies such as those that address mechanisms that control reproductive success, population genetics and stock 

structure, animal behavior, biophysical modeling, and the functional value of habitat.

Marine Operations and Maintenance and Aircraft Services: These efforts support NOAA’s programs requiring operating 

days and flight hours to collect data at sea and in the air. NOAA’s Marine and Aviation Operations manage a wide 

variety of specialized aircraft and ships to complete NOAA’s environmental and scientific missions. The aircraft collect 

the environmental and geographic data essential to NOAA hurricane and other weather and atmospheric research, 

conduct aerial surveys for hydrologic research to help predict flooding potential from snowmelt, and provide support 

to NOAA’s fishery research and marine mammal assessment programs. NOAA’s ship fleet provides oceanographic 

and atmospheric research and fisheries research vessels to support NOAA’s strategic plan elements and mission. 

Weather Service: NOAA’s National Weather Service conducts applied R&D, building upon research conducted by NOAA 

laboratories and the academic community. Applied meteorological and hydrological research is integral to providing 

more timely and accurate weather, water, and climate services to the public.

FY 2017 AGENCY FINANCIAL REPORT | 125

REQUIRED SUPPLEMENTARY STEWARDSHIP INFORMATION (UNAUDITED)
Other Programs: As a national lead for coastal stewardship, NOAA’s National Ocean Service promotes wide-ranging 

research activities to create the strong science foundation required to advance the sustainable use of precious coastal 

systems. Understanding of the coastal environment is enhanced through coastal ocean activities that support science 

and resource management programs. This research supports the NOAA National Ocean Service and NOAA Office of 

Coastal Management strategic priority of making communities more resilient. At the reserve level, the research is 

providing science-based information that addresses climate change, water quality, and habitat protection management 

decisions in our Nation’s estuaries. This funding supported 31 collaborative research and 14 science transfer projects. 

NOAA’s National Environmental Satellite, Data, and Information Service (NESDIS), Center for Satellite Applications 

and Research (STAR) supports internal development of the mathematical and physics-based techniques for assuring 

sustained monitoring of the calibration of the NOAA satellite sensors, detecting faults, and diagnosing and countering 

the inevitable effects of instrument and satellite orbit degradation on the utility of the atmospheric and ocean 

measurements required for authoritative NOAA environmental analyses and predictions. NESDIS STAR is developing 

an Integrated Calibration and Validation System to monitor performance of NOAA satellites, instruments, sensors, 

and observational products. STAR scientists are developing advanced methods inter-calibrating NOAA sensors with 

like sensors from other (NOAA, NASA, and international) satellites to achieve, over time, a consistently calibrated 

Satellite Global Observing System. Calibration and validation techniques include developing methods for low-light 

calibration and lunar calibration.

126 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

REQUIRED SUPPLEMENTARY STEWARDSHIP INFORMATION (UNAUDITED)
Other Information

(Unaudited)
OIG’s Top Management and Performance Challenges 

Facing the Department of Commerce in FY 2018

The Office of Inspector General is required by statute1

 to report annually the most serious 

management and performance challenges facing the Department of Commerce. Below is a

summary of our final report on the Department’s top management and performance challenges 

for fiscal year (FY) 2018. The top management and performance challenges we reported on last 

year remain critical issues facing the Department. However, we have revised our discussion to 

reflect the Department’s progress, changing priorities, and emerging risks. 

1. Delivering a Timely 2020 Census That Maintains or Improves Data Quality but

Costs Less Per Household Than the 2010 Census

Early this decade, the Census Bureau committed to conducting the 2020 Census at a

lower cost per household (adjusted for inflation)—while continuing to maintain high

quality—than the last decennial, to end decades of rising costs. To stop escalating costs,

the Bureau estimated that it could avoid $5.2 billion in 2020 Census costs through major

cost saving innovations in its operational design. However, as this decade progressed, the

Bureau has scaled back its cost avoidance projections.

This challenge focuses on the following areas for management attention:

• Maintaining Bureau leadership continuity to ensure that a reengineered, costeffective decennial census occurs on schedule and produces quality results

• Developing an accurate 2020 Census life-cycle cost estimate that can be validated

by stakeholders

• Implementing new, reengineered processes and systems in time to perform as

needed

Progress made/challenges remaining since the FY 2017 TMC: In last year’s Top 

Management and Performance Challenges report, we stated that further testing of new 

operational design components was needed, and that the 2017 Census Test specifically 

was needed to collect critical information to inform the final 2020 Census operational 

design. Just after that report’s release in September 2016, the Bureau made the 

decision—amid budget uncertainty—to cancel the field test portion of the 2017 test. As a 

result, it was unable to build on the results of the previous field tests conducted in 2014, 

2015, and 2016. 

1 31 U.S.C. § 3516(d).

OFFICE OF INSPECTOR GENERAL SUMMARY ON TOP 

MANAGEMENT AND PERFORMANCE CHALLENGES

1 31 U.S.C. § 3516(d).

128 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

OIG SUMMARY ON TOP MANAGEMENT AND PERFORMANCE CHALLENGES
2. Ensuring the Continuity of Environmental Satellite Observations

National Oceanic and Atmospheric Administration (NOAA) satellite data and imagery

are essential to understanding, predicting, and tracking weather and other environmental

phenomena. NOAA’s primary sources of these observations are satellites in geostationary

and polar orbits. Beyond its own satellites and those of international and

intergovernmental partners, NOAA is seeking to leverage capabilities in the emerging

sector of commercial space services. To this end, NOAA has initiated a pilot program to

assess commercially-provided environmental data.

For FY 2018, in order to mitigate the risk of gaps and ensure short- and long-term

continuity of NOAA satellite data and imagery, this challenge focuses on the following

areas for management attention:

• Transitioning Geostationary Operational Environmental Satellite (GOES)–16 and

Joint Polar Satellite System (JPSS)–1 into operations

• Managing risk in the acquisition and development of the next-in-series satellites

• Revising Polar Follow-On (PFO) program baselines in accordance with the

Administration’s priorities

• Assessing the viability of using commercial data in weather forecasts

Progress made/challenges remaining since the FY 2017 TMC: Regarding challenges 

we identified in FY 2017, NOAA met some (e.g., launching GOES-R; establishing 

program baselines for additional JPSS missions) and had to delay others (e.g., completing 

its ground system and launching JPSS-1 on schedule).

3. Securing Department Systems and Information

Our recent and ongoing audits confirm that the Department continues to encounter

serious challenges to securing its critical systems, including national security systems.

Furthermore, persistent security weaknesses with implementing basic security controls

and measures significantly increase the likelihood of system and information

compromise.

Given these considerations, this challenge focuses on the following cybersecurity areas

for immediate management attention:

• Continuing security improvements for the Department's national security systems

• Ensuring security controls are effectively implemented and conducting highquality security control assessments

• Securing cloud-based systems

• Implementing multi-factor authentication for all privileged users

FY 2017 AGENCY FINANCIAL REPORT | 129

OIG SUMMARY ON TOP MANAGEMENT AND PERFORMANCE CHALLENGES
• Implementing a cohesive approach to cybersecurity across the Department

Progress made/challenges remaining since the FY 2017 TMC: Over the past 5 years, 

previous versions of our Top Management and Performance Challenges Facing the 

Department of Commerce report have encouraged the Department to continually improve 

the effectiveness of its security measures protecting the confidentiality, integrity, and 

availability of critical systems and information. 

The Department has taken steps to strengthen its IT security program by revising security 

policy, assigning new system management, and conducting security assessments. While 

the Department has made progress in addressing the issues we identified, it must continue 

to maintain management oversight to ensure that appropriate security is implemented and 

maintained for these critical systems.

4. Deploying a Nationwide Public Safety Broadband Network (NPSBN)

The Middle Class Tax Relief and Job Creation Act of 2012 (the Act) established the First

Responder Network Authority (FirstNet) as an independent authority within the National

Telecommunications and Information Administration (NTIA) to implement a Nationwide

Public Safety Broadband Network (NPSBN) dedicated for first responders. Also, the Act

provided funding to NTIA and the National Institute of Standards and Technology

(NIST) to support NPSBN implementation. On March 30, 2017, FirstNet selected AT&T

as its partner in the development of the NPSBN. The contract will be performed over the

next 25 years.

With the partnership now underway, the Department and FirstNet’s immediate challenges

include the following:

• Deploying and ensuring the sustainability of the NPSBN

• Ensuring the successful performance of the contract awarded to AT&T

• Maximizing state opt-ins and participant subscriptions

• Strengthening operational controls

Progress made/challenges remaining since the FY 2017 TMC: FirstNet has taken 

prompt steps to address the recommendations contained within these reports, including 

filling many of its key positions and updating its process controls. FirstNet is encouraged 

to continue to take steps to strengthen its policies and controls.

5. Efficiently and Effectively Enforcing Laws That Promote Fair and Secure Trade

As the federal government’s lead trade and investment promotion agency, the

Department faces the challenge of helping U.S. companies be more competitive abroad

and attracting foreign investment while protecting U.S. national security interests. Those

missions are carried out by the International Trade Administration (ITA), which assists

U.S. exporters to sell their products overseas and enforces U.S. trade laws and

130 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

OIG SUMMARY ON TOP MANAGEMENT AND PERFORMANCE CHALLENGES
agreements, and the Bureau of Industry and Security (BIS), which administers and 

enforces U.S. export control laws and regulations. In the area of international trade, the 

current Administration has prioritized enforcing laws that promote fair and secure trade. 

A series of directives involving international trade have underscored that priority. For 

example, an April 29, 2017, executive order directed the Secretary, the U.S. Trade 

Representative, and other heads of executive departments and agencies, as appropriate, to 

take every appropriate and lawful action to address violations of trade law, abuses of 

trade law, or instances of unfair treatment. Therefore, ITA and BIS must utilize their 

resources effectively and efficiently as they participate in government-wide efforts to 

ensure fair trade that protects national security.

This challenge focuses on the following areas for management attention: 

• Enhancing U.S. economic competitiveness through efficient administration of

trade enforcement remedies and effective export promotion activities

• Facilitating U.S. exports by implementing export control reform changes while

enhancing enforcement

Progress made/challenges remaining since the FY 2017 TMC: Regarding ITA’s 

challenges, OIG identified several management control issues inhibiting effective 

operations, as well as data limitations that prevented accurate assessment of service 

delivery quality. Regarding BIS challenges, the agency must ensure that it has plans in 

place for the effective use of additional enforcement resources as it continues to 

implement changes brought about by the export control reform initiative. 

6. Modernizing the Department’s Legacy IT Systems and Improving Data Quality

Although the Department has undertaken numerous initiatives to modernize its IT

systems, it continues to rely on antiquated legacy systems to support some of its key

functions and processes. For example, the lack of a centralized and integrated financial

management system continues to create reporting and oversight challenges for the

Department—including the ability to effectively report financial data and monitor

financial activity across its operating units. In addition, USPTO continues to face

challenges in its mission-critical modernization from legacy IT systems to nextgeneration technology and services.

This challenge focuses on the following areas for management attention:

• Identifying a long-term solution to replace Commerce Business Solutions (CBS)

• Transitioning USPTO from legacy to next-generation IT systems

• Maintaining current, accurate, and complete data to effectively manage real

property

Progress made/challenges remaining since the FY 2017 TMC: The Department plans 

to replace the CBS legacy financial management system—which does not include 

FY 2017 AGENCY FINANCIAL REPORT | 131

OIG SUMMARY ON TOP MANAGEMENT AND PERFORMANCE CHALLENGES
features for data analytics, data archiving, or enterprise data warehousing—with a new 

comprehensive and integrated suite of financial management and business applications 

that will provide these functions. However, there have been significant challenges with 

this project, including identification of a viable federal shared service provider solution 

for a replacement. According to the Department, the project is currently on hold as it 

works with the Office of Management and Budget (OMB) and the Department of the 

Treasury regarding how to proceed. 

7. Implementing Processes to Improve Management of the Department’s Contracts,

Grants, and Cooperative Agreements

Procurement continues to be a significant support mechanism for the Department’s

overall mission. The Department’s management of contracts, grants, and cooperative

agreements has long presented a challenge by virtue of the large amounts of money at

stake. In FY 2016, the Department obligated approximately $3.2 billion for goods and

services related to satellite acquisitions, support for intellectual property operations,

management of coastal and ocean resources, information technology (IT), and

construction and facilities management. Additionally, in FY 2016, the Department

obligated approximately $1.4 billion in financial assistance awards (grants and

cooperative agreements). Appropriate administration of public funds must always be a

priority, but, in this climate of constrained budgets, the use of billions of taxpayer dollars

requires particular attention from Departmental management.

Key challenges include the following:

• Strengthening processes to govern the appropriate use of non-competitive

contracts and maximize the use of competition

• Developing and maintaining a competent acquisition workforce to support the

Department's mission

• Improving oversight and monitoring of Minority Business Centers to ensure

accurate reporting of program goals and efficient use of program funds

• Fostering high ethical standards throughout the Department and its contracting

programs to maintain the public trust

Progress made/challenges remaining since the FY 2017 TMC: Our work has found 

that the Department continues to face challenges in awarding high-risk contracts without 

considering the possibility of using less risky contract types. 

132 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

OIG SUMMARY ON TOP MANAGEMENT AND PERFORMANCE CHALLENGES
MEMORANDUM FOR: Peg Gustafson

Inspector General

FROM: Ellen Herbst

Chief Financial Officer and Assistant Secretary for Administration,

Performing the Non-Exclusive Duties of the Deputy Secretary

SUBJECT: OIG Report, Top Management and Performance Challenges 

Facing the Department of Commerce in Fiscal Year 2018, OIG 17-

033

On behalf of the Department, we appreciate the Office of Inspector General’s time and attention 

to assessing the top management and performance challenges facing the Department in Fiscal 

Year 2018. Your consideration of our changing priorities and emerging risks is particularly 

valuable in helping us to focus our oversight efforts. 

The Department recognizes that the seven challenges discussed in the report represent areas of 

major potential impact on the effectiveness and efficiency of our programs and operations. We 

have already undertaken and planned extensive actions to address these challenges, and are 

committed to making further progress.

I would also like to thank you for your office’s valuable recommendations throughout the year 

and I am looking forward to continuing our good working relationship in FY 2018 and future 

years.

UNITED STATES DEPARTMENT OF COMMERCE

Chief Financial Officer 

Assistant Secretary for Administration

Washington, D.C. 20230 

FY 2017 AGENCY FINANCIAL REPORT | 133

OIG SUMMARY ON TOP MANAGEMENT AND PERFORMANCE CHALLENGES
SUMMARY OF FINANCIAL STATEMENT AUDIT 

AND MANAGEMENT ASSURANCES

P

resented below is a summary of financial statement audit and management assurances for FY 2017. Table 1 relates 

to the Department’s FY 2017 financial statement audit, which resulted in an unmodified opinion with no material 

weakness. Table 2 presents the number of material weaknesses reported by the Department under Section 2 of 

the Federal Managers’ Financial Integrity Act (FMFIA)—either with regard to internal controls over operations or financial 

reporting, and Section 4, which relates to internal controls over financial management systems; as well as the Department’s 

compliance with the Federal Financial Management Improvement Act (FFMIA).

Table 1. Summary of Financial Statement Audit

● Audit Opinion: ● Unmodified

● Restatement: ● No

Material Weaknesses Beginning Balance New Resolved Consolidated Ending Balance

Total Material Weaknesses 0 1 0 0 1

Table 2. Summary of Management Assurances

EFFECTIVENESS OF INTERNAL CONTROL OVER FINANCIAL REPORTING (FMFIA § 2)

Statement of Assurance: Unmodified

Material Weaknesses Beginning Balance New Resolved Consolidated Reassessed Ending Balance

Total Material Weaknesses 0 0 0 0 0 0

EFFECTIVENESS OF INTERNAL CONTROL OVER OPERATIONS (FMFIA § 2)

Statement of Assurance: Unmodified

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: Systems conform with financial management system requirements

Non-Conformances Beginning Balance New Resolved Consolidated Reassessed Ending Balance

Total Non-Conformances 0 0 0 0 0 0

COMPLIANCE WITH FFMIA

Agency Auditor

1. System Requirements No lack of substantial compliance noted No lack of substantial compliance noted

2. Accounting Standards No lack of substantial compliance noted No lack of substantial compliance noted

3. U.S. Standard General Ledger 

 at Transaction Level

 

 No lack of substantial compliance noted

 

 No lack of substantial compliance noted

134 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

SUMMARY OF FINANCIAL STATEMENT AUDIT AND MANAGEMENT ASSURANCES
T

he Improper Payments Information Act (IPIA) of 2002, as amended by the Improper Payments Elimination and 

Recovery Act of 2010 and the Improper Payments Elimination and Recovery Improvement Act of 2012, requires 

agencies to periodically review all programs and activities and identify those that may be susceptible to significant 

improper payments, take multiple actions when programs and activities are identified as susceptible to significant improper 

payments, and annually report information on their improper payments monitoring and minimization efforts. The Office 

of Management and Budget’s (OMB) Circular A-123, Management’s Responsibility for Enterprise Risk Management and 

Internal Control (July 15, 2016), Appendix C, Requirements for Effective Measurement and Remediation of Improper 

Payments (October 20, 2014), defines an improper payment1 and provides guidance to agencies to comply with IPIA, as 

amended, and for agency improper payments efforts. The Department has not itself identified any programs or activities 

susceptible to significant improper payments.

On January 29, 2013, the President signed into law the Disaster Relief Appropriations Act (Act), which provided a total 

of $50.5 billion government-wide in aid for Hurricane Sandy disaster victims and their communities. The National 

Oceanic and Atmospheric Administration (NOAA) received $326 million of funds under the Act for Hurricane Sandy 

recovery and other disaster-related activities. Pursuant to OMB Memorandum M-13-07, Accountability for Funds 

Provided by the Disaster Relief Appropriations Act (March 12, 2013), the Department in March 2013 submitted its final 

plan for accountability, internal controls, and other requirements, for funds provided to NOAA that are deemed by OMB 

as susceptible to significant improper payments for the purposes of requirements under IPIA of 2002, as amended, 

and the Department is required to calculate and report an annual improper payments estimate. The Department 

submitted to OMB in June 2017 a sampling methodology plan for FY 2016 disbursements made under the Act by 

NOAA. In August 2017, testing of FY 2016 disbursements was completed by an independent contractor and by NOAA. 

See section II., Sampling and Estimation Reporting for Funds Received by NOAA under Disaster Relief Appropriations 

Act, for the statistical sampling results of the FY 2016 disbursements testing.

The Department recognizes the importance of maintaining adequate internal controls to ensure proper payments, 

and the Department’s commitment to continuous improvement in the overall disbursement management process 

remains high. Each of the Department’s payment offices has implemented policies and procedures to detect and 

prevent improper payments. For FY 2018 and beyond, the Department will continue its efforts to ensure the integrity 

of its disbursements.

PAYMENT INTEGRITY

1 An improper payment is any payment that should not have been made or that was made in an incorrect amount under 

statutory, contractual, administrative, or other legally applicable requirements. Incorrect amounts are overpayments or 

underpayments that are made to eligible recipients (including inappropriate denials of payment or service, any payment that 

does not account for credit for applicable discounts, payments that are for an incorrect amount, and duplicate payments). 

An improper payment also includes any payment that was made to an ineligible recipient or for an ineligible good or service, 

or payments for goods or services not received (except for such payments authorized by law). In addition, when an agency’s 

review is unable to discern whether a payment was proper as a result of insufficient or lack of documentation, this payment 

must also be considered an improper payment. 

The term “payment” in this guidance means any disbursement or transfer of Federal funds (including a commitment for future 

payment, such as cash, securities, loans, loan guarantees, and insurance subsidies) to any non-Federal person, non-Federal 

entity, or Federal employee, that is made by a Federal agency, a Federal contractor, a Federal grantee, or a governmental or 

other organization administering a Federal program or activity. The term “payment” includes Federal awards subject to the 

Single Audit Act and the Uniform Guidance for Federal assistance (2 CFR 200 Subpart F) (Single Audits) that are expended by 

both recipients and sub-recipients. 

FY 2017 AGENCY FINANCIAL REPORT | 135

PAYMENT INTEGRITY
I. Improper Payments Risk Assessments.

The Department annually conducts an assessment of the effectiveness of internal control over financial reporting, in 

compliance with OMB Circular A-123, Appendix C. Furthermore, every three years, the assessment includes a review of 

internal controls over disbursement processes, including Department-wide sample testing of disbursements for improper 

payments and for appropriate internal control attributes. The most recent review performed indicated that internal controls 

over disbursement processes were sound.

Each of the Department’s bureaus/reporting entities periodically completes or updates, over a one to three-year period 

(depending on the size of the entity), improper payments risk assessments covering all of its programs/activities as required 

by OMB Circular A-123, Appendix C. These improper payments risk assessments of the entity’s programs/activities also 

incorporate improper payments risk assessments every three years of the control, procurement, and grants management 

environments. The program/activity improper payments risk assessments performed in 2017 address the nine minimum 

improper payments risk factors set forth in OMB Circular A-123, Appendix C that should be addressed, which are: whether 

the program or activity reviewed is new to the agency; the complexity of the program or activity reviewed, particularly with 

respect to determining correct payment amounts; the volume of payments made annually; whether payments or payment 

eligibility decisions are made outside of the agency, for example, by a state or local government, or a regional federal office; 

recent major changes in program funding, authorities, practices, or procedures; the level, experience, and quality of training 

for personnel responsible for making program eligibility determinations or certifying that payments are accurate; the inherent 

risks of improper payments due to the nature of agency programs or operations; significant deficiencies in the audit reports 

of the agency including, but not limited to, the agency Inspector General or the U.S. General Accountability Office audit 

report findings, or other relevant management findings; and results from prior improper payment work.

The following table presents a summary of the Department’s program/activity improper payments risk assessments performed 

in FY 2017; none of these improper payments risk assessments performed (or performed in prior fiscal years) revealed any 

programs or activities considered susceptible to significant improper payments. 

SUMMARY OF PROGRAMS/ACTIVITIES FOR WHICH IMPROPER PAYMENTS RISK ASSESSMENTS WERE PERFORMED IN FY 2017

Program/Activity

Bureau of Economic Analysis

Bureau of Economic Analysis

Bureau of Industry and Security

Dual Use Export Administration and Enforcement

Census Bureau

Decennial Census

Enterprise Data Capture and Dissemination Systems

Geographic Support

Working Capital Fund

Economics and Statistics Administration

Economics and Statistics Administration

International Trade Administration

Enforcement and Compliance

Industry and Analysis

Minority Business Development Agency

Minority Business Development and Advocacy

Minority Business Development Grants

Program/Activity

National Institute of Standards and Technology

Contracts and Purchase Orders

Grants

Purchase Card

National Oceanic and Atmospheric Administration

Loans; Intragovernmental Payment and Collection System 

Activity; Other

National Telecommunications and Information Administration

State and Local Grant Implementation Program

Telecommunications and Information Policy Development 

and Management; Spectrum Management

Office of the Secretary

Departmental Management

Office of Inspector General

U.S. Patent and Trademark Office

U.S. Patent and Trademark Office (Patents and Trademarks)

136 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

PAYMENT INTEGRITY
II. Sampling and Estimation Reporting for Funds Received by NOAA under Disaster Relief Appropriations Act.

For all programs and activities as determined under OMB Circular A-123, Appendix C, Part I.A.9. Step 2, Obtain 

a statistically valid estimate of the annual amount of improper payments in programs and activities for those 

programs that are identified in Step 1 as susceptible to significant improper payments, agencies shall identify the:

a. Estimated amount of payments that were properly paid, improperly paid, and the corresponding percent for 

each by program or activity for the current fiscal year.

b. Estimated amount of improper payments that resulted in an overpayment, an underpayment, and the 

corresponding percent for each by program or activity for the current fiscal year.

c. Estimated amount of improper payments made directly by the Government and the amount of improper 

payments made by recipients of Federal money by program or activity for the current fiscal year. 

d. Root cause for overpayments and underpayments by amount and by program or activity for the current 

fiscal year. 

e. Reduction targets by program or activity for the next fiscal year. 

Any agency that has programs or activities that are susceptible to significant improper payments based on 

statutory thresholds listed in OMB Circular A-123, Appendix C, Part 1.A.9. Step 1, Review all programs and activities 

and identify those that are susceptible to significant improper payments and are reporting an improper payment 

rate, shall briefly describe the statistical sampling process conducted to estimate the improper payment rate for 

each program identified as being susceptible to significant improper payments. Agencies that were granted OMB 

approval to use a non-statistical sampling and estimation methodology under OMB Circular A-123, Appendix C, 

Part I.A.14, May agencies use alternative sampling and estimation approaches, must also include the justification 

for using the non-statistical methodology (i.e., explain why the agency was not able to follow the requirements in 

OMB Circular A-123, Appendix C, Part 1.A.9. Step 2). 

As previously discussed, an independent contractor and NOAA performed statistical sampling of FY 2016 NOAA disbursements 

of funds received under the Disaster Relief Appropriations Act, in order to yield a statistically valid improper payments 

estimate as required by OMB Circular A-123, Appendix C. The independent contractor and NOAA determined that of the 

sample items tested for improper payments, which amounted to $56.5 million, there was a statistically valid estimate of 

improper payments of $85 thousand ($53 thousand of overpayments; and $32 thousand of underpayments) for NOAA 

FY 2016 disbursements of funds received under the Disaster Relief Appropriations Act.

The table on the following page is reported with regard to funds received by NOAA under the Disaster Relief Appropriations 

Act. Statistical sampling of a fiscal year’s disbursements to arrive at a statistically valid estimate of improper payments for that 

fiscal year is normally performed by an independent contractor in the following calendar year. Statistical sampling of FY 2016 

(referred to as Current Year in this table) NOAA disbursements of funds received under the Disaster Relief Appropriations 

was completed by an independent contractor and by NOAA in August 2017 as previously discussed.

FY 2017 AGENCY FINANCIAL REPORT | 137

PAYMENT INTEGRITY
IMPROPER PAYMENTS (IP) REDUCTION OUTLOOK FOR FUNDS RECEIVED BY NOAA UNDER THE DISASTER RELIEF APPROPRIATIONS ACT

(Dollars in Millions)

Activity

Prior

Year

(FY 2015)

Outlays,

Gross

Estimated 

Prior

Year

(FY 2015)

IP

Percent

Estimated 

Prior

Year

(FY 2015)

IP

Current 

Year

(FY 2016)

Outlays,

Gross

Estimated 

Current 

Year

(FY 2016)

Proper 

Payments 

Percent

Estimated 

Current 

Year

(FY 2016)

Proper 

Payments

Estimated 

Current 

Year

(FY 2016)

IP

Percent

Estimated 

Current 

Year

(FY 2016)

IP

Funds Received by NOAA under 

Disaster Relief Appropriations Act $ 101.171 0.05% $ 0.051 $ 56.471 99.85% $ 56.39 0.15% $ 0.0852

(continued)

Activity

Estimated 

Current 

Year

(FY 2016)

Overpayments

Estimated 

Current 

Year

(FY 2016)

Underpayments

Estimated 

Current 

Year + 1

(FY 2017)

Outlays,

Gross

Estimated 

Current 

Year + 1

(FY 2017)

IP

Percent

Estimated 

Current 

Year + 1

(FY 2017)

IP

Estimated 

Current 

Year + 1

(FY 2017)

Overpayments

Estimated 

Current 

Year + 1

(FY 2017)

Underpayments

Funds Received by NOAA under 

Disaster Relief Appropriations Act $ 0.0532 $ 0.0322 $ 27.671 0.00% $ – $ – $ –

1 The source of the Outlays, Gross dollar amounts is NOAA, based on data gathering and/or estimation techniques, as the Outlays, 

Gross dollar amounts cannot be obtained from the President’s Budget. 

2 Statistically valid estimate of improper payments for FY 2016 disbursements. These estimates of improper payments are fully for 

disbursements made directly by NOAA. The Department is not aware of any improper payments made by recipients of federal 

funds in FY 2016 or that were identified in FY 2016.

IMPROPER PAYMENT ROOT CAUSE CATEGORY MATRIX FOR FUNDS RECEIVED BY NOAA UNDER THE DISASTER RELIEF 

APPROPRIATIONS ACT FOR CURRENT YEAR (FY 2016) IMPROPER PAYMENTS

(In Millions)

Reason for Estimated Improper Payments

Funds Received by NOAA under 

Disaster Relief Appropriations Act

Estimated 

Overpayments

Estimated 

Underpayments

Total Estimated 

Improper Payments 

Program Design or Structural Issue $ – $ – $ –

Inability to Authenticate Eligibility – – –

Failure to Verify: Death Data – – –

Financial Data – – –

Excluded Party Data – – –

Prisoner Data – – –

Other Eligibility Data (explain) – – –

Administrative 

or Process Error 

Made by:

Federal Agency – 0.032 0.032

State and Local Agencies – – –

Other Party (explain) – – –

Medical Necessity – – –

Insufficient Documentation to Determine 0.053 0.053

Other (explain) – – –

Total $ 0.053 $ 0.032 $ 0.085

138 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

PAYMENT INTEGRITY
As previously discussed, an independent contractor and NOAA performed statistical sampling of FY 2017 NOAA disbursements 

of funds received under the Disaster Relief Appropriations Act, in order to yield a statistically valid improper payments estimate, 

as required by OMB Circular A-123, Appendix C. The independent contractor obtained the population of FY 2016 disbursements, 

excluding disbursements within the federal government, and determined a single-stage stratified random sample using the 

disbursement amount to define the stratum boundaries (dollar ranges). Stratified samples are highly efficient designs that allow 

confidence and precision levels to be reached with smaller samples when compared to simple random sampling. A single 

certainty or take-all stratum was defined for disbursement amounts that were large relative to the rest of the population data, to 

help ensure that a high percentage of total dollars disbursed will be covered in the sample selection as well as help improve the 

precision of the statistical estimates at the time of estimation. The remaining disbursements were stratified into similar groups, 

or strata, based upon disbursement amounts. The non-certainty stratum boundaries were initially determined to approximately 

equalize the precision in dollars within each stratum and then were slightly modified to improve efficiency. The statistical sampling 

performed was in compliance with OMB Circular A-123, Appendix C guidance for statistically valid sampling plans, including 

minimum precision guidelines. 

III. Overpayments Identified in FY 2017 and FY 2017 Recaptures of Overpayments. 

a. When applicable, for all programs and activities that expend $1 million or more annually, agencies shall describe 

any action the agency has taken or plans to take to recapture improper payments and intends to take to prevent 

future improper payments. 

b. All programs and activities that expend $1 million or more annually shall be considered for payment recapture 

audits. See OMB Circular A-123, Appendix C, Part I.D, Payment Recapture Audits, for more information about 

payment recapture audits. An agency shall discuss payment recapture audit (or recovery auditing) efforts, if 

applicable. The discussion should describe:

i. the actions and methods used by the agency to recoup overpayments; 

ii. a justification of any overpayments that have been determined not to be collectable; and 

iii. any conditions giving rise to improper payments and how those conditions are being resolved (e.g., the business 

process changes and internal controls instituted and/or strengthened to prevent further occurrences). Note, it is also 

appropriate to address this requirement when discussing root causes and corrective actions implemented above. 

c. If the agency has excluded any programs or activities from review under its payment recapture audit program 

because the agency has determined a payment recapture audit program is not cost-effective, the agency must 

provide the justification and a summary of the analysis that is used to determine that conducting a payment 

recapture audit program for the program or activity was not cost effective (i.e., a discussion of the analysis 

conducted to determine that a payment recapture audit program would not be cost effective). 

In conformity with IPIA, as amended, the Department has been performing, since 2005, annual payment recapture audits of 

closed contracts/obligations for many of the Department’s bureaus/reporting entities on a rotational basis. In recent years, 

these payment recapture audits have been performed by a contractor. Effective 2012, the scope of payment recapture audits 

of contracts/obligations was expanded to additionally include contracts/obligations for which the period of performance ended 

and last payment was made; however, for which the closeout process has not yet been completed. Annual payment recapture 

auditing is additionally performed by a contractor, effective 2011, for Department-wide grants and other cooperative agreements 

(i.e., financial assistance). Per OMB Circular A-123, Appendix C, intragovernmental transactions are not required to be reviewed.

FY 2017 AGENCY FINANCIAL REPORT | 139

PAYMENT INTEGRITY
In May 2011, the Department completed an evaluation of possible additional categories of disbursements for which payment 

recapture auditing could be performed, if cost-effective, as discussed below, held a meeting with OMB to discuss the 

Department’s evaluation, and provided the written summary of the evaluation to OMB. 

The Department’s evaluation of payroll disbursements in May 2011 determined that it would likely not be cost-effective to 

perform payment recapture auditing for payroll disbursements. Payroll-administration services are primarily provided to the 

Department by the U.S. Department of Agriculture’s National Finance Center (NFC). Based on the Department’s review of 

available risk assessments and audits/reviews, at that time, the Department’s payroll processes were rated at a low risk 

and only had a few minor audit and review findings. Further, no significant payroll improper payments had been identified 

by the bureaus. The latest audit report at that time regarding the adequacy of the internal controls of NFC as a servicing 

organization revealed no significant issues. The Department will continue to reevaluate, in 2018, whether payment recapture 

auditing should be performed, if considered cost-effective, for payroll and other payments to employees. 

With regard to loan disbursements, NOAA is currently the only bureau with loan disbursements. As part of NOAA’s 

internally-conducted reviews and testing processes, NOAA loan disbursements are significantly tested every three years 

for both internal controls and improper payments, and the disbursement testing for improper payments is considered to 

be essentially equivalent to a payment recapture audit. Regarding the NOAA Corps Retirement System and the NOAA 

Corps Health Benefits benefit programs, these programs are cross-serviced for disbursements by the U.S. Department of 

Defense; and, therefore, are not subject to payment recapture auditing by the Department.

For payment recapture audits, the contractor analyzes the reasons why any payment errors occurred, and develops, presents, 

and documents any recommendations for cost-effective controls to prevent improper payments in the future and/or to 

enhance the applicable bureau processes.

A type of improper payment that the Department’s applicable bureaus experience is the improper drawdown(s) (i.e., payment(s) 

to recipient) of funds by a recipient against a Departmental grant or cooperative agreement award in the Automated Standard 

Application for Payments (ASAP). ASAP is a secure, Web-based, all electronic payment and information application operated 

by the U.S. Department of the Treasury (Treasury) that allows recipients to drawdown funds from accounts preauthorized by 

federal agencies. A recipient can normally drawdown on its authorized funds with little or no oversight by the Department 

prior to drawdown if the drawdown is in accordance with the conditions of the grant/cooperative agreement. Since these 

drawdowns are at the discretion of the recipient, it is difficult for the Department to control an improper drawdown(s) by a 

recipient. The recipient, however, will often report the overpayment to the Department and promptly return the funds to 

the Department via ASAP. When a recipient establishes a history of improper drawdowns against its awards, or for several 

other valid reasons, bureau financial assistance personnel can place the recipient on “Agency Review” within ASAP to help 

prevent future improper payments.

A standard procedure is for bureau financial assistance personnel to review recipients’ periodic Standard Form (SF) 425, 

Federal Financial Report, submissions to the Department, and when an overpayment is discovered, the recipient is promptly 

notified and requested to return the overpayment to the Department via ASAP. These bureaus now require that project 

officers sign and date progress reports after review, and place the signed documents in the grant files. In-house training, 

furthermore, is being provided to bureau financial assistance personnel on performing comprehensive reviews of the SF 425 

submissions from recipients. To ensure that proper review and approval procedures are being followed, bureaus have 

established a peer-to-peer review process where financial assistance specialists review their partners’ financial assistance 

files. The results of these reviews are shared and discussed with other bureau financial assistance specialists. Bureaus’ 

supervisory staff are conducting desk audits of financial assistance specialists to ensure that procedures are followed in a 

timely manner. Bureaus also schedule periodic audits or reviews of financial assistance files to ensure that all procedures 

140 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

PAYMENT INTEGRITY
are being followed. Bureau financial assistance offices continue to make considerable investments in vendor-provided 

training certification programs for their financial assistance personnel on the full range of federal financial assistance policy, 

including technical requirements such as the preparation of SF 425s. 

Overpayments can also be recaptured from recipients via other methods if recapture via ASAP is not appropriate. Improper 

payments for grants/cooperative agreements are also detected during post-award closeout procedures and similar action 

is taken to recapture an overpayment from a recipient.

Two additional types of improper payments encountered by the Department are (a) improper payments determined 

resulting from an audit, review, or investigation by the Department’s Office of Inspector General; and (b) improper payments 

determined resulting from an audit of a federal grant/cooperative agreement award under the Single Audit Act of 1984, 

as amended. It is often difficult or not possible for the Department to identify, prior to payment, the types of improper 

payments that are identified in these audits, reviews, or investigations. One bureau financial assistance office’s efforts to 

help prevent incorrect overhead rates being billed by a grant/cooperative agreement recipient include (a) overhead rates are 

reviewed through the review of a recipient’s approved Negotiated Indirect Cost Rate Agreements and line item budget); and 

(b) overhead costs will not be allowable costs against an award unless permitted under the award, and specifically included 

as a line item in the award’s approved budget. Furthermore, at the time of award closeout, a final comprehensive SF 425 

must be submitted by the recipient within 90 days after award expiration. If overhead costs were included as a line item 

in the award’s approved budget, the SF 425 must include the cumulative total of overhead costs charged to the award. 

This SF 425 requires the review and approval of the bureau’s financial assistance office. This bureau’s financial assistance 

office has also taken steps to help ensure recipients do not overdraw their awards. Award funds are monitored through the 

review of interim Federal Financial Cash Flow Reports to ensure that (a) recipients are expending funds at an appropriate 

rate; (b) federal disbursements are comparable with the period covered by requests for payment; (c) reports submitted by 

the recipient agree with the bureau’s accounting records for payments made; and (d) recipients are not maintaining excess 

cash on hand. The financial assistance office, monthly, furthermore obtains a cash flow tracking report, which serves as 

an internal control for monitoring recipients’ cash on-hand balances. 

One bureau finance office has indicated an additional identifiable reason for improper payments to vendors is a lack of 

resources that can sometimes lead to short staffing in the accounts payable processing operations, resulting in, due to 

heavy workload for individual technicians, data entry or other types of errors that result in improper payments. In response 

to this condition, the bureau is hiring additional accounts payable staff, and providing periodic training to staff to address 

errors that have been made.

For an identified overpayment that is not promptly recaptured, the Department’s policy is to establish a receivable for 

the overpayment and the Department then pursues the overpayment through the Department’s normal debt collection 

management process. See the Receivables With the Public and Debt Collection Management subsection of the Financial 

Management and Analysis subsection of Management’s Discussion and Analysis for more information on the Department’s 

debt collection management process for receivables from the public.

A payment recapture audit of contracts/obligations was completed in June 2017 by a contractor for the National 

Telecommunications and Information Administration (NTIA). Contracts/obligations greater than $100 thousand which were 

closed out, or for which the period of performance ended and last payment was made but for which the closeout process 

had not yet been completed after April 1, 2015 and through July 31, 2016, were reviewed. Intragovernmental transactions 

and payments to employees were excluded from review as discussed above. Travel payments, bankcards/purchase cards, 

government bills of lading, and gifts and bequests were also excluded from review. The Department determined that, for 

these categories of transactions, the Department’s costs for the payment recapture audit activities would likely exceed 

FY 2017 AGENCY FINANCIAL REPORT | 141

PAYMENT INTEGRITY
the benefits of payment recapture audits. As part of the payment recapture audit, vendor inquiries were performed for a 

sample of vendors to determine if NTIA had any open credits or debts with those vendors. Of the $3.8 million reviewed 

for improper payments, no improper payments were identified.

A payment recapture audit of Department-wide grants and other cooperative agreements was also completed in June 2017 

by the contractor. The applicable bureaus/entities were: Economic Development Administration (EDA), International Trade 

Administration (ITA), Minority Business Development Agency (MBDA), National Institute of Standards and Technology (NIST), 

NOAA, and NTIA. The audit consisted of grants and other cooperative agreements for which the period of performance 

expired during the timeframe of January 1, 2015 through April 30, 2016, and greater than $100 thousand. Of the $853.7 million 

reviewed for improper payments, no improper payments were identified. 

The contractor also completed in June 2017 a review of the statuses of sustained disallowed costs of $10 thousand or 

more, issued between April 1, 2015 and through July 31,2016. Sustained disallowed costs could result, for example, from 

Single Audit Act audit reports related to grants/cooperative agreements, the OIG audits or reviews, post-payment reviews, 

closeout reviews, grant/cooperative agreement-specific audits or reviews, and contracts/obligations-specific audits or 

reviews. The statuses of the sustained disallowed costs provided by the contractor are utilized by the Department for its 

comprehensive payment integrity and overpayment recapture efforts, including reporting, monitoring, recapturing, and 

corrective actions; the statuses are further followed up on by the Department as appropriate.

d. For each program or activity that expends $1 million or more annually and either conducts a payment 

recapture audit or recaptures payments outside of a payment recapture audit, report the amount recovered 

through recapture audits and amounts recovered through sources other than payment recapture audits, 

including the percent such amounts represent of the total overpayments identified for recapture. For 

example, agencies could report on improper payments identified through: statistical samples conducted 

under IPIA; agency post-payment reviews or audits; Office of Inspector General reviews; Single Audit reports; 

self-reported overpayments; or reports from the public. Agencies may group amounts by program or activity 

or in total per the source of recapture, as appropriate. 

Beyond the Department’s payment recapture audits program, the Department has extensive payment integrity monitoring, 

minimization, recapturing, and corrective actions efforts in place, including the identification of improper payments through 

bureau post-payment reviews, the Office of Inspector General (OIG) audits or reviews, Single Audit Act audits of grants/

cooperative agreements, other grants/cooperative agreements audits, contract closeout reviews, grants/cooperative 

agreements closeout reviews, other audits or reviews, and Department-wide sample testing of disbursements under 

internal controls testing.

The following table summarizes (1) the results of payment recapture audits completed in June 2017 with regard to improper 

payments (Amounts Reviewed; and Overpayments Identified); (2) overpayments verified as recaptured in FY 2017 with 

regard to the payment recapture audit program (all years’ payment recapture audits); and (3) the Department’s FY 2017 

overpayments identified, and overpayments verified as recaptured in FY 2017, through sources other than payment recapture 

audits. For Overpayments Identified Outside of Payment Recapture Auditing reporting, the Overpayments Recaptured 

column includes both (a) recaptures of overpayments during FY 2017 of overpayments reported in FY 2017; and (b) recaptures 

of overpayments that were previously identified in prior fiscal years.

142 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

PAYMENT INTEGRITY
OVERPAYMENTS IDENTIFIED IN FY 2017 AND FY 2017 RECAPTURES OF OVERPAYMENTS 

(In Millions)

Bureau/

Reporting 

Entity

Overpayments Identified in FY 2017 and FY 2017 Recaptures of Overpayments from Payment Recapture Audit Program Overpayments 

Identified in FY 2017 and 

FY 2017 Recaptures of 

Overpayments outside 

of Payment Recapture 

Contracts/Obligations Grants Total Audit Program

Amounts 

Reviewed 

Overpayments 

Identified

Overpayments 

Recaptured1

Amounts 

Reviewed 

Overpayments 

Identified 

Overpayments 

Recaptured1

Amounts 

Reviewed 

Overpayments 

Identified 

Overpayments 

Recaptured1

Overpayments 

Identified

Overpayments 

Recaptured1

BIS N/A N/A $ 0.013 N/A N/A N/A N/A N/A N/A $ – $ –

Census 

Bureau N/A N/A N/A N/A N/A N/A N/A N/A N/A 0.342 0.249

DM/S&E N/A N/A N/A N/A N/A N/A N/A N/A N/A 0.003 –

DM/WCF N/A N/A N/A N/A N/A N/A N/A N/A N/A 0.033 0.012

EDA N/A N/A 0.001 $ 6.000 $ – N/A $ 6.000 $ – N/A 0.067 0.072

ESA/BEA N/A N/A N/A N/A N/A N/A N/A N/A N/A 0.005 –

ITA N/A N/A N/A 0.500 – N/A 0.500 – N/A 0.009 –

MBDA N/A N/A N/A 7.137 N/A N/A 7.137 N/A N/A 0.001 –

NIST N/A N/A N/A 208.914 – N/A 208.914 – N/A 0.895 1.124

NOAA N/A N/A N/A 513.842 – N/A 513.842 – N/A 0.265 0.161

NTIA $ 3.757 $ – N/A 117.338 – N/A 117.338 – N/A 0.193 0.192

NTIS N/A N/A N/A N/A N/A N/A N/A N/A N/A 0.112 0.107

USPTO N/A N/A N/A N/A N/A N/A N/A N/A N/A 0.292 0.195

Total $ 3.757 $ – $ 0.014 $ 853.731 $ – N/A $ 853.731 $ – N/A $ 2.217 $ 2.112

N/A – Not applicable

1 Includes both (a) recaptures of overpayments during FY 2017 of overpayments that were reported in FY 2017; 

and (b) recaptures of overpayments that were previously reported in prior fiscal years.

e. In addition, agencies shall provide a summary of how their Overpayments Recaptured through Payment 

Recapture Audits were used; the summary shall include:

i. The disposition of amounts recaptured through payment recapture audits in the current year. Disposition 

categories could include, but are not limited to:

1. Agency Expenses to Administer the Program 

2. Payment Recapture Auditor Fees 

3. Financial Management Improvement Activities 

4. Original Purpose 

5. Office of Inspector General 

6. Returned to Treasury 

The Department recaptured overpayments in FY 2017 totaling $13 thousand that were for overpayments identified in 

previous payment recapture audits. Of the $13 thousand recaptured, $12 thousand was retained for its original purpose, 

and $1 thousand was remitted to Treasury.

FY 2017 AGENCY FINANCIAL REPORT | 143

PAYMENT INTEGRITY
ii. An aging schedule of the amount of overpayments identified through the payment recapture audit program 

that are outstanding, including the percent such amounts represent of the total overpayments identified 

through payment recaptures audits (i.e., overpayments that have been identified but not recaptured). 

Typically, the aging of an overpayment begins at the time an overpayment is detected; indicate when 

this is not the case. The amounts outstanding should be grouped by: zero to six months, six months to 

one year, and over one year. 

iii. The agency should also report the amount determined to not be collectable, including the percent such 

amounts represent of the total overpayments of the agency. 

The Department has not yet recaptured overpayments of $3 thousand that were included in the overpayments identified for 

recapture of $4 thousand in the payment recapture audit of contracts/obligations of EDA/Salaries and Expenses completed 

in February 2015.

AGING OF OUTSTANDING OVERPAYMENTS IDENTIFIED IN PAYMENT RECAPTURE AUDIT PROGRAM

(In Millions)

Bureau/

Reporting Entity Type of Payment

Amount Outstanding 

(0–6 Months)

Amount Outstanding 

(6 Months–1 Year)

Amount Outstanding 

(Over 1 Year)

Amount Determined to 

Not be Collectible

EDA Contract $ – $ – $ 0.003 $ –

IV. PaymentAccuracy.gov Website

Treasury, in coordination with the U.S. Department of Justice and OMB, established the PaymentAccuracy.gov website, 

located at https://paymentaccuracy.gov, to create a centralized location to publish information about U.S. government 

improper payments made to individuals, organizations, and contractors. This website also provides a centralized place 

where suspected incidents of fraud, waste, and abuse can be reported, and contains information about (1) current and 

historical rates and amounts of improper payments; (2) why improper payments occur; and (3) what agencies are doing to 

reduce and recapture improper payments. The website also contains extensive information, guidance, and links to other 

useful resources for addressing improper payments.

This website contains additional information and data about the Department’s improper payments, including improper 

payments information included in previous Departmental Agency Financial Reports that is no longer included in the FY 2017 

Agency Financial Report.

144 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

PAYMENT INTEGRITY
FRAUD REDUCTION REPORT

F

raud risk management is an important aspect of the Department’s strategy to achieve its mission and goals. Fraud 

prevention, detection, monitoring, and response are key to managing fraud risk and is continually being integrated in 

the culture and controls throughout the Department. A number of key control strategies have been implemented in 

FY 2017 and the final quarter in FY 2016. 

Fraud risk has been identified as one of 10 categories of risk by the Department’s Enterprise Risk Management (ERM) 

Framework. The Department’s ERM Framework is designed to facilitate a risk-based approach to fraud risk assessment at 

different levels within the organization. Management uses the U.S. Government Accountability Office (GAO) Fraud Risk 

Management Framework leading practices as a guide to combat fraud, increase emphasis on prevention, and put into 

place corrective actions to address identified deficiencies. The Department also utilizes several processes and sources to 

identify, manage, and mitigate fraud risks. These processes and sources include, but are not limited to, the Agency Risk 

Profile, GAO High-Risk List, and Mission Critical Programs and Activities List. A fraud assessment has also been tailored 

to a specific program’s operations and risks, such as the Census 2020. An independent risk analysis was initiated by the 

Department’s Office of Risk Management, and fraud risk has been considered as part of that analysis.

Analyses of risks, including fraud risks, are also an integral process of the Department’s financial internal control program. 

The Department annually performs an assessment of the risks at the entity and process levels. At the entity level, 

the Department and components assess exposures and controls around fraud risk. How the Department anticipates, 

identifies, and responds to fraud is considered during the assessment. Existing Departmental policies and procedures 

are also examined to ensure that they adequately meet their objective. At the process level, inherent and control risks are 

assessed for each of the Department’s key business processes and sub-processes. The process level assessment includes 

evaluation of the Department’s payroll, purchase card, and grants management business cycles. The exercise and results of 

these assessments aids in identifying types and levels of risks within the Department and informs the mitigation process. 

Business process workshops are also held annually in which interdisciplinary teams, including task owners and the Internal 

Control Senior Assessment Team, come together to identify and examine the control activity and control design around 

key business processes. During these workshops, key control objectives and activities are discussed and control gaps are 

identified and addressed. Internal control test steps are also discussed and/or modified.

Finally, the Department also has a team that utilizes data analytics to collect and analyze data to detect and monitor fraud. 

The data analytics program involves the development of continuous monitoring processes, data science techniques, 

analytics and visualizations, to be applied to sensitive programs and financial data in order to identify trends, anomalies, 

and other meaningful patterns that may signify potential internal control weakness or indicators of fraud, waste, and 

abuse. In FY 2016 and FY 2017, the Department completed reviews of Purchase Card, Travel Card, and WebT&A (Time and 

Attendance) datasets and worked together with bureaus on sensitive issues and corrective actions. The Department plans 

to continue to expand its data analytics program to enhance the capabilities and scope of additional analysis.

FY 2017 AGENCY FINANCIAL REPORT | 145

FRAUD REDUCTION REPORT
REDUCE THE FOOTPRINT

P

er section 3 of Office of Management and Budget (OMB) Memorandum 12-12, Promoting Efficient Spending to Support 

Agency Operations (May 11, 2012), and OMB Management Procedures Memorandum 2013-02, Implementation of 

OMB Memorandum M-12-12 Section 3: Freeze the Footprint (March 14, 2013), Chief Financial Officers (CFO) Act 

departments and agencies shall not increase the total square footage of their domestic office and warehouse inventory 

compared to the FY 2012 baseline, unless increased footage is offset through consolidation, co-location, or disposal of 

space from the inventory of that agency. Under the Freeze the Footprint initiative from FY 2013 to FY 2015 the Department 

achieved an overall 4.7 percent space reduction in three years by looking for office consolidation opportunities, revisiting 

storage requirements, and tighter management of space allocations. 

On March 25, 2015, OMB issued Memorandum 2015-01, Implementation of OMB Memorandum M-12-12 Section 3: Reduce 

the Footprint. In contrast, the Reduce the Footprint initiative is focusing on workspace planning, controlling requirements, 

and a disciplined approach to merging mission and collaboration of space to provide a variety of reconfigurable space and 

technology options. 

The Department seeks to continue efforts to track, cap, and reverse a long-term growth trend of real property space by 

systematically and strategically eliminating unneeded assets regardless of space type. In the five-year period between FY 2016 

and FY 2021, the Department’s stretch goal remains to reduce its owned total footprint by three percent, or 228,495 square 

feet, and its leased, including General Services Administration (GSA) leased office space, by 15 percent, or 1.53 million square 

feet, from its FY 2015 baseline; excluding the 2020 Decennial Census space growth. The Department has determined its 

principal strategic approach is to (1) focus on office utilization rate improvement to reduce space; (2) consolidate underutilized 

assets; and (3) dispose of unneeded assets. Because of budget constraints, operating units will need to consider the use 

of GSA’s Workplace Engagements, as well as Furniture and Information Technology (FIT) and Consolidation program funds to 

offset initial planning, furnishing, and build-out costs. The Herbert C. Hoover Building renovation project is utilizing the FIT 

program in lieu of direct appropriations to furnish and equip recent phases. The Bureau of Economic Analysis co-location 

with the Census Bureau utilized GSA Consolidation funds to offset design and build-out costs. 

REDUCE THE FOOTPRINT BASELINE COMPARISONS

(In Millions)

FY 2015

Baseline

FY 2016 

Actual +/- Change 

Square Footage 12.124 11.904 (0.219) Target Met

OPERATING COSTS OF OWNED AND DIRECT LEASE BUILDINGS SUBJECT TO REDUCE THE FOOTPRINT

(In Millions)

FY 2015

Baseline

FY 2016 

Actual +/- Change 

Operation and Maintenance Costs $35.039 $36.769 $1.7301

1 Target missed due to rent increase and inflation.

146 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

REDUCE THE FOOTPRINT
CIVIL MONETARY PENALTIES’ ADJUSTMENTS 

FOR INFLATION

T

he Federal Civil Penalties Inflation Adjustment Act of 1990, as amended by the Debt Collection Improvement Act of 1996 

and the Federal Civil Penalties Inflation Adjustment Act Improvements Act of 2015, requires agencies to adjust their 

civil monetary penalties (CMP) for inflation to maintain their deterrent effect. A CMP is defined as any penalty, fine, or 

other sanction that is (1) for a specific monetary amount as provided by federal law, or has a maximum amount provided for 

by federal law; (2) assessed or enforced by an agency pursuant to federal law; and (3) assessed or enforced pursuant to an 

administrative proceeding or a civil action in the federal courts. The Department has been adjusting its CMPs for inflation since 

1996 in accordance with the Federal Civil Penalties Inflation Adjustment Act of 1990, as amended. Effective 2017, agencies are 

required to make annual adjustments for inflation to CMPs, to take effect not later than January 15.

The Department published its 2017 adjustments for inflation to CMPs (15 CFR Part 6, Civil Monetary Penalty Adjustments for 

Inflation) in the Federal Register on December 28, 2016 (Vol. 81, No. 249, Rules and Regulations, pages 95432-95435). These 

adjustments for inflation to CMPs, which became effective on January 15, 2017, are also available at the Department’s website 

at http://www.osec.doc.gov/ofm/OFM_Publications.html. The following table provides detailed information on each of the 

Department’s CMPs as of January 15, 2017.

Statutory Authority CMP Name

Year CMP 

Originally

Enacted

Latest Year 

of CMP 

Non-inflation 

Adjustment 

(via Statute or 

Regulation)

Current

CMP Level

Department of Commerce

31 U.S.C. 3802(a)(1), Program Fraud Civil 

Remedies Act of 1986

Violation 1986 1986 Maximum $10,957

31 U.S.C. 3802(a)(2), Program Fraud Civil 

Remedies Act of 1986

Violation 1986 1986 Maximum $10,957

31 U.S.C. 3729(a)(1)(G), False Claims Act Violation 1863 1986 Minimum $10,957

Maximum $21,916

Bureau of Industry and Security

15 U.S.C. 5408(b)(1), Fastener Quality Act Violation 1990 1990 Maximum $45,268

22 U.S.C. 6761(a)(1)(A), Chemical 

Weapons Convention Implementation Act

Violation 1998 1998 Maximum $36,849

22 U.S.C. 6761(a)(1)(B), Chemical 

Weapons Convention Implementation Act

Violation 1998 1998 Maximum $7,370

50 U.S.C. 1705(b), International 

Emergency Economic Powers Act

Violation 1977 2007 Maximum $289,238

22 U.S.C. 8142(a), United States 

Additional Protocol Implementation Act

Violation 2006 2006 Maximum $29,946

 (continued on next page)

FY 2017 AGENCY FINANCIAL REPORT | 147

CIVIL MONETARY PENALTIES’ ADJUSTMENTS FOR INFLATION
(continued from previous page)

Statutory Authority CMP Name

Year CMP 

Originally

Enacted

Latest Year of CMP 

Non-inflation 

Adjustment 

(via Statute or 

Regulation)

Current

CMP Level

Census Bureau

13 U.S.C. 304, Collection 

of Foreign Trade Statistics

Each day's 

delinquency of 

a violation; total 

of not to exceed 

maximum 

violation

Maximum per 

violation

1962 2002 Each day’s delinquency 

of a violation: 

Maximum $1,333

Maximum per violation: 

$13,333

13 U.S.C. 305(b), Collection

of Foreign Trade Statistics

Violation 1962 2002 Maximum $13,333

Economics and Statistics Administration

22 U.S.C. 3105(a), International 

Investment and Trade in Services Act

Failure to furnish 

information

Minimum: 1990

Maximum: 1976

Minimum: 1990

Maximum: 1990

Minimum $4,527

Maximum $45,268

International Trade Administration

19 U.S.C. 81s, Foreign Trade Zone Violation 1934 1934 Maximum $2,795

19 U.S.C. 1677f(f)(4), U.S.-Canada 

FTA Protective Order

Violation 1988 1988 Maximum $201,106

National Oceanic and Atmospheric Administration

51 U.S.C. 60123(a), Land Remote 

Sensing Policy Act of 2010

Violation 2010 2010 Maximum $11,052

51 U.S.C. 60148(c), Land Remote 

Sensing Policy Act of 2010

Violation 2010 2010 Maximum $11,052

16 U.S.C. 773f(a), Northern Pacific 

Halibut Act of 1982

Violation 1982 2007 Maximum $231,391

16 U.S.C. 783, Sponge Act Violation 1914 1914 Maximum $1,652

16 U.S.C. 957(d), (e), and (f), 

Tuna Conventions Act of 1950

Violations 1962 1962 (i) Violation of 

16 U.S.C. 957(a):

Maximum $82,579

(ii) Subsequent violation

of 16 U.S.C. 957(a):

Maximum $177,863

(iii) Violation of 

16 U.S.C. 957(b):

Maximum $2,795

(iv) Subsequent violation

of 16 U.S.C. 957 (b): 

Maximum $16,516

(v) Violation of 

16 U.S.C. 957(c):

Maximum $355,726

 (continued on next page)

148 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

CIVIL MONETARY PENALTIES’ ADJUSTMENTS FOR INFLATION
(continued from previous page)

Statutory Authority CMP Name

Year CMP 

Originally

Enacted

Latest Year of CMP 

Non-inflation 

Adjustment 

(via Statute or 

Regulation)

Current

CMP Level

National Oceanic and Atmospheric Administration (continued)

16 U.S.C. 957(i), Tuna Conventions

Act of 1950

Violation 2015 2015 Maximum $181,0711 

16 U.S.C. 959, Tuna Conventions

Act of 1950

Violation 2015 2015 Maximum $181,0711

16 U.S.C. 971f(a), Atlantic Tunas 

Convention Act of 1975 

Violation 2015 2015 Maximum $181,0711

16 U.S.C. 973f(a), South Pacific Tuna 

Act of 1988

Violation 1988 1988 Maximum $502,765

16 U.S.C. 1174(b), Fur Seal Act 

Amendments of 1983

Violation 1983 1983 Maximum $23,933

16 U.S.C. 1375(a) (1), Marine Mammal 

Protection Act of 1972

Violation 1972 1972 Maximum $27,950

16 U.S.C. 1385(e), Dolphin Protection 

Consumer Information Act

Violation 1990 2015 Maximum $181,0711

16 U.S.C. 1437(d)(1), National Marine 

Sanctuaries Act

Violation 1984 1992 Maximum $170,472

16 U.S.C. 1540(a)(1), Endangered 

Species Act of 1973

Violations 1973 1988 (i) Violation as specified:

Maximum $50,276

(ii) Violation as specified:

Maximum $24,132

(iii) Otherwise violation:

Maximum $1,652

16 U.S.C. 1858(a), MagnusonStevens Fishery Conservation and 

Management Act

Violation 1976 1990 Maximum $181,071

16 U.S.C. 2437(a)(1), Antarctic Marine 

Living Resources Convention Act of 1984

Violation 1984 2015 Maximum $181,0711

16 U.S.C. 2465(a), Antarctic Protection 

Act of 1990

Violation 1990 1990 Maximum $181,0711

16 U.S.C. 3373(a), Lacey Act 

Amendments of 1981

Violations 1981 1981 (i) 16 U.S.C. 3373(a)(1):

Maximum $25,881

(ii) 16 U.S.C. 3373(a)(2):

Maximum $647

16 U.S.C. 3606(b)(1), Atlantic Salmon 

Convention Act of 1982

Violation 1982 1982 Maximum $181,0711

16 U.S.C. 3637(b), Pacific Salmon Treaty 

Act of 1985

Violation 1985 1985 Maximum $181,0711

 (continued on next page) Footnote is shown at the end of this table.

FY 2017 AGENCY FINANCIAL REPORT | 149

CIVIL MONETARY PENALTIES’ ADJUSTMENTS FOR INFLATION
(continued from previous page)

Statutory Authority CMP Name

Year CMP 

Originally

Enacted

Latest Year of CMP 

Non-inflation 

Adjustment 

(via Statute or 

Regulation)

Current

CMP Level

National Oceanic and Atmospheric Administration (continued)

16 U.S.C. 4016(b)(1)(B), Fish and Seafood 

Promotion Act of 1986

Violation 1986 1986 Minimum $1,096

Maximum $10,957

16 U.S.C. 5010, North Pacific 

Anadromous Stocks Act of 1992

Violation 1992 2015 Maximum $181,0711

16 U.S.C. 5103(b)(2), Atlantic Coastal 

Fisheries Cooperative Management Act

Violation 1993 1993 Maximum $181,0711

16 U.S.C. 5154(c)(1), Atlantic Striped 

Bass Conservation Act

Violation 1984 1997 Maximum $181,0711

16 U.S.C. 5507(a), High Seas Fishing 

Compliance Act of 1995

Violation 1995 1995 Maximum $157,274

16 U.S.C. 5606(b), Northwest Atlantic 

Fisheries Convention Act of 1995

Violation 1995 1995 Maximum $181,0711

16 U.S.C. 6905(c), Western and 

Central Pacific Fisheries Convention 

Implementation Act 

Violation 1997 1997 Maximum $181,0711

16 U.S.C. 7009(c) and (d), Pacific 

Whiting Act of 2006

Violation 2007 2007 Maximum $181,0711

22 U.S.C. 1978(e), Fishermen’s 

Protective Act of 1967

Violations 1971 1971 Violation:

Maximum $27,950

Subsequent violation:

Maximum $82,579

30 U.S.C. 1462(a), Deep Seabed Hard 

Mineral Resources Act

Violation 1980 1980 Maximum $71,264

42 U.S.C. 9152(c), Ocean Thermal Energy 

Conversion Act of 1980

Violation 1980 1980 Maximum $71,264

16 U.S.C. 1827a, Billfish Conservation 

Act of 2012

Violation 2012 2012 Maximum $181,0711

16 U.S.C. 7407(b)(1), Port States 

Measures Agreement Act of 2015

Violation 2015 2015 Maximum $181,0711

16 U.S.C. 1826g(f), High Seas Driftnet 

Fishing Moratorium Protection Act

Violation 2015 2015 Maximum $181,0711

1 This National Oceanic and Atmospheric Administration maximum CMP, as prescribed by law, is the maximum CMP per 16 U.S.C. 1858(a), 

Magnuson-Stevens Fishery Conservation and Management Act CMP.

150 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

CIVIL MONETARY PENALTIES’ ADJUSTMENTS FOR INFLATION
GRANTS OVERSIGHT AND NEW EFFICIENCY (GONE) ACT 

REQUIREMENTS OF UNCLOSED GRANT AND COOPERATIVE 

AGREEMENT AWARDS FOR WHICH THE PERIOD OF 

PERFORMANCE HAS EXPIRED MORE THAN TWO YEARS

The Office of Management and Budget (OMB) Management Procedures Memorandum 2016-04, GONE Act Reporting of 

Unclosed Grant and Cooperative Agreement Awards For Which the Period of Performance Has Expired More Than Two Years 

(August 15, 2016), requires the following information to be reported in the Other Information section of the Department’s 

FY 2017 Agency Financial Report:

a. A brief high-level discussion on a subset of GONE Act information, including:

ii. A summary table of the total number of federal grant and cooperative agreement awards and balances for which 

closeout has not yet occurred but for which the period of performance has elapsed more than two years with zero 

dollar balances and undisbursed balances. 

iii. A brief narrative of the challenges leading to delays in grant and cooperative agreement award closeout and planned 

corrective actions to address these challenges.

The table below summarizes the total number of the Department’s grant and cooperative agreement awards and balances, 

as of September 30, 2017, for which closeout has not yet occurred but for which the period of performance has lapsed more 

than two years with zero balances and undisbursed balances, and the related dollar amounts of undisbursed balances.

(Numbers of Agreements in Actual Amounts; Dollars in Thousands)

Category

Period of Performance has Expired as of September 30, 2017

Closeout Lapse of 

more than Two Years 

and up to Three Years

Closeout Lapse of 

more than Three Years 

and up to Five Years

Closeout Lapse of 

more than Five Years

Number of Grants/Cooperative Agreements 

with Zero Dollar Balances 3 4 4

Number of Grants/Cooperative Agreements 

with Undisbursed Balances 4 1 –

Total Dollar Amount of Undisbursed Balances $ 124 $ 10 $ –

The most significant challenges for the Department leading to delays in grant and cooperative agreement award closeouts 

are recipients going through various legal actions to include bankruptcy procedures as well as audit resolution disputes; 

completion of debt collection, which can span multiple years depending on the amount to be collected; and delinquent 

closeout documents—for example, for the National Telecommunications and Information Administration’s Broadband 

Technology Opportunities Program awards, closeout may be on hold pending a recipient’s submission of Uniform Commercial 

Code-1 (UCC-1) forms to their state. 

FY 2017 AGENCY FINANCIAL REPORT | 151

GRANTS OVERSIGHT AND NEW EFFICIENCY (GONE) ACT REQUIREMENTS
In 2012, the Department had a significant number of awards where the recipient was no longer in existence or where 

the recipient was in existence, but was unresponsive to bureau notifications and attempts to contact. In response to this 

challenge, the Department’s Grants Council initiated a Tiger Team to develop a process to unilaterally terminate and/or 

administratively closeout these awards. This procedure was implemented in the summer of 2013 and over the past four 

years more than 80 of these types of awards have been closed. Furthermore, each of the Department’s grant-making 

bureaus submit a monthly report to the Department’s Grants Management Division (GMD) detailing the status of all expired 

awards. The Department’s GMD consolidates these reports and presents the information during the Department’s bi-monthly 

Grants Council meetings for review and analysis. Over the past three fiscal years, lessons learned and business process 

improvements have been identified and implemented across the Department’s grants offices.

152 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

GRANTS OVERSIGHT AND NEW EFFICIENCY (GONE) ACT REQUIREMENTS
UNDISBURSED BALANCES IN EXPIRED GRANT ACCOUNTS

Undisbursed balances in expired grant accounts include budget authority that is no longer available for new obligations 

but is still available for disbursement. The period of disbursement lasts for five years after the last unexpired year 

unless the expiration period has been lengthened by legislation. Specifically, one may not incur new obligations 

against expired budget authority, but one may liquidate existing obligations by making disbursements (section 20.4(c), 

Period of availability of budget authority, of the Office of Management and Budget’s (OMB) Circular A-11 Revised dated 

August 1, 2017, Preparation, Submission, and Execution of the Budget).

OMB Memorandum M-16-18, Financial and Performance Reporting on Undisbursed Balances in Expired Grant Accounts 

(July 15, 2016), requires the following information to be reported in the Department’s annual Agency Financial Report and 

annual performance plans/budgets for FY 2017 and subsequent fiscal years regarding undisbursed balances in expired 

grant accounts:

(1) In the preceding three fiscal years, provide the total number of expired grant accounts with undisbursed balances 

for the Department and the total amount that has not been obligated to a specific grant or project remaining in 

the accounts;

(2) Details on future action the Department will take to resolve undisbursed balances in expired grant accounts;

(3) The method that the Department uses to track undisbursed balances in expired grant accounts; and

(4) Process for identification of undisbursed balances in expired grant accounts that may be returned to the 

U.S. Department of the Treasury (Treasury). 

Five bureaus report information under this guidance: International Trade Administration (ITA), Minority Business 

Development Agency (MBDA), National Institute of Standards and Technology (NIST), National Oceanic and Atmospheric 

Administration (NOAA), and National Telecommunications and Information Administration (NTIA). NIST’s Grants Management 

Division (GMD) manages all grants awarded by NIST as well as a portion of those grants funded by NTIA. NOAA’s GMD 

manages all grants awarded by NOAA as well as those grants awarded by ITA and MBDA and the remainder of the NTIA awards. 

Both NIST GMD and NOAA GMD have teams that are specifically responsible for reviewing, closing out, and deobligating 

undisbursed balances in expired awards. As part of their routine grants management responsibilities, these offices review 

reports that identify expired awards with undisbursed balances of funds as well as expired awards that may have existing 

audit findings or other unresolved matters which require further coordination prior to deobligating funds and closing out 

an award.

During its reviews of expired awards with undisbursed obligations, NIST GMD reconciles the recipient’s Standard 

Form (SF) 425, Federal Financial Report, against the amount of funding remaining in the payment system and in NIST’s 

financial system. NIST GMD works with all relevant parties to resolve any discrepancies prior to the deobligation of funds 

and begins the deobligation process once it is determined that the recipient is not owed any further federal funding and 

that all relevant issues are resolved. The NIST grants specialist actively checks NIST’s Grant Management Information 

System (GMIS) for awards eligible for closeout, and begins closing awards with the largest de-obligated funded awards first. 

NIST has a Grants Management Officer (GMO) assigned to oversee the closeout process. This individual routinely obtains 

reports from GMIS to identify any awards that have expired and that are eligible for the closeout process. Additionally, these 

reports identify if any undisbursed obligations remain in the award account. The GMO also collects regular status updates 

FY 2017 AGENCY FINANCIAL REPORT | 153

UNDISBURSED BALANCES IN EXPIRED GRANT ACCOUNTS
on all the awards in the closeout process, and advises on appropriate next steps to resolve any outstanding issues that 

may be preventing a deobligation or the closeout of an award. The status updates are reconciled against reports run from 

GMIS to help ensure that no awards warranting attention are missed during the process. If there is an unobligated balance, 

NIST’s finance office uses the budget account to determine what unobligated funds, if any, may be returned to Treasury. 

Any funds that are returned to Treasury are typically returned to Treasury upon the budget account entering the cancelled 

phase. NIST has made significant progress in reducing the backlog of closeouts and deobligations in the past three fiscal 

years; any aged closeouts are being tracked and reported to the Department’s GMD to help ensure progress is made. 

NOAA GMD obtains and reviews monthly an Undisbursed Funds Chart which is used to track expired grant awards with 

undisbursed obligations. The monthly Undisbursed Funds Charts are also provided to the Department’s GMD. Upon review 

and acceptance of the recipient’s SF 425, NOAA GMD completes and submits to NOAA’s finance office a deobligation 

request. After deobligation is completed, NOAA’s finance office identifies the applicable budget account and determines 

what, if any, unobligated funds may be returned to Treasury. NOAA will continue to expedite deobligations and closeout of 

expired to the maximum extent within 90 days from NOAA receipt of a recipient’s final SF 425. Recipients have 90 days 

after award expiration to drawdown remaining funds for expenses incurred during the award period.

Each bureau submits a monthly report to the Department’s GMD detailing the current status of expired awards—number 

of expired awards not yet closed and undisbursed balances of funds in these awards. The Department’s GMD consolidates 

these reports and presents the information during the Department’s bi-monthly Grants Council meetings for review and 

analysis. Over the past three fiscal years, numerous lessons learned and business process improvements have been 

identified and implemented across the Department’s grants offices. A direct impact of the Grants Council’s oversight has 

been the Department’s significant progress in reducing the backlog of closeouts and deobligations.

The table on the following page presents, for each budget account that had undisbursed obligations for expired grant awards 

as of September 30, 2017 (last day of FY 2017), September 30, 2016 (last day of FY 2016), or September 30, 2015 (last day 

of FY 2015), the dollar amount of undisbursed obligations for expired grant awards as of September 30, 2017, 2016, and 

2015; the dollar amount of the total unobligated balance for the budget account as of September 30, 2017, 2016, and 2015; 

and, for each bureau reported in this table, the total number of expired grant awards with undisbursed obligations as of 

September 30, 2017, 2016, and 2015.

154 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

UNDISBURSED BALANCES IN EXPIRED GRANT ACCOUNTS
(Numbers in Actual Amounts; Dollars in Thousands)

Bureau

Budget Account As of September 30, 2017 As of September 30, 2016 As of September 30, 2015

Number Title

Number 

of Expired 

Grant 

Awards with 

Undisbursed 

Obligations

Undisbursed 

Obligations 

for Expired 

Grant Awards

Total 

Unobligated 

Balance 

in Budget 

Account

Number 

of Expired 

Grant 

Awards with 

Undisbursed 

Obligations

Undisbursed 

Obligations 

for Expired 

Grant Awards

Total 

Unobligated 

Balance 

in Budget 

Account

Number 

of Expired 

Grant 

Awards with 

Undisbursed 

Obligations

Undisbursed 

Obligations 

for Expired 

Grant Awards

Total 

Unobligated 

Balance 

in Budget 

Account

ITA 1250 Operations and 

Administration, ITA, Commerce 2 $ 30 $ 69,579 8 $ 863 $ 58,931 3 $ 550 $ 41,633 

MBDA 0201 Minority Business 

Development, MBDA 2 72 5,867 60 8,945 6,795 1 88 4,920 

NIST 0500 Scientific and Technical 

Research and Services, NIST 1,037 10,268 2,359 21,818 3,161 23,018 

0513 Wireless Innovation Fund, 

NIST – 239,241 1 275,341 – 92,700

0515 Construction of Research 

Facilities, NIST – 47,607 – 24,216 – 25,746 

0525 Industrial Technology 

Services, NIST 953 8,368 8,616 43,243 12,065 21,400 

0549 Scientific and Technical 

Research and Services, Recovery Act, NIST, Commerce – 113 – – – –

4650 Working Capital Fund, NIST 308 117,090 7,112 90,168 1,268 105,119 

Total 157 2,298 422,687 175 18,088 454,786 182 16,494 267,983 

NOAA 1450 Operations, Research, and 

Facilities, NOAA 15,043 344,422 11,589 379,957 10,247 364,532 

1451 Expenses, Pacific Coastal 

Salmon Recovery, NOAA 254 163 2 434 400 436 

1460 Procurement, Acquisition, 

and Construction, NOAA, Commerce 1,136 398,645 83 264,553 1,119 258,716 

(continued on next page)

FY 2017 AGENCY FINANCIAL REPORT | 155

UNDISBURSED BALANCES IN EXPIRED GRANT ACCOUNTS
(continued from previous page)

(Numbers in Actual Amounts; Dollars in Thousands)

Bureau

Budget Account As of September 30, 2017 As of September 30, 2016 As of September 30, 2015

Number Title

Number 

of Expired 

Grant 

Awards with 

Undisbursed 

Obligations

Undisbursed 

Obligations 

for Expired 

Grant Awards

Total 

Unobligated 

Balance 

in Budget 

Account

Number 

of Expired 

Grant 

Awards with 

Undisbursed 

Obligations

Undisbursed 

Obligations 

for Expired 

Grant Awards

Total 

Unobligated 

Balance 

in Budget 

Account

Number 

of Expired 

Grant 

Awards with 

Undisbursed 

Obligations

Undisbursed 

Obligations 

for Expired 

Grant Awards

Total 

Unobligated 

Balance 

in Budget 

Account

NOAA (continued)

2055 Fisheries Disaster 

Assistance, NOAA, Commerce $ – $ 78 $ 159 $ – $ 1,136 $ 4,358

4316 Damage Assessment and 

Restoration Revolving Fund, NOAA 1 119,678 2,686 118,529 25 166,460

5139 Promote and Develop 

Fishery Products and Research Pertaining to American Fisheries, NOAA 228 3,706 455 2,414 7 1,083 

5284 Limited Access System 

Administration Fund, NOAA – 16,197 52 13,731 552 12,055 

5362 Environmental 

Improvement and Restoration Fund, NOAA – 8,222 1,298 – – 705 

5439 Western Pacific 

Sustainable Fisheries Fund, NOAA – 17 – 418 – 90 

Total 357 16,662 891,128 292 16,324 780,036 306 13,486 808,435 

NTIA 0550 Salaries and Expenses, 

NTIA, Commerce 9 30,874 – 39,423 – 29,523 

0551 Public Telecommunication 

Facilities, Planning and Construction, NTIA, Commerce 39 852 39 903 4 935 

0554 Broadband Technology 

Opportunities Program, Recovery Act, NTIA, Commerce – 169,784 80,291 168,850 – 166,725

4358 Network Construction 

Fund, NTIA, Commerce 154 5,539,480 – – – –

Total 7 202 5,740,990 11 80,330 209,176 41 4 197,183 

Total 525 $ 19,264 $7,130,251 546 $ 124,550 $1,509,724 533 $ 30,622 $1,320,154 

156 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

UNDISBURSED BALANCES IN EXPIRED GRANT ACCOUNTS
A AAC Activity Address Code

AFR Agency Financial Report

APG Agency Priority Goal

ASAP Automated Standard Application for Payments

B BEA Bureau of Economic Analysis

BIS Bureau of Industry and Security

C CBS Commerce Business Systems

CEIP Coastal Energy Impact Program (a NOAA direct loan program)

CFO Chief Financial Officer

CFO/ASA Chief Financial Officer and Assistant Secretary for Administration (DM)

CFR Code of Federal Regulations

CMP Civil Monetary Penalty

COTS Commercial off-the-shelf [software]

CPI Consumer Price Index

CSRS Civil Service Retirement System (OPM)

D DATA Act Digital Accountability and Transparency Act of 2014

DM Departmental Management 

DM&R Deferred Maintenance and Repairs

DOI U.S. Department of the Interior

DOL U.S. Department of Labor

E E2 Employee Travel System, version 2 or E2 Solutions 

(travel management system) 

EDA Economic Development Administration 

EPP Educational Partnership Program (NOAA)

ERM Enterprise Risk Management

ES Enterprise Services

ESA Economics and Statistics Administration

F FASAB Federal Accounting Standards Advisory Board

FCA Facility Condition Assessment (NIST and NOAA)

FCC Federal Communications Commission

GLOSSARY OF ACRONYMS

Abbreviation Title

FY 2017 AGENCY FINANCIAL REPORT | 157

GLOSSARY OF ACRONYMS
FCCS Federal Claims Collections Standards

FCI Facility Condition Index (DM&R)

FECA Federal Employees’ Compensation Act

FEGLI Federal Employees’ Group Life Insurance Program (OPM)

FEHB Federal Employees Health Benefit Program (OPM)

FERS Federal Employees Retirement System (OPM)

FFMIA Federal Financial Management Improvement Act of 1996

FirstNet First Responder Network Authority (an independent 

authority within NTIA)

FIT Furniture and Information Technology

FKNMS Florida Keys National Marine Sanctuary (NOAA)

FMFIA Federal Managers’ Financial Integrity Act of 1982

FVOG Fishing Vessel Obligation Guarantee Program 

(a NOAA loan guarantee program)

FWC Future Workers’ Compensation

FY Fiscal Year ended September 30

G GAAP Generally Accepted Accounting Principles

GAO U.S. Government Accountability Office

GCCMIF Global Climate Change Mitigation Incentive Fund (EDA)

G-Invoicing Government Invoicing System (Treasury)

GMD Grants Management Division

GMIS Grant Management Information System (NIST)

GMO Grants Management Officer (NIST)

GOES Geostationary Operational Environmental Satellites (NOAA)

GONE Grants Oversight and New Efficiency Act of 2016

GPRMA Government Performance and Results Modernization Act of 2010 

Grants Manual Grants and Cooperative Agreements Manual

GSA U.S. General Services Administration

H HCOP Human Capital Operating Plan (OMB)

HR Human Resources

I IFQ Individual Fishing Quota Loans (a NOAA direct loan program)

IP Improper Payments

IP Intellectual Property (USPTO)

IPIA Improper Payments Information Act of 2002

Abbreviation Title

158 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

GLOSSARY OF ACRONYMS
Abbreviation Title

ISO Information Services Office (NIST)

IT Information Technology

ITA International Trade Administration

IUS Internal Use Software

J JPSS Joint Polar Satellite System (NOAA)

M MBDA Minority Business Development Agency

MD&A Management’s Discussion and Analysis

MRB Milestone Review Board

MSI Minority Serving Institutions (EPP)

N NERR National Estuarine Research Reserves (NOAA)

NESDIS National Environmental Satellite, Data, and Information Service (NOAA)

NFC National Finance Center (U.S. Department of Agriculture)

NHTSA National Highway Traffic Safety Administration 

(U.S. Department of Transportation)

NIST National Institute of Standards and Technology

NMFS National Marine Fisheries Service (NOAA)

NOAA National Oceanic and Atmospheric Administration

NPSBN Nationwide Public Safety Broadband Network (NTIA)

NTIA National Telecommunications and Information Administration

NTIS National Technical Information Service

O OAM Office of Acquisition Management (DM)

OAR Office of Oceanic and Atmospheric Research (NOAA)

OIG Office of Inspector General (DM)

OMB Office of Management and Budget

OPM U.S. Office of Personnel Management

OS Office of the Secretary (DM)

P P3 Public–Private Partnership

PAR Position Action Request

PEP Partnership Education Program (NOAA)

PIFSC Pacific Islands Fisheries Science Center (NOAA)

PP&E Property, Plant, and Equipment

PYSO PIFSC Young Scientist Opportunity (NOAA)

FY 2017 AGENCY FINANCIAL REPORT | 159

GLOSSARY OF ACRONYMS
R RAMI Revitalize American Manufacturing and Innovation Act of 2014

R&D Research and Development

S S&E Salaries and Expenses (DM)

SBR Combined Statement of Budgetary Resources

SCNP Consolidated Statement of Changes in Net Position

SF 425 Standard Form 425, Federal Financial Report

SFFAS Statement of Federal Financial Accounting Standards (FASAB)

SPRI Strategic Plan Review and Implementation

STAR Center for Satellite Applications and Research (NESDIS)

STC Standard Terms and Conditions

T Treasury U.S. Department of the Treasury

TROR Treasury Report on Receivables

TSP Thrift Savings Plan

U U.S.C. United State Code

USDA U.S. Department of Agriculture

USPTO U.S. Patent and Trademark Office

W WCF Working Capital Fund (DM)

WHSA Woods Hole Science Aquarium (NOAA)

WIPO World Intellectual Property Organization

Abbreviation Title

160 | F Y 2 0 1 7 A G E N C Y F I N A N C I A L R E P O R T 

GLOSSARY OF ACRONYMS
CERTIFICATE OF EXCELLENCE

IN ACCOUNTABILITY REPORTING

I

n May 2017, the U.S. Department of 

Commerce received the Certificate 

of Excellence in Accountability 

Reporting (CEAR) from the Association 

of Government Accountants (AGA) for 

its Fiscal Year 2016 Agency Financial 

Report. The CEAR Program was 

established by the AGA, in conjunction 

with the Chief Financial Officers Council 

and the U.S. Office of Management and 

Budget, to improve the effectiveness 

of financial and program accountability 

reporting. 

Certificate of Excellence in

Accountability Reporting®

presented to the

in recognition of outstanding effort in preparing the

Agency Financial Report for the fiscal year ending September 30, 2016.

®

Ann M. Ebberts, MS, PMP

Chief Executive Officer, AGA

Diane L. Dudley, CGFM, CPA

Chair, CEAR Board

U.S. Department of Commerce

T

his Agency Financial Report was prepared with the energies and talents of many Department of Commerce 

employees. To these individuals, the Office of Financial Management would like to offer our sincerest 

appreciation and recognition.

In particular, we would like to recognize the following organizations for their contributions:

The bureau finance offices, Office of the Secretary, Office of the Chief Financial Officer and Assistant Secretary 

for Administration, Office of Inspector General, Office of Acquisition Management, Office of Budget, Office of 

Human Resources Management, Office of Performance, Evaluation, and Risk Management, Office of Public 

Affairs, and Office of Facilities and Environmental Quality/Office of Real Property Programs.

We also offer special gratitude and recognition to The DesignPond for their outstanding contributions in the 

design and production of this report.

ACKNOWLEDGEMENTS
U.S. DEPARTMENT OF COMMERCE

1401 Constitution Avenue NW

Washington, DC 20230

(202) 482-2000

www.commerce.gov