OFFICE OF THE UNDER SECRETARY OF DEFENSE 

(COMPTROLLER) / CHIEF FINANCIAL OFFICER

DEPARTMENT OF DEFENSE

AGENCY FINANCIAL REPORT

FISCAL YEAR 2012
FOREWORD 

The Department of Defense Agency Financial 

Report (AFR) for Fiscal Year (FY) 2012 provides 

an overview of the Department’s financial 

information and performance goals and 

objectives. It also describes our priorities in 

response to challenges encountered in defense 

of our Nation. 

For FY 2012, the Department has chosen to 

produce the Agency Financial Report as an 

alternative to the Performance and 

Accountability Report (PAR). The alternative 

report is intended to simplify and summarize 

information to increase transparency while 

utilizing the Internet for providing additional 

details. The Department’s FY 2012 reporting 

consists of three components: 

 Agency Financial Report – Published 

November 15, 2012 

 Annual Performance Report – Published 

February 6, 2013 

 Summary of Performance and Financial 

Information – Published February 15, 2013 

All three reports will be available at the Under 

Secretary of Defense (Comptroller) public 

website: http://comptroller.defense.gov/

Agency Financial Report 

(AFR)

The AFR consists of the Management’s 

Discussion and Analysis section that provides 

executive-level information on the 

Department’s history, mission, organization, 

key performance activities, analysis of the 

financial statements, controls and legal 

compliance, and other challenges facing the 

Department. Additional information is available 

in Addendum A, Other Accompanying 

Information of the AFR. 

Annual Performance Report (APR)

The APR will be included in the Congressional 

Budget Justification and will provide the 

detailed performance information and 

description of results by performance measure. 

Summary of Performance and 

Financial Information (SPFI)

The SPFI will summarize the Department’s 

financial and performance information from the 

AFR and APR, making the information more 

transparent and accessible to Congress, the 

public, and other key constituents. 

DoD photo by Helene C. Stikkel
Department of Defense Agency Financial Report for FY 2012

Table of Contents

i

TABLE OF CONTENTS

Message from the Deputy Secretary of Defense .........................................iii

Message from the Chief Financial Officer ................................................... v

Management’s Discussion and Analysis

Fiscal Year 2012 Overview ....................................................................... 7

Performance Goals, Objectives, and Results.............................................. 12

Financial Performance ........................................................................... 22

Financial Highlights and Analysis ......................................................... 22

Financial Management improvement Initiatives ..................................... 29

Financial Flexibility for Warfighters .................................................. 29

FIAR Initiative .............................................................................. 31

Financial Management Workforce Improvement Initiative ................... 34

Disciplined Use of Resources........................................................... 35

Systems, Controls, and Legal Compliance................................................. 37

Managers’ Internal Control Program ................................................ 37

Statement of Assurance................................................................. 38

Financial Management Systems ...................................................... 44

Management Challenges ........................................................................ 46

Path Forward ....................................................................................... 47

Organization......................................................................................... 49

Financial Section

Independent Auditor’s Report................................................................. 55

Principal Financial Statements and Notes ................................................. 67

Required Supplementary Stewardship Information ...................................138

Required Supplementary Information .....................................................141

Appendix A: Glossary ................................................................................149

Appendix B: Useful Web Sites.....................................................................153

Addendum A: Other Accompanying Information

IG-Identified Management and Performance Challenges ............................ A-1

Managers’ Internal Control Program ..................................................... A-32

Improper Payment and Payment Recapture Programs ............................. A-52

Addendum B: Defense Security Cooperation Agency 

Financial Statements and Notes.............................................................. B-1
Department of Defense Agency Financial Report for FY 2012

ii

Preparation of this study/report cost the 

Department of Defense a total of 

approximately $228,000 in 

Fiscal Year 2012.

Generated on 11/09/2012

RefID: 3-A8D5B25

Department of Defense Agency Financial Report for FY 2012

iv

This Page Left Blank Intentionally

Department of Defense Agency Financial Report for FY 2012

vi

This Page Left Blank Intentionally
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

7

MANAGEMENT’S DISCUSSION AND ANALYSIS

FISCAL YEAR 2012 OVERVIEW

The Department of Defense fields, sustains, and 

employs the military capabilities necessary to 

protect the United States and its allies and to 

advance our national interests. Key among 

America’s interests is security, prosperity, broad 

respect for universal values, and an international 

order that promotes cooperative action. 

For FY 2012, the Department continued to shape 

its program based on the defense strategy 

expressed in the 2010 Quadrennial Defense Review

(QDR) report, a legislative-mandated review of 

DoD strategies and priorities. The 2010 QDR 

identified four priority objectives: 

• Prevail in today’s wars

• Prevent and deter future conflict

• Prepare to defeat adversaries and succeed in a 

wide variety of contingencies

• Preserve and enhance the All-Volunteer Force

To enhance the ability of U.S. forces to protect and advance U.S. interests in both the nearand long-term, the Department has focused on prevailing in today’s wars and rebalancing 

military capabilities to prepare for an uncertain future. The Department also has sought to 

further reform our institutions and processes to better support the urgent needs of the 

warfighter; buy weapons that are effective, affordable, and truly needed, and ensure 

taxpayer dollars are spent wisely and responsibly. The 2010 QDR and the FY 2012 budget 

also address the Department’s imperative to take care of its people. Much has been asked 

of the All-Volunteer Force and the civilians who have supported that force over the past 

decade, and, as a nation, we are obligated to take care of our people to the best of our 

ability.

During FY 2012, the Department’s enacted appropriations amounted to $645.7 billion 

(Figure 2 depicts the composition of DoD’s budget authority). The DoD FY 2012 budget was 

crafted to rebalance the priorities of America’s defense establishment, institutionalizing 

successful wartime innovations to better enable success in today’s wars while ensuring that 

our forces are prepared for a complex future. The funding enabled the Department to 

maintain readiness to conduct missions abroad and a full spectrum of training, combat 

training center rotations, and recruiting and retention efforts. 

Leon E. Panetta

Secretary of Defense
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

8

The Overseas Contingency Operations (OCO) 

resources enabled the Department to 

support and fund efforts primarily in 

Afghanistan and Iraq. The Department 

continued activities under Operation New 

Dawn (OND)/post-OND Iraq activities, as it 

worked to complete the military mission and 

the responsible drawdown of forces in 

accordance with the U.S.-Iraq Security 

Agreement and transition of authority, 

building on Iraq’s improving security gains. 

In December 2011, the U.S. made good on 

its pledge to end the “advise and assist”

mission in Iraq. 

In Afghanistan, our goal remains to disrupt, 

dismantle, and eventually defeat al-Qa’ida 

and to prevent their return to either 

Afghanistan or Pakistan. U.S. coalition and Afghan forces have arrested the Taliban’s 

momentum in much of the country and reversed it in several key areas. The last of the 

33,000 surge troops sent to Afghanistan nearly two years ago to contain the Taliban 

insurgency have left the country. U.S. troops continue to work with Afghan National 

Security Forces and international partners and have begun the process of transitioning the 

lead for security to Afghanistan, which is scheduled to be complete across the country by 

the end of 2014. We also continue to apply 

relentless pressure to al-Qa’ida and other 

terrorist networks around the globe that 

threaten the U.S., its allies and partners, and 

our interests abroad.

In addition, during FY 2012, the Department 

concluded its portion of the U.S. 

Government’s support to the North Atlantic 

Treaty Organization (NATO)-led mission in 

Libya, Operation Unified Protector, to 

respond to Muammar Gaddafi's brutal 

behavior against the people of Libya. The 

U.S. Government and its international 

partners acted to mobilize a broad coalition, 

secure an international mandate to protect 

civilians, stop an advancing army, prevent a 

massacre, and establish a no-fly zone. 

Also during FY 2012, the Department 

deployed approximately 100 U.S. military 

personnel to the areas of Central Africa

Figure 1. Mission

Figure 2. Department of Defense 

FY 2012 Enacted Budget ($645.7B)

The mission of 

the Department 

of Defense is to 

protect the 

American people 

and advance our 

national 

interests. B10-30

B10-17

Budget by Appropriation

Military Personnel 153.1

Operation and Maintenance 284.0

Procurement 120.6

RDT&E 71.9

Military Construction 11.3

Family Housing 1.7

Revolving Funds 3.1

Total $645.7

OCO

$115.1B

(18%)

Base

Budget

$530.6B

(82%)

$ in Billions
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

9

affected by the Lord’s Resistance Army (LRA). These military personnel advised and assisted 

the regional forces pursuing the LRA and its leadership, who have been indicted by the 

International Criminal Court. The Department also utilized its new authority, section 1206 of 

the FY 2012 National Defense Authorization Act (NDAA), to train and equip foreign forces 

participating in the effort to counter the LRA. 

The Department’s FY 2012 budget also looked ahead, continuing the process of rebalancing 

the capabilities of the Armed Forces to confront future threats. For example, the 

Department made investments to ensure that we can operate effectively in cyberspace and 

maintain resilient and reliable networks that can operate in contested environments. The 

defense program strengthened capabilities for projecting power, such as the long-range 

strike family of weapons systems. The FY 2012 budget also included funding to ensure that 

the U.S. nuclear posture continues to provide a safe, secure, and effective deterrent as we 

implement the New START Treaty. 

The Department sought to further reform our institutions and processes--buying weapons 

that are effective, affordable, and truly needed, and ensuring taxpayer dollars are spent 

wisely and responsibly. We continue to invest in weapon systems and capabilities to counter 

21st Century threats, support the workforce, and accomplish mission requirements and 

objectives. Development, modernization and recapitalization of equipment, focused on 

current and emerging threats, greatly improved combat capability. These new capabilities 

include the fifth generation Joint Strike Fighter, the Littoral Combat Ship, a new generation 

of ground vehicles, and many more weapons. 

The FY 2012 budget also addressed the Department’s imperative to take care of its people. 

Our workforce consists of more than three million employees, both afloat and ashore, 

deployed throughout the world to meet mission requirements. Nearly half of the 

Department’s workforce is comprised of men and women on Active Duty. To provide 

Americans with the highest level of national 

security, the Department is staffed by 

approximately 1,403,000 men and women 

on Active Duty, 840,000 Reservists and 

National Guard members, and 

780,000 civilians (Figure 3).

During FY 2012, the Department mobilized 

approximately 75,500 Reserve Component 

members at any given time. The men and 

women of the Reserve and National Guard 

provided security and assistance in both the 

Afghanistan and Iraq theaters and 

maintained aircraft in the Horn of Africa, to 

name a few of their many missions. The 

skills and capabilities of the Reserve Component members match current and anticipated 

DoD requirements, thereby reducing the stress on the total force while increasing the 

capacity.

Figure 3. Staffing as of August 31, 2012

Active Duty

1,403,000

46%

Civilians

780,000

26%

Reserve

378,000

13%

National Guard

462,000

15%

B10-27 Numbers are approximate
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

10

All Active Components and five of the six Reserve Components met or exceeded their 

numerical accession goals for FY 2012. The Army Reserve finished 834 short for the year. 

This shortfall was the result of precision recruiting, which was implemented to balance the 

right mix of skilled personnel with the right set of requirements. All Active and Reserve 

Components exceeded recruit quality benchmarks in FY 2012 – a remarkable achievement. 

The Nation can be proud of these achievements as well as the commitment of Service 

members and their families, as reflected in 

record high retention rates.

Throughout FY 2012, the civilian workforce 

continued to play a critical role in supporting 

the accomplishment of the Department’s 

mission. In FY 2012, we witnessed their 

continued voluntary and enthusiastic 

participation in new and challenging roles, 

especially in support of the Department’s 

wartime efforts. The Civilian Expeditionary 

Workforce Program has deployed volunteers 

to war zones to serve in career fields as 

diverse as intelligence, public affairs, policy 

development, financial management, and 

logistics. Thousands of civilians with indemand expertise volunteer each year to 

support wartime missions in Afghanistan 

and Iraq. Before their one-year deployment 

begins, they first must undergo rigorous 

training at Muscatatuck Urban Training Center and at the Indiana National Guard Camp 

Atterbury Joint Maneuver Training Center, where they learn everything from cultural 

sensitivities to military customs and courtesies – with a few live-fire exercises thrown into 

the mix. The remarkable people who comprise civilian and military teams are the 

Department’s greatest asset in providing a strong and agile national security force.

To protect the security of the U.S., the Department operates almost 16,000 aircraft, almost 

600 ships, and many ground units. The Department’s worldwide infrastructure includes 

more than 555,000 facilities (buildings and structures) located at more than 5,000 sites 

around the world on more than 28 million acres. These sites vary greatly in size. They range 

from the very small (an unoccupied site supporting a single navigational aid that sits on less 

than one-half acre of land) to the vast and immense, such as the Army’s White Sands 

Missile Range in New Mexico with over 2.2 million acres, or the Navy’s large complex of 

installations in Norfolk, Virginia.

The Department’s FY 2012 resources also funded the construction and maintenance of 

additional modernized housing, both government-owned and privatized. In addition, the 

Department built schools for DoD dependents and medical facilities. The Department funded 

the operation of 254 commissaries and education for over 87,000 students in 194 schools. 

A soldier uses his hand held radio to give a 

situation report to members of his company 

while other soldiers provide security during a 

dismounted foot patrol. The soldiers are 

assigned to the Michigan Army National 

Guard.

U.S. Army photo by Staff Sgt. Helen Miller
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

11

The Base Realignment and Closure (BRAC) initiatives continued with $582.3 million in 

funding, which allowed the Department to provide environmental remediation and caretaker 

operations at properties not disposed of or handed over to local reuse authorities.

Even as we continued our strategic emphasis on prevailing in today’s conflicts and 

rebalancing capabilities to prepare for future threats, in FY 2012 we continued an aggressive 

pursuit of efficiencies throughout the Department. The FY 2012 budget proposed more than 

$150 billion in savings from efficiencies, continuing initiatives begun in FYs 2010 and 2011. 

Recognizing the fiscal pressures the country is facing, in FY 2012 the Department launched 

a comprehensive effort – within the Military Services and in the Department as a whole – to 

generate efficiency savings by reducing overhead costs, improving business practices, and 

terminating lower priority or troubled programs. We redirected resources away from those 

programs and activities so that more pressing needs can be addressed. 

The Department remains dedicated to obtaining, investing, and effectively using its financial 

resources to ensure the security of the U.S. and to meet the needs of both the warfighter 

and the ever-changing battlefield. The strategic placement of the Department’s personnel, 

installations, and facilities is essential for protecting our homeland and national resources. 

These resources have never been more important than they are today as the U.S. fights 

terrorists who plan and carry out attacks on our facilities and our people. Taking care of our 

people, reshaping and modernizing the force, and supporting our troops in the field remain 

the highest priorities for the Department.

U.S. Army paratroopers and Afghan soldiers and policemen conduct a presence patrol in 

Afghanistan’s Ghazni province.

U.S. Army photo by Sgt. Michael J. MacLeod
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

12

PERFORMANCE GOALS, OBJECTIVES, AND RESULTS 

This section presents some of the key goal and measures that we use to assess our success 

in the Department of Defense.

DEPARTMENT OF DEFENSE 

STRATEGIC PLAN

The Quadrennial Defense Review (QDR) 

examines national defense strategy, 

force structure, infrastructure, budget 

plans, and other elements of the 

defense program, consistent with 

National Security Strategy, National 

Defense Strategy, and National Military 

Strategy. Consequently, the QDR Report 

constitutes DoD’s Strategic Plan and 

forms the basis for development of the 

Department’s Annual Performance Plan.

In addition to the four QDR priorities--

prevail in today’s wars; prevent and 

deter conflict; prepare to defeat 

adversaries and succeed in a wide range 

of contingencies; and preserve and 

enhance the All-Volunteer Force--the 

QDR acknowledged that increased 

efficiency and effectiveness could be achieved by implementing an agenda that reforms how 

it does business. Consequently, these five reflect the Department’s Strategic Goals. 

Strategic goals 1 through 3 reflect DoD’s core warfighting missions, and Strategic goals 4 

and 5 focus on DoD infrastructure support (Figure 4).

• Strategic Goal 1, “Prevail in Today’s Wars,” refers to the ongoing conflict and extended 

stabilization campaigns in Afghanistan and Iraq.

• Strategic Goal 2, “Prevent and Deter Conflict,” focuses on integrated security 

cooperation and reorienting the Armed Forces to deter and defend against transnational 

terrorists around the world. 

• Strategic Goal 3, “Prepare to Defeat Adversaries and Succeed in a Wide Range of 

Contingencies,” indicates DoD’s contributions to homeland defense, natural disasters, 

and other contingencies.

• Strategic Goal 4, “Preserve and Enhance the All-Volunteer Force,” focuses on DoD 

personnel management, healthcare, and military families.

• Strategic Goal 5, “Reform the Business and Support Functions of the Defense 

Enterprise,” focuses on improving and integrating DoD business operations to better 

support the warfighter.

Figure 4. DoD Strategic Goals

B10-24

Goal 2

Prevent and Deter Conflict.

Goal 1

Prevail in Today’s Wars.

Goal 3

Prepare to Defeat 

Adversaries and Succeed 

in a Wide Range of 

Contingencies.

Goal 4

Preserve and Enhance the 

All-Volunteer Force.

Goal 5

Reform the Business and 

Support Functions of the 

Defense Enterprise

Warfighting

Goals

Supporting 

Goals
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

13

DEPARTMENT OF DEFENSE (DOD) PERFORMANCE HIERARCHY

The FY 2012 Performance Plan, as updated in the FY 2013 President’s Budget, reflects 

5 overarching Department strategic goals, as well as 20 strategic objectives and 

72 enterprise-level or DoD-wide performance goal priorities. The following section describes 

a representative sample of key strategic objectives and performance goals from the 

Department’s FY 2012 Annual Performance Plan. 

Primary responsibility for performance improvement rests with the Deputy Secretary of 

Defense in his role as the Chief Management Officer (CMO). The Principal Staff Assistants 

within the Office of the Secretary of Defense, in coordination with the Joint Staff, 

recommend the strategic objectives and performance goals determined to be the most 

relevant and of highest priority for DoD-wide management. The Department’s strategic 

objectives and performance goals are subject to annual refinement based on changes in 

missions and strategic direction. Figure 5 shows that every level within the Defense 

Department is accountable for performance and results.

FY 2012 DEPARTMENT OF DEFENSE KEY PERFORMANCE RESULTS

The following tables, organized by DoD strategic goal and objective, depict 17 key 

performance measures for FY 2012. Unless otherwise stated, the results reflect progress 

through the third quarter and show that the Department is on track to meet 71 percent of 

these key performance goals for FY 2012 and will come close to meeting most other goals. 

Figure 5. Department of Defense Performance Budget Hierarchy

B10-26

Mission

Program-Level 

Performance Targets 

DoD Component-Level 

Performance Goals

DoD-wide-Level 

Performance Goals

Strategic 

Objectives

Strategic 

Goals

Mission Drivers

Personnel 

Accountability

Program-Level 

Performance Goals

Annual 

Performance 

Plan

DoD 

President’s 

Budget

DoD 

Strategic Plan 

(QDR)

National 

Military 

Strategy

National 

Defense 

Strategy

National 

Security 

Strategy Elements

Elements
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

14

Strategic Goal 1: Prevail in Today’s Wars

The Afghan National Security Force (ANSF) is the backbone of long-term security and 

stability plans for Afghanistan (Strategic Objective 1.1-OCO). The ANSF is on schedule to 

achieve its October 2012 surge end strength recruitment goal of 352,000, including the 

subordinate goals of 195,000 soldiers and 157,000 police. The ANSF has grown to a force of 

over 337,000, including 185,000 soldiers, 147,000 police and 5,500 airmen. As the Afghan 

National Army and the Afghan National Police have achieved growth goals, the ANSF and 

the North Atlantic Treaty Organization (NATO) Training Mission – Afghanistan (NTM-A) have 

shifted focus from force generation to training and development. The ANSF continues to 

develop into a force capable of assuming the lead for security responsibility throughout 

Afghanistan by the end of 2014. 

STRATEGIC GOAL 1: PREVAIL IN TODAY’S WARS.

Key Performance Measures Strategic Plan Long-Term 

Performance Goals

Annual Performance Goals/Results

FY 2011 

Results

FY 2012 

Goals

FY 2012

3 Qtr 

Results

Strategic Objective 1.1-OCO: Degrade the Taliban to levels manageable by the Afghan National Security 

Force (ANSF), while increasing the size and capability of the ANSF.

1.1.4-OCO: Cumulative number 

of Afghan National Security 

Force (ANSF) end strength 

1.1.4-OCO: By FY 2012, the 

DoD will improve combat 

effectiveness by increasing the 

Afghan National Security Forces 

to 352,000.

306,903 352,000  337,351

Goal 2: Prevent and Deter Conflict

Four performance results are key to satisfying the Department’s deterrence missions and 

achieving its national security objectives. Our deterrent remains grounded in land, air, and 

naval forces capable of fighting limited and large-scale conflicts (Strategic 

Objective 2.1-1F1). The ability to successfully 

execute military operational plans is a core 

competency of the Department. By the end of 

the third quarter, the DoD Combatant 

Commanders were meeting all of their 

readiness goals and actually exceeding the 

DoD goal for being ready to execute 

contingency plans. In FY 2012, the Army 

completed the modular conversion of 228 of 

its 229 planned Multi-Functional and 

Functional (MFF) brigades, with the final MFF 

brigade activation scheduled for the fourth 

quarter of FY 2013. In addition, Defense 

Nuclear Surety Inspection results have 

consistently improved over the last four years 

The USS Carl Vinson leads the USS Bunker 

Hill and the USS Halsey during a passing 

exercise with Indian navy ships during 

Exercise Malabar 2012 in the Indian Ocean.

U.S. Navy photo by Seaman George M. Bell
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

15

and are currently achieving the desired goal of 100 percent first-time pass rate (Strategic 

Objective 2.2-1F2A). This is a positive indication of sustained Military Services’ excellence 

and senior leader focus on the nuclear enterprise.

While the Department has fielded one more Aegis Ballistic Missile Defense (BMD)-capable 

ship today than it had in FY 2011 (Strategic Objective 2.3-1F3), the FY 2012 third quarter 

result (24 ships) falls significantly below the year-end projection (29 ships). By the end of 

calendar year 2012, 28 ships are scheduled for completion. Due to an austere budget 

environment, the Department reduced the number of funded Aegis BMD-capable ships to 31

through FY 2013. In the President’s 2013 budget, the Department maintains funding for 

36 BMC ship conversions through FY 2018. 

STRATEGIC GOAL 2: PREVENT AND DETER CONFLICT.

Key Performance Measures Strategic Plan Long-Term 

Performance Goals

Annual Performance Goals/Results

FY 2011 

Results

FY 2012 

Goals

FY 2012

3 Qtr 

Results

Strategic Objective 2.1-1F1: Extend a global posture to prevail across all domains by increasing capacity 

in general purpose forces and by enhancing stability operations and foreign security force competency. 

2.1.2-1F1: Percent of the 

DoD Combatant 

Commanders’ (CoComs) 

Contingency Plans which they 

report ready to execute

2.1.2-1F1: For each fiscal 

year, DoD Combatant 

Commanders (CoComs) will be 

ready to execute at least 80 

percent of their Contingency 

Plans.

85% 80%  91%

2.1.4-1F1: Cumulative 

number of Army Multifunctional and functional 

Support (MFF) brigades 

converted to a modular 

design and available to meet 

military operational demands

2.1.4-1F1: By FY 2013, the 

DoD will convert 229 Army 

Multi-functional and functional 

Support (MFF) brigades to a 

modular design.

225 227  228

Strategic Objective 2.2-1F2A: Maintain a safe, secure, and effective nuclear arsenal to deter attack on the 

U.S. and on our allies and partners. 

2.2.2-1F2A: Passing 

percentage rate for Defense 

Nuclear Surety Inspections 

2.2.2-1F2A: Beginning in FY 

2011, the DoD will maintain a 

passing rate of 100 percent for 

all regular Defense Nuclear 

Surety Inspections.

85.7% 100%  100%

Strategic Objective 2.3-1F3: Strengthen cooperation with allies and partners to develop and field robust, 

pragmatic, and cost-effective missile defense capabilities.

2.3.1-1F3: Cumulative 

number of Aegis Ballistic 

Missile Defense (BMD)-

capable ships 

2.3.1-1F3: By FY 2018, the 

DoD will have 43 Aegis ships 

that are BMD-capable. 23 29  24
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

16

Strategic Goal 3: Prepare to Defeat Adversaries and Succeed in a 

Wide Range of Contingencies.

One key performance goal, carried over from 

FY 2011, is focused on establishing and 

certifying Homeland Response Forces (HRFs) 

at a response time of 6 – 12 hours (Strategic 

Objective 3.1-1F2B). The HRFs are 

operationally focused and aligned to the ten 

Federal Emergency Management Agency 

regions, and sourced by either a single state 

or a collection of states in that region. The 

HRFs, under control of the state governors, 

deploy in 6 – 12 hours with life-saving 

capabilities (emergency medical, search and 

extraction, decontamination, security, and 

command and control) supporting the needs 

of civilian agencies in response to chemical, 

biological, radiological, or nuclear incidents. 

By the end of FY 2012, the DoD had certified all ten HRFs located in the states of California, 

Missouri, Georgia, Pennsylvania, Ohio, Washington, Texas, New York, Utah, and 

Massachusetts.

Strategic Goal 4: Preserve and Enhance the All-Volunteer Force

The Department is on track to achieve three of four key performance goals that affect its 

ability to maintain an All Volunteer military. In the area of military health care costs 

(Strategic Objective 4.1-2M), outpatient prospective payment systems have yielded pricing 

reductions for private sector care as these are phased into full implementation. Pharmacy 

rebates provide reductions in retail pharmacy which is the highest cost pharmacy venue. 

STRATEGIC GOAL 3: PREPARE TO DEFEAT ADVERSARIES AND SUCCEED IN A 

WIDE RANGE OF CONTINGENCIES

Key Performance Measure Strategic Plan Long-Term 

Performance Goals

Annual Performance Goals/Results

FY 2011 

Results

FY 2012 

Goals

FY 2012

3 Qtr

Results

Strategic Objective 3.1-1F2B: Improve the responsiveness and flexibility of consequence management 

response forces. 

3.1.1-1F2B: Cumulative 

number of Homeland Response 

Forces (HRFs) trained, 

equipped, evaluated, and 

validated at a reduced 

response time of 6-12 hours

3.2.1-1F2: By FY 2012, the 

DoD will have and maintain 10 

Homeland Response Forces 

(HRFs) trained, equipped, 

evaluated, and validated at a 

reduced response time of 6-12 

hours to a very significant or 

catastrophic event.

2 10  8

A Navy Lieutenant carries a young girl to 

safety on Naval Air Station Joint Reserve 

Base New Orleans, Louisiana.

U.S. Air Force photo by 

Master Sgt. Dan Farrell
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

17

Less progress has been made in conversion to the Integrated Disability Evaluation System

(IDES), which was completed in FY 2011 and is now used for all Service member disability 

evaluation processing. In this area, all Military Services report staffing shortages and 

information technology challenges. Mitigation measures include additional staff and actions 

to streamline medical and physical evaluation boards. 

While the Services continue to meet their end strength goals for both Active and Reserve 

components, managing the deployment tempo remains a challenge (Strategic 

Objective 4.2-2P). In FY 2012, the Army made significant progress from 86 percent at the 

end of FY 2011 to 90 percent at the end of third quarter of FY 2012 for time deployed and 

time at home. In addition, the Department met its quarterly goal for civilian hiring for the 

first three quarters of FY 2012 and is on track to meet the annual, Federal-wide timeliness 

goal of 80 days for external hires. The use of USA Staffing has improved the Department’s 

hiring timeliness and enabled human resource professionals to manage the end-to-end 

process more effectively. 

Defense Secretary Leon E. Panetta, center, and Army Chief of Staff General Raymond T. Odierno, 

far left, pose for a photograph with the athletes of the 2012 Warrior Games in the Pentagon 

courtyard. The Warrior Games is an annual sporting event for wounded, ill and injured service 

members. 

U.S. Army photo by Staff Sgt. Teddy Wade
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

18

STRATEGIC GOAL 4: PRESERVE AND ENHANCE THE ALL-VOLUNTEER FORCE.

Key Performance Measures Strategic Plan Long-Term 

Performance Goals

Annual Performance Goals/Results

FY 2011 

Results

FY 2012 

Goals

FY 2012

3 Qtr 

Results

Strategic Objective 4.1-2M: Provide top-quality physical and psychological care to wounded warriors, 

while reducing growth in overall healthcare costs.

4.1.1-2M: Average percent 

variance in Defense Health 

Program annual cost per 

equivalent life increase

compared to average civilian 

sector increase

4.1.1-2M: Beginning in FY 

2007, the DoD will maintain an 

average Defense Health 

Program medical cost per 

equivalent life increase at or 

below the average healthcare 

premium increase in the civilian 

sector.

1.4% </=0% -8.3%

4.1.3-2M: Percent of Service 

members who are processed 

through the Single Disability 

Evaluation System (IDES) 

within 295 days (Active) and 

305 days (Reserve) 

Components.

4.1.3-2M: By FY 2014, 80 

percent of Service members 

will be processed through the 

IDES within 295 days (Active) 

and 305 days (Reserve) 

Components.

Nonapplicable 60%  20%

Strategic Objective 4.2-2P: Ensure the Department has the right workforce size and mix, manage the 

deployment tempo with greater predictability, and ensure the long-term viability of the Reserve 

Component.

4.2.3-2P: Percentage of the 

Department’s active duty 

Army who meet the planning 

objectives for time deployed 

in support of combat 

operations versus time at 

home

4.2.3-2P: By FY 2015, 95 

percent of active duty Army 

personnel will meet the 

deployment to dwell objective 

of 1:2.

85.7% 80%  90%

4.2.8-2P: Number of days for 

external civilian hiring (end-toend timeframe)

4.2.8-2P: By FY 2012, the 

Department will improve and 

maintain its timeline for all 

external (direct hire authority, 

expedited hire authority, and 

delegated examining) civilian 

hiring actions to 80 days or 

less.

104 80  82
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

19

Strategic Goal 5: Reform the Business and Support Functions of the 

Defense Enterprise

The Department is on track to achieve five of seven key performance goals to improve 

business-related support across the Defense enterprise. However, the Department is underexecuting its share of the Federal-wide initiative to reduce the number of data centers 

(Strategic Objective 5.2-2C). 

Perhaps the most noteworthy result shows 

the average rate of Major Defense 

Acquisition Program (MDAP) cost growth (at 

0.13 percent) – significantly below the 

annual FY 2012 goal of three percent 

(Strategic Objective 5.3-2E). However, the 

Department is not meeting its FY 2012 cycle 

time goal. Most of the programs in the 

portfolio of MDAPs starting in FY 2002 and 

after have experienced little or even, in 

some cases, negative cycle time growth. 

However, there are a total of 10 programs 

out of 28 in the measured population with 

cycle time growth exceeding five percent. 

Collectively, they result in the 6.26 average 

percent cycle time growth for the third 

quarter of FY 2012. 

In the area of Major Automated Information System (MAIS) acquisition, the Department is 

meeting its goal to restrain the number of “critical” MAIS breaches to no more than two per 

year. 

In the area of logistics (Strategic Objective 5.4-2L), all Military Services are meeting 

FY 2012 customer wait goals. The Army has made the most substantive improvement by 

reducing its average customer wait time by 13 percent (from 14.1 days in FY 2011 to 

12.3 days at the end of the third quarter of FY 2012). This improvement was achieved by 

receiving materiel at selected sites through the nearest supply activity which allowed closing 

orders faster. 

The Department relies on four key performance indicators or measures to assess its 

progress with regard to becoming audit ready. All of the measures are focused on the 

accuracy and reliability of the Department’s ledgers, accounting systems, and associated 

financial reports. As of the third quarter (Strategic Objective 5.5-2U/V), the Department had 

exceeded its FY 2012 annual goals pertaining to the audit readiness of DoD mission-critical 

assets and for achieving audit readiness of DoD’s Statement of Budgetary Resources (SBR) 

for Appropriations Received. An independent public accountant examination of the Defense 

Agencies’ appropriations received will be completed in FY 2013.

An F-16 Fighting Falcon launches at dawn 

during a Peninsula Operational Readiness 

Exercise on Kunsan Air Base, South Korea. 

The exercise ensures service members are 

capable of performing their duties in wartime 

conditions.

U.S. Air Force photo by 

Staff Sgt Rasheen A. Douglas
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

20

STRATEGIC GOAL 5: REFORM THE BUSINESS AND SUPPORT FUNCTIONS OF THE 

DEFENSE ENTERPRISE.

Key Performance Measures Strategic Plan Long-Term 

Performance Goals

Annual Performance Goals/Results

FY 2011 

Results

FY 2012 

Goals

FY 2012

3 Qtr 

Results

Strategic Objective 5.2-2C: Protect critical DoD infrastructure and partner with other critical infrastructure 

owners in government and the private sector to increase mission assurance.

5.2.2-2C: Cumulative percent 

reduction in the number of DoD 

data centers

5.2.2-2C: By FY 2015, the DoD 

will reduce its number of data 

centers by 45 percent (from 772 in 

FY 2010 to 428 in FY 2015) in 

order to increase data center 

storage utilization/capacity.

7% 19%  11.3%

Strategic Objective 5.3-2E: Improve acquisition processes, from requirements definition to the execution 

phase, to acquire military-unique and commercial items.

5.3.2-2E: Average percent 

increase from the Acquisition 

Program Baseline (APB) cycle 

time for Major Defense 

Acquisition Programs (MDAPs) 

starting in FY 2002 and after 

5.3.2-2E: Beginning in FY 2011, 

the DoD will not increase by more 

than five percent from the 

Acquisition Program Baseline 

(APB) cycle time for Major Defense 

Acquisition Programs (MDAPs) 

starting in FY 2002 and after.

4.5% </=5%  6.3%

5.3.5-2E: Number of Major 

Automated Information System 

(MAIS) “critical” breaches (equal 

to or greater than 25 percent of 

Acquisition Program Baseline 

(APB) total cost or with 

schedule slippages of one year 

or more))

5.3.5-2E: By FY 2012, the DoD 

will ensure that the number of 

MAIS “critical” breaches (equal to 

or greater than 25 percent of 

Acquisition Program Baseline 

(APB) total cost or with schedule 

slippages of one year or more)) will 

not exceed two.

1 2  2

5.3.6-2E: Average rate of 

acquisition cost growth from the 

previous year for Major Defense 

Acquisition Programs (MDAPs) 

starting in FY 2002

5.3.6-2E: Beginning in FY 2012, 

the DoD will ensure that average 

rate of acquisition cost growth from 

the previous year for Major 

Defense Acquisition Programs 

(MDAPs) starting in FY 2002 does 

not exceed three percent.

-0.2% 3%  0.13%

Strategic Objective 5.4-2L: Provide more effective and efficient logistical support to forces abroad.

5.4.2-2L: Army customer wait 

time 

5.4.2-2L: By FY 2013, the DoD will 

maintain the Army’s average 

customer wait time at or below 15 

days. 

14.1 15.5  12.3

Strategic Objective 5.5-2U/V: Improve financial management and increase efficiencies in headquarters and 

administrative functions, support activities, and other overhead accounts.

5.5.3-2U: Percentage of DoD 

mission critical assets (real 

property, military equipment, 

general equipment, operating 

materials and supplies, and 

inventory balances) validated 

for existence and completeness

5.5.3-2U: By FY 2017, 100 

percent of DoD mission critical 

assets (real property, military 

equipment, general equipment, 

operating materials and supplies, 

and inventory balances) validated 

for existence and completeness

4% 40%  41%
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

21

STRATEGIC GOAL 5: REFORM THE BUSINESS AND SUPPORT FUNCTIONS OF THE 

DEFENSE ENTERPRISE.

Key Performance Measures Strategic Plan Long-Term 

Performance Goals

Annual Performance Goals/Results

FY 2011 

Results

FY 2012 

Goals

FY 2012

3 Qtr 

Results

5.5.4-2U: Percentage of DoD 

Statement of Budgetary 

Resources (SBR) for 

Appropriations Received 

validated as audit-ready 

5.5.4-2U: By FY 2013, the DoD 

will improve its audit readiness on 

the Statement of Budgetary 

Resources (SBR) for 

Appropriations Received to 100 

percent.

80% 83%  88%*

*Reflects August 31, 2012 (versus FY 2012 third quarter) status.

All performance results for FY 2012 and associated trend analysis will be addressed in the 

Department’s FY 2012 Annual Performance Report with the FY 2014 Congressional Budget 

Justification and will be posted at http://comptroller.defense.gov/ in February 2013.

Rigid-hull inflatable boats carry guests and sailors assigned to Special Boat Team 12 through San 

Diego Bay to an at-sea change of command in San Diego, California. 

U.S. Navy photo by Seaman Geneva G. Brier
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

22

FINANCIAL OVERVIEW

FINANCIAL HIGHLIGHTS AND ANALYSIS

The preceding sections provided an overview of DoD

operations in FY 2012 and compared performance with 

goals. Meeting our defense goals requires resources. Our 

use of these resources in FY 2012 is summarized in the 

Department’s financial statements, which appear later in 

this report.

The Department cannot yet produce financial statements 

that are auditable, and management cannot yet provide 

sufficient assurance of effective internal controls over 

financial reporting to pass an audit. This situation occurs 

because the Department currently cannot supply auditable 

documentation in a timely fashion and cannot demonstrate 

that its business processes are sufficiently reliable and 

well-controlled to pass an audit. The Financial 

Improvement and Audit Readiness initiative, discussed 

later in this report, is guiding the Department’s effort to improve financial management and 

achieve audit readiness for key financial statements by 2014 and for all statements by 

2017.

While the Department’s financial statements are not auditable because of documentation 

and control problems, the underlying data are used regularly and successfully to pay people 

and vendors and to keep track of those payments. The data summarized in this section are 

providing the Department with the financial information necessary to manage its operations,

including its wartime operations.

The principal financial statements have been prepared to report the financial position and 

results of operations of the Department, pursuant to the requirements of 

31 U.S.C. 3515 (b). The statements have been prepared from the accounting records of the 

Department in accordance with OMB Circular No. A-136, and to the extent possible, U.S. 

Generally Accepted Accounting Principles (USGAAP) for Federal entities, and the DoD 

Financial Management Regulation. The statements, in addition to the financial reports, are 

used to monitor and control budgetary resources, which are prepared from the same 

records. The statements should be read with the realization that they are for a component 

of the U.S. Government, a sovereign entity. 

The Defense Finance and Accounting Service (DFAS) prepared the consolidated financial 

statements and explanatory notes, located in the Financial Information section of this 

report. The financial statements include:

• Statement of Budgetary Resources

• Balance Sheet

Ms. Teresa McKay, Director, 

Defense Finance and 

Accounting Service
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

23

• Statement of Net Cost

• Statement of Changes in Net Position 

STATEMENT OF BUDGETARY 

RESOURCES.

One of the most critical financial 

improvement and audit readiness 

priorities in the Department involves 

the processes, controls, and systems 

that support information most often 

used to manage the Department, 

namely, budgetary resources. The 

Statement of Budgetary Resources 

(SBR) presents the Department’s total 

budgetary resources, their status at 

the end of the year, and the 

relationship between the budgetary 

resources and the outlays made 

against them. In accordance with 

Federal statutes and implementing 

regulations, obligations may be 

incurred and payments made only to 

the extent that budgetary resources 

are available to cover such items. 

As discussed in the Overview section 

and depicted in Figure 2 of this report, 

the Department’s FY 2012 enacted 

appropriations total $645.7 billion. The 

$42.3 billion decrease from FY 2011

enacted amounts is mostly attributable 

to a decrease in appropriations for 

overseas contingency operations 

(OCO). The amounts needed for OCO 

in FY 2012 were significantly lower due 

to completing the military and “advise 

and assist” missions in Iraq at the end 

of 2011, and the redeployment of 

approximately 33,000 troops from 

Afghanistan by the end of FY 2012.

The Department reported $1.2 trillion in 

FY 2012 total budgetary resources as 

summarized in Figure 7.

Figure 6. Trend in DoD Enacted 

Appropriations

Figure 7. Composition of DoD Total 

Budgetary Resources

Description FY 2012

($ in billions)

DoD Enacted Appropriations $645.7 

U.S. Treasury Contribution for 

Military Retirement and Health 

Benefits

76.8

Civil Works Projects Executed by 

the USACE 5.7

Trust Fund Receipts 125.3

Trust Fund Resources Temporarily 

Not Available (61.3)

Total Appropriations Reported 

on SBR $792.2

Brought Forward Unobligated 

Budget Authority 214.9

Spending Authority from Offsetting 

Collections 117.2

Contract Authority 80.5

Total Budgetary Resources $1,204.8

B10-35

480.0 513.0 528.2 529.0 530.6

187.0 153.0 163.0 159.0 115.1

$0

$100

$200

$300

$400

$500

$600

$700

$800

FY 2008 FY 2009 FY 2010 FY 2011 FY 2012

Base Budget OCO

$667.0 $666.0 $691.2 $688.0 $645.7

$ in Billions
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

24

Total appropriations of $792.2 billion reported on the Statement of Budgetary Resources 

consist of enacted appropriations and appropriations that were provided by the U.S. Treasury 

for DoD retirement and health benefits. DoD also receives appropriations to finance the civil 

work projects managed by the U.S. Army Corps of Engineers. Current year trust fund 

receipts, to include the Military Retirement Fund and the Medicare Eligible Retiree Health 

Care Fund, are also included in the SBR “Total Appropriations” line. Trust fund receipts,

labeled as “Temporarily not available,” represent budget authority the Department will 

execute in future years to pay the current unfunded liabilities carried in these large funds. 

Additional budgetary resources include $214.9 billion of unobligated balances brought forward

from past years, $117.2 billion in spending authority from offsetting collections related to 

reimbursable work performed for public entities or other Federal agencies, and $80.5 billion of 

contract authority.

Of the $1.2 trillion in total budgetary resources, $1.059 trillion were obligated and 

$980.1 billion of obligations were disbursed. The remaining balance of unobligated budgetary 

resources relates to appropriations that are available to cover multi-year investment projects, 

which require additional time to procure. Additionally, appropriations that are expired for 

purposes of new obligations remain available for valid upward adjustments to prior year 

obligations.

BALANCE SHEET. The Balance Sheet, which reflects the Department’s financial position as 

of September 30, 2012, reports amounts available to provide future economic benefits

(Assets) owned or managed by the Department, the amounts owed (Liabilities) requiring 

use of available assets, and the difference between them (Net Position). 

The $2.1 trillion in assets shown in Figure 8 represent amounts the Department owns and 

manages. Fund Balance with Treasury, Investments, and General Property, Plant, and 

Figure 8. Summary of Total Assets

B10-31

$1,674.6 

$1,797.5 

$1,915.9 

$2,031.5 $2,085.7 

$1,000

$1,200

$1,400

$1,600

$1,800

$2,000

$2,200

FY 2008 FY 2009 FY 2010 FY 2011 FY 2012

Trend in Assets $ in Billions

Breakout

Property, 

Plant, and 

Equipment

$601.4

29%

Fund 

Balance with 

Treasury

$512.1

24%

Investments

$644.9

31%

Accounts 

Receivable

$13.0

1% Other 

Assets

$71.0

3%

Inventory

$243.3

12%

FY 2012 

Assets
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

25

Equipment represent 84 percent of the Department’s assets. General Property, Plant, and 

Equipment is largely comprised of military equipment, buildings, structures, and general 

equipment used to support the Department’s mission requirements. 

Assets increased $54.2 billion (3 percent) from FY 2011, largely due to increases in 

Investments in U.S. Treasury securities which were offset by decreases in the Department’s 

General Property Plant and Equipment and Fund Balance with Treasury. 

The $72.4 billion net increase in investments relates to the requirement to cover the 

expected normal growth of future military retirement and health benefits. Funds that are 

not needed to cover current benefits are invested in U. S. Treasury Securities. Under the 

Department’s current strategy, invested balances will continue growing to cover the 

unfunded portions of future benefits. 

The $11.3 billion reduction in the Department’s Fund Balance with Treasury is largely 

related to the overall reduction in the FY 2012 defense budget.

The $7.9 billion decrease in the Department’s General Property, Plant, and Equipment is 

largely the result of the ongoing efforts to validate existence and completeness and improve 

the valuation of its assets. 

As seen in Figure 9, the Department’s liabilities increased $106.5 billion during FY 2012, 

almost exclusively from normal growth in actuarial liabilities related to military retirement 

pension and health care benefits. The Department is confident in its ability to meet its 

financial obligations for the $2.5 trillion of liabilities reported in FY 2012. 

Figure 9. Summary of Total Liabilities

B10-32

$2,135.0 $2,161.9 

$2,322.4 $2,351.5 

$2,458.0 

$1,000

$1,200

$1,400

$1,600

$1,800

$2,000

$2,200

$2,400

$2,600

FY 2008 FY 2009 FY 2010 FY 2011 FY 2012

Trend in Liabilities $ in Billions

Breakout

Accounts 

Payable

$21.3

1%

Military Retirement 

and Employment 

Benefits

$2,323.9

94%

Environmental 

and Disposal 

Liabilities

$62.6

3%

Other Liabilities

$50.2

2%

FY 2012 

Liabilities
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

26

Figure 10 identifies the unfunded liabilities that will require future resources. The 

U.S. Treasury is responsible for funding the actuarial liability that existed at the inception of 

the military retirement and health care programs. This actuarial liability accounts for 

approximately $1.5 trillion (79 percent) of the total $1.8 trillion in liabilities that are not 

currently covered by budgetary resources. Additionally, the Department has resources 

available to cover approximately $610.4 billion of the remaining liabilities, including funds 

primarily invested in U.S. Treasury securities. 

NET COST OF OPERATIONS. The Statement of Net Cost presents the net cost of all the 

Department’s programs, including military retirement benefits. The statement reports total 

expenses incurred less the revenues earned from external sources to finance those 

expenses. Generally, the resulting balance of net cost is equivalent to the outlays reported 

on the SBR, plus accrued liabilities, less the assets purchased and capitalized on the balance 

sheet. Differences between outlays of budgetary resources and net cost generally arise from 

the timing of expense recognition. 

The Department’s costs incurred relate primarily to operations, readiness, and support 

activities, military personnel cost, and military retirement benefits. These costs were offset 

with investment earnings and contributions to support retirement and health benefit 

requirements, as well as earnings from reimbursed activities. This activity resulted in 

$768.9 billion in net costs of operations during the fiscal year. 

As depicted in Figure 11, the $768.9 billion represents an $84.7 billion increase (12 percent) 

since FY 2011. The military retirement benefits accounted for $77.7 billion (92 percent) of 

the increase, which is largely due to changes in trend and other key assumptions used to 

calculate the liability for military retirement benefits. 

Figure 10. Unfunded Liabilities

B10-33

$ in Billions

Liabilities 

covered by 

Budgetary 

Resource

$610.4

25%

Liabilities not 

covered by 

Budgetary 

Resources

$1,847.6

75%

All Other 

Unfunded 

Liabilities

$18.2

Unfunded 

Environmental 

Liabilities

$57.9

DoD Unfunded 

Military Retirement 

Benefits

$306.8

Unfunded Military 

Retirement and 

Benefits funded 

by Treasury

$1,464.3

Breakout

$1,847.6B

$1.8T
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

27

The Department’s financial performance is summarized in Figure 12. This table represents 

the Department’s condensed financial position, results of operations, and budgetary 

resources, and includes comparisons of financial balances from the current year to the prior 

year. As previously noted, the lack of auditable financial data is a limiting factor in the 

ability of the Department to explain all material variances presented in the comparative 

statements. Nevertheless, the data underlying the amounts can be and is effectively used to 

manage the Department’s operations in support of successful mission accomplishment. 

Figure 11. Summary of Net Cost of Operations

B10-34

534 572 615 615 622

136 80

205

69

147

$0

$100

$200

$300

$400

$500

$600

$700

$800

$900

FY 2008 FY 2009 FY 2010 FY 2011 FY 2012

DoD Costs Military Retirement Benefit Costs

$670 $652

$820

$684

$769

Trend in Net Cost of Operations

Procurement

$127.1

17%

Operations, 

Readiness & 

Support

$251.4

33%

Research, 

Development, 

Test & 

Evaluation

$67.5

9%

Military 

Personnel

$148.9

19% Civil Works

$8.8

1%

Military 

Retirement 

Benefits

$146.6

19%

Family Housing 

& Military 

Construction

$18.6

2%

Breakout

FY 2012 

Net Cost of 

Operations

$ in Billions
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

28

Figure 12. Financial Performance Summary

Dollars in Billions

FY 2012 Restated

FY 2011 Change % Change

ASSETS

Fund Balance with Treasury $ 512.1 $ 523.4 $ (11.3) -2.2%

Investments 644.9 572.5 72.4 12.6%

Accounts Receivable 13.0 11.7 1.3 11.1%

Other Assets 71.0 72.0 (1.0) -1.3%

Inventory and Related Property, Net 243.3 242.6 0.7 0.3%

General Property, Plant and Equipment, Net 601.4 609.3 (7.9) -1.3%

TOTAL ASSETS $ 2,085.7 $ 2,031.5 $ 54.2 2.7%

LIABILITIES

Accounts Payable $ 21.3 $ 28.0 $ (6.7) -23.9%

Other Liabilities 50.2 46.3 3.9 8.4%

Military Retirement and Other Federal 

Employment Benefits 2,323.9 2,212.4 111.5 5.0%

Environmental and Disposal Liabilities 62.6 64.8 (2.2) -3.4%

TOTAL LIABILITIES $ 2,458.0 $ 2,351.5 $ 106.5 4.5%

TOTAL NET POSITION (ASSETS MINUS LIABILITIES) $ (372.3) $ (320.0) $ (52.3) 16.3%

Total Financing Sources $ 728.0 $ 758.2 $ (30.2) -4%

Less: Net Cost 768.9 684.2 84.7 12.4%

NET CHANGE OF CUMULATIVE RESULTS OF 

OPERATIONS $ (40.9) $ 74.0 $ (114.9) -155.3%

TOTAL BUDGETARY RESOURCES $ 1,204.8 $ 1,231.3 $ (26.5) -2.2%
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

29

FINANCIAL MANAGEMENT IMPROVEMENT INITIATIVES

In FY 2012, the Department carried out its mission even as it dealt with budgetary 

pressures. With further Defense cuts on the horizon, it is more important than ever for the 

Department to maintain the public’s trust in our stewardship of taxpayer resources for the 

national defense. We are committed to improving defense financial management and 

providing the financial resources and business operations necessary to meet our national 

security objectives. The following initiatives highlight the Department’s progress toward 

better financial management.

FINANCIAL FLEXIBILITY FOR WARFIGHTERS 

The concept of financial flexibility means the ability to adjust priorities, identify financial 

resources, and make investment decisions quickly. In this context, “quickly” means realizing 

investment results within two years, which is much faster than the usual, deliberate 

budgeting process. The Department works closely with the Congress to address 

unanticipated capability shortfalls and balance the traditional acquisition risk areas of cost, 

schedule, and system performance through financial flexibility. In wartime, schedule 

slippage can cost lives. During active conflicts, the speed at which an urgent need is 

satisfied becomes the most relevant factor for reducing a commander’s operational risk and 

for saving lives and maintaining tactical advantage. 

Since June 2011, the Department’s 

Warfighter Senior Integration Group (SIG) 

has facilitated a flexible, agile approach for 

quickly identifying emerging urgent 

operational needs (UONS), and for rapidly 

adjusting program and budgetary priorities 

to fulfill UONS within an operationally 

relevant timeframe. The Deputy Secretary 

of Defense chairs the Warfighter SIG, which 

prioritizes actions and resources to resolve 

UONS. The SIG facilitates financial flexibility 

to better provide our forces with the best 

capabilities possible in the areas of force 

protection, command and control, counter 

Improvised Explosive Devices, and 

Intelligence, Surveillance and 

Reconnaissance.

The most flexible financing available to the 

Department are the accounts appropriated by the Congress for the Joint Improvised Explosive 

Device Defeat Fund, the Mine-Resistant Ambush-Protected Vehicle Fund, and the Commander’s 

Emergency Response Program. For urgent needs beyond the scope of these appropriations, the 

Department uses other tools provided by Congress, such as the Rapid Acquisition Authority 

provided by Public Law 107-314, as amended, which results from the “Ronald W. Reagan 

Deputy Secretary of Defense Ashton B. 

Carter talks with soldiers assigned to 

101st Airborne Division during a counter 

Improvised Explosive Device training 

exercise, at Fort Campbell, Kentucky.

DoD photo by Petty Officer 1st Class 

Chad J. McNeely, U.S. Navy
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

30

National Defense Authorization Act for Fiscal Year 2005.” In addition, the Congress has 

authorized the use of Contingency Construction Authority to enable flexible use of military 

construction funds to build wartime facilities at combat outposts, forward operating bases, and 

airfields.

Also, the Department remains heavily dependent upon the transfer authorities granted by 

the Congress within the annual appropriations, which allow the Department to be more 

financially agile in a rapidly changing world. Within prescribed limits, the Department uses 

its authority to transfer funds within accounts to meet changing priorities. When those limits 

must be exceeded, the Department 

requests specific, above-threshold approval 

for each transfer from the congressional 

oversight committees. 

In FY 2012, transfer authority allowed the 

Department to accelerate selected 

programs and projects in response to the 

new Defense Strategic Guidance, 

positioning the Department to meet 

defense needs in the coming era. For 

example, the Department gained 

congressional approval to expedite the 

preparation of Bahrain-based patrol craft to 

defend U.S. Navy vessels against hostile 

fast attack craft.

The Congress provided additional financial 

tools for the Department when the Global Security Contingency Fund (GSCF) was created as 

a four-year pilot project by the FY 2012 National Defense Authorization Act (P.L. 112-81), 

Section 1207. The GSCF is jointly administered and funded by the Department of State 

(DoS), and the Department of Defense. The Department recently reprogrammed 

$21.8 million in support of security activities with partner nations across the globe. This 

newly created financial tool enables better cooperation among DoS and DoD activities for 

national security. 

Finally, as part of its Strategic Management Plan, the Department’s Chief Financial Officer 

tracks the time to process above threshold reprogramming requests. This metric provides a 

view of how well the Department supports its requests with the congressional oversight 

committees and responds to the needs of the warfighter for adjusting resources to meet 

evolving requirements. This year, the Department averaged 24 days – a 50 percent 

reduction from FY 2009 – to process and receive Congressional approval for UONS 

reprogramming.

In summary, financial flexibility gives the Department critical management tools to balance 

between available resources and urgent security needs to ensure that our Armed Forces can 

meet the demands of the U.S. National Security Strategy.

Defense Secretary Leon E. Panetta gives the 

thumbs up during his launch sequence of an 

AV-8B Harrier Jet on board the USS Peleliu in 

the Pacific Ocean.

DoD photo by Erin Kirk-Cuomo
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

31

Financial Improvement and Audit Readiness (FIAR) Initiative

Although the Department’s FY 2012 financial statements are not auditable, the Department 

is effectively managing and spending the dollars appropriated to it by Congress for the 

purposes intended. With only limited exceptions, the Department’s dedicated financial 

management workforce pays DoD 

personnel, contractors, and other 

commitments accurately and on time, and 

also accurately records obligations and 

expenditures in the general ledgers of DoD 

financial systems. Failure in either of these 

responsibilities would result in unavoidable 

problems that would impact the warfighter 

and the Department’s ability to accomplish 

its challenging, worldwide mission. The 

evidence shows that this is not happening. 

While we are confident that we effectively 

manage taxpayer funds, the Department 

currently lacks the ability to demonstrate 

reliable and well-controlled business 

processes, and to consistently provide 

supporting documentation in a timely 

manner to the auditors. These capabilities 

are required to successfully pass a financial 

statement audit. Part of the challenge 

lies with DoD’s unique size and 

mission. Figure 13 shows the 

magnitude of financial activities 

processed by DFAS in FY 2012, 

excluding processing by other DoD 

entities, such as the U.S. Army Corps 

of Engineers (USACE) or TRICARE 

Management Agency (TMA). 

Financial statement auditability is 

important to the Department for many 

reasons. It is required by law, but it 

also will validate that the Department is properly and effectively managing and executing 

the resources entrusted to it by Congress and the taxpayers. To better enable the 

Department to move toward auditable financial statements, the Department refocused its 

FIAR initiative in 2009 on the information most often used to manage the Department. With 

the change in focus, two financial improvement priorities were established: budgetary 

information (i.e., auditable SBR) and accountability of mission critical assets, validated by 

existence and completeness audits. 

Figure 13. FY 2012 Transactions 

Processed and Managed by DFAS

Description FY 2012

Number of Active DoD Appropriations 

Managed 1,215

Number of Pay Transactions 164,900,000

Number of People/Accounts 6,600,000

Disbursements to Pay Recipients $617,350,000,000

Number of Travel payments 7,100,000

Number of Commercial Invoices Paid 11,300,000

Military Retirement and Health 

Benefit Funds Managed $631,200,000,000

U.S. Army World Class Athlete Program 

rifle shooter Sgt. Vincent Hancock won the 

Olympic gold medal in men’s skeet after 

competing at the Royal Artillery Barracks in 

London during the 2012 Summer Olympics. 

The 23-year-old Hancock is assigned to the 

U.S. Army Marksmanship Unit.

U.S. Army photo by Tim Hipps
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

32

These priorities were codified by Congress in the NDAA of 2010, and in October 2011, 

Secretary Panetta directed that these priorities be an “all hands” effort and that SBR audit 

readiness be achieved in 2014. Secretary Panetta’s message may be viewed at 

http://comptroller.defense.gov/video_ts/secdefaccountabilitymsg.wmv.

The Department’s plan (the FIAR Plan) for achieving the goals of the FIAR initiative are 

presented in the FIAR Plan Status Report, issued on a semi-annual basis. The FIAR Plan 

addresses the issues affecting the reliability of DoD financial statements. Specific DoD 

Component near-term and long-term milestones, representing incremental steps toward 

audit readiness, are included in the FIAR Plan Status Report, as well as Component progress 

and accomplishments, metrics used to monitor progress, and deployment plans of 

Enterprise Resource Planning systems that are modernizing DoD-wide information systems. 

The report serves as the Department’s annual Financial Management Improvement Plan, 

required by Section 1008(a) of the NDAA for FY 2002. 

USMC aerial refueling operation.

U.S. Marine Corps photo by Cpl. Reece Lodder
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

33

Significant progress is being made to achieve audit readiness. We anticipate that in 

FY 2012, six Defense organizations will continue to receive unqualified audit opinions on 

their financial statements, and three additional organizations will receive qualified audit 

opinions (see Figure 14). In 

addition, the U.S. Marine Corps, the 

first Military Service to undergo an 

SBR audit, may receive positive 

results by the end of 2012. Also in 

FY 2012, the Department exceeded 

its audit readiness interim goal by 

achieving 88 percent (goal 

83 percent) of auditability of its 

Appropriations Received, or funds 

distribution process. Also, 

41 percent (40 percent goal) of 

existence and completeness 

assertions for the Department’s 

mission critical assets will be either 

under audit or validated as audit 

ready.

Other important, incremental progress has been made on other key elements of the SBR 

and accountability of mission critical assets. As of the date of this report, 15 percent of the 

Department’s budgetary resources are under audit. This percentage will significantly 

increase as the Navy plans to assert SBR audit readiness by the end of FY 2013, followed by 

the Army, Air Force, and other Defense organizations in FY 2014.

The Department manages the Managers’

Internal Control Program (MICP), with the goal 

of providing instructions, guidance, and 

training on how to effectively execute an 

internal control program, enhance knowledge 

and understanding of audit readiness goals 

and priorities, and disseminate best practices 

and lessons learned. Additional information 

regarding the Department’s MICP program is 

contained in the Systems, Controls, and Legal 

Compliance section and in Addendum A to this

report.

Figure 14. FY 2012 Financial Statement 

Opinions

FY 2012 Unqualified Audit Opinions

U.S. Army Corps of Engineers – Civil Works

Defense Contract Audit Agency

Defense Commissary Agency

Defense Finance and Accounting Service

Military Retirement Fund

TRICARE Management Activity – Contract Resource 

Management

FY 2012 Qualified Audit Opinions

Defense Information Systems Agency – Working Capital Fund

Medicare-Eligible Retiree Health Care Fund

Office of Inspector General

Secretary of Defense Leon E. Panetta addresses 

soldiers deployed to Forward Operating Base 

Shukvani, Afghanistan.

DoD photo by Petty Officer 1st Class

Chad J. McNeeley, U.S. Navy
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

34

Financial Management Workforce Improvement Initiative

The Department has initiated a Strategic Human Capital Plan process to ensure it meets 

DoD-wide civilian financial management workforce and lifecycle management needs. This

multi-year effort, which is being applied across the Department’s financial management 

civilian community, involves analysis of both manpower and position requirements. 

In FY 2012, the Department established enterprise-wide, financial management 

competencies applicable to each financial management occupation. Based on these 

competencies, the Department has started action to implement a DoD Financial 

Management (FM) Certification Program to assist the FM workforce in meeting future needs 

and requirements. Goals of the Certification Program are to:

• Advance the professionalism of DoD’s 

FM workforce

• Strengthen public confidence in the 

Department’s financial management

• Improve skills and knowledge in audit 

readiness and decision support

• Leverage the benefits derived from 

implementing the Department’s 

Enterprise Resource Planning systems

• Encourage career broadening and 

leadership training

• Establish a standard DoD FM body of 

knowledge 

The new certification program will identify 

a required certification level (1, 2 or 3) for 

each civilian and military financial management position and within each certification level, a 

minimum number of training course hours will be required. The training is targeted to 

financial management technical competencies, DoD leadership competencies, and specific 

topics, such as audit readiness, fiscal law, and ethics. In addition to the training, a minimum 

number of years of financial management experience will be required for each certification 

level. Upon obtaining certification, a minimum level of continuing education credits will be 

required every two years.

The Department introduced pilot versions of this program for several Components this year, 

with large-scale implementation planned to begin in 2013. 

A U.S. pararescue crew hovers in an HH-60G 

Pave Hawk helicopter as part of a maritime 

personnel recovery exercise annual 

competition in Key West, Florida. 

U.S. Air Force photo by 

Tech. Sgt. Michael Fuller
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

35

DISCIPLINED USE OF RESOURCES

In the FY 2012 budget submission, the Department proposed more than $150 billion in 

streamlining and efficiency goals for FYs 2012 – 2016, and we continue to monitor progress 

in implementing these changes. On May 15, 2012, Secretary Panetta recommitted the 

Department and its leadership to an effort initiated by his predecessor to look unsparingly at 

the DoD organization and its 

operations to establish more efficient, 

effective, and cost-conscious ways of 

doing business. Secretary Panetta 

emphasized that maintaining this 

focus is more important than ever, 

given the current fiscal environment, 

and he directed the Department to 

eliminate lower-priority programs, 

streamline support activities, and 

instill a culture of savings and 

accountability. 

The Department continues to find 

further savings associated with 

streamlining overhead and 

headquarters, business practices and 

support activities. The Department is 

committed to aggressively seek ways 

to be more efficient, reduce costs, and 

be excellent stewards of taxpayer dollars while maintaining the ability to perform its 

mission. In FY 2012, the Department projected an estimated savings of $19.8 billion. 

Examples of a few of the FY 2012 efficiencies follow:

• Navy Cuts Costs by Consolidating Wireless Contracts. The Navy saved an estimated 

$10 million by consolidating numerous contracts with major carriers of wireless services, 

which enabled better pricing and “minute pooling.” 

• Air Force Aircraft Uses Less Fuel. The Air Force implemented and is implementing sixteen 

fuel saving initiatives that saved an estimated $45 million. For example, the Air Force is 

using commercial flight planning software to make real-time flight adjustments 

(airspeed, altitude) to save fuel. The Air Force also is reducing fuel reserves, consistent 

with safety and mission performance, in order to cut weight and save fuel.

• Army Recruiting. The Army saved an estimated $764 million by restructuring its 

recruiting and retention efforts in order to capitalize on the current and projected 

economic environments.

U.S. Marines conduct a battlefield zero on Camp 

Leatherneck in Afghanistan's Helmand province. 

U.S. Marine Corps photo by Sgt. Keonaona Paulo
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

36

• Disestablishment of Joint Forces Command. The Department eliminated the Four Star 

Headquarters operation, along with redundant or non-essential functions and reassigned 

essential functions to other organization while scaling each remaining function to an 

efficient and appropriate capacity. This action resulted in estimated savings of 

$292 million in FY 2012.

• Business Transformation Agency (BTA) Disestablishment. The Department also 

eliminated the BTA, with critical functions reassigned to the Defense Logistics Agency, 

Washington Headquarters Services, and the Office of the Deputy Chief Management 

Officer, with savings estimated at $98 million in FY 2012. 

• Health Care Costs Reduced by Responsibly Paying Hospitals for Outpatient Costs. The 

Department requested and won authority to use Medicare’s Outpatient Prospective 

Payment Systems for reimbursing private sector institutions for outpatient care delivered 

to TRICARE beneficiaries, resulting in an estimated savings of $840 million in FY 2012. 

A U.S. Air Force C-17 Globemaster III aircraft taxis to its parking spot on Bagram Airfield, 

Afghanistan. The Globemaster III is a regular visitor to Bagram Airfield, transporting troops, 

equipment and supplies in and out of the country. 

U.S. Air Force photo by Capt. Raymond Geoffroy
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

37

SYSTEMS, CONTROLS, AND LEGAL COMPLIANCE

MANAGERS’ INTERNAL CONTROL PROGRAM

The Department has a fundamental responsibility to be an effective steward of government 

money. Effective internal controls are the foundation of an organizational framework 

predicated on accuracy and accountability. Internal controls represent an organization’s 

plans, methods, and procedures used to meet its mission, goals, and objectives, and serve 

as the first line of defense in safeguarding assets and preventing and detecting errors, 

fraud, waste, abuse, and mismanagement. The purpose of internal control is to provide 

reasonable assurance that an organization’s objectives are achieved through (1) effective 

and efficient operations, (2) reliable financial reporting, and (3) compliance with laws and 

regulations. 

The Department is responsible for establishing, maintaining, and assessing internal controls 

in order to provide reasonable assurance that it meets the objectives of the Federal 

Managers’ Financial Integrity Act, Public Law (PL) 97-255, sections 2 and 4; the Federal 

Financial Management Improvement Act, PL 104-208; and the Office of Management and 

Budget’s Circular (OMB) No. A-127, entitled “Financial Management Systems.” 

OMB Circular No. A-123, entitled “Management’s Responsibility for Internal Control in the 

Federal Government,” requires agencies and individual Federal managers to take systematic 

and proactive measures to:

• Develop and implement appropriate, 

cost-effective internal controls.

• Assess the adequacy of internal controls 

in Federal programs and operations.

• Assess and document internal controls 

over financial reporting and financial 

management systems.

• Identify deficiencies and necessary 

improvements.

• Take corresponding corrective actions.

• Report annually on internal controls 

through management assurance 

statements.

Based on the Department’s assessment of 

internal controls, the Deputy Secretary of Defense has signed the following Statement of 

Assurance.

A U.S. Army Sgt. shares a high five with an 

Afghan boy during a presence patrol in 

Kabul, Afghanistan. 

U.S. Army photo by Sgt. Catherine Threat
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

38

STATEMENT OF ASSURANCE
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

39

The Department maintains and provides oversight of a Managers’ Internal Control Program 

(MICP), led by the Office of the Under Secretary of Defense, Comptroller, to fulfill the 

responsibilities and requirements described above. Under the MICP, the Comptroller 

organization provides instructions, guidance, and training to: 

• Share knowledge and insight with the Components on how to effectively execute an

internal control program.

• Enhance the Department’s knowledge and understanding of its audit readiness goals and 

priorities.

• Disseminate best practices and lessons learned, and assess the 32 DoD Components’ 

internal control programs during on-site validations, designed to measure the progress 

of organizations as well as their strengths and challenges.

The aircraft carrier USS George Washington sails through calm seas near Guam at sunset while 

under way in the Pacific Ocean. 

U.S. Navy photo by Petty Officer 3rd Class Paul Kelly
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

40

ACCOMPLISHMENTS

An internal control could be defined as a business practice, policy, or procedure that is 

established within an organization to create value or minimize risk. In most cases our focus 

is on reducing risk and addressing weaknesses, but organizational submissions by 

management also include accomplishments which, in the judgment of their Commanders, 

have created value by improving or strengthening the way we do business.

The following are highlights that reflect a few of the many improvements brought about 

through efforts to improve internal controls. 

• Efficiency and Savings. The DFAS reorganized and implemented changes, beginning in

October 2011, that will result in approximately $196 million in savings through FY 2017, 

to include the reduction of 395 full-time equivalents.

• Transportation and Cost Savings. The Defense Contract Management Agency (DCMA) 

Combat Support Center (CSC), during an internal control self-assessment of 

transportation costs related to deploying DCMA personnel, determined considerable cost 

savings could be achieved by maximizing the use of government versus commercial 

U.S. Army paratroopers and Afghan soldiers patrol a village in the Tani district in Afghanistan’s 

Khost province.

U.S. Army photo by Sgt. William Begley
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

41

carriers. After considerable research and input from the DCMA Contingency Contract 

Administration Services (CCAS) Operations Team, deployed personnel, and DCMA 

Kuwait Operations personnel, the CSC developed, coordinated and posted the “Freedom 

Flight Policy” which directs all DCMA CCAS personnel to use Military Air transport for 

CCAS missions entering deployment and redeployment. Travel vouchers are certified 

and verified by CSC personnel ensuring Freedom Flights are utilized as required. In the 

first year since the inception of the Freedom Flight Policy, the Agency had an estimated 

$1 million in savings. The CSC continues to leverage the use of these non-commercial 

flights to achieve fiscal stewardship and cost savings within the Agency.

• Mobile Aircraft Fire Trainers (Force Readiness). Air Force firefighters are required to 

complete two live aircraft training exercises and a crew-based, issue-focused training 

event each year. The Air Force entered into a contract to obtain a five-year operational 

lease that provides two Mobile Aircraft Fire Trainers (MAFT) to serve four installations. 

The MAFT allows each installation to conduct crew-based proficiency training on an asneeded basis, ensuring firefighters maintain mandatory certification training and that the 

installation airfield meets annual Federal Aviation Administration certification criteria. 

Air Force firefighters train with civilian firefighters from five locations to remove simulated victims 

from a burning aircraft on Francis S. Gabreski Air National Guard Base in Westhampton, New 

York. The airmen are assigned to the 106th Civil Engineering Squadron. Kellogg University 

provided the mock aircraft, which burned with propane at an estimated 1,200 degrees. 

U.S. Air Force photo by Senior Airman Christopher S. Muncy
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

42

Additionally, sharing the MAFT between multiple installations is more cost effective than 

retaining permanent trainers at each location. 

The Manager’s Internal Control Program also plays a role in ensuring that these kinds of 

improvements are sustained and remain relevant to mission needs.

ASSESSMENT

The Department’s management uses the following criteria to classify conditions as material 

weaknesses in internal control: 

• Merits the attention of the Executive Office of the President and the relevant 

Congressional oversight committees;

• Impairs fulfillment of essential operations or mission;

• Significantly weakens established safeguards against waste, loss, unauthorized use or 

misappropriation of funds, property, other assets, or conflicts of interest;

• Constitutes substantial noncompliance with laws and regulations; or 

• Represents nonconformance with government-wide, financial management system 

requirements. 

Individual DoD Components issue assurance 

statements that assess and certify the 

effectiveness of internal controls. The 

Components’ assurance statements serve as 

the primary basis for the Deputy Secretary’s 

assurance statement on the effectiveness of 

the Department’s entity wide internal 

controls. Information gathered from various 

sources serves as the basis for the assurance 

statements. This information includes 

management-initiated internal controls 

testing, program reviews, and evaluations. In 

addition, the IG DoD and the Government 

Accountability Office conduct reviews, audits, 

inspections, and investigations, and the 

findings are considered in the individual 

Component’s assurance statements and 

provide the foundation for their individual 

assessments.

The Department has effective processes in many key areas. As a result, there has been 

significant progress toward improving both financial and operational internal controls; 

however, it remains clear that the most daunting of challenges remain ahead, and more 

emphasis on effective and efficient operations is critical. In the upcoming fiscal year, the 

Department will continue to provide best practices and facilitate more validation 

assessments in order to meet the challenge. 

Members of coalition special operations 

forces wait for an air drop of supplies in the 

Shah joy district in Afghanistan’s Zabul

province. Such drops help resupply forces 

in remote areas of Afghanistan. 

U.S. Navy Petty Officer 2nd Class 

Jon Rasmussen
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

43

MATERIAL WEAKNESSES

The Department’s outstanding material weaknesses for FY 2012 are listed in Figure 15. 

Additional details related to the material weaknesses reported in the table, such as 

corrective action plans and timelines, are included in Addendum A, “Managers’ Internal 

Control Program,” of this report. 

Figure 15. Department of Defense Outstanding Material Weaknesses 

Areas of Material 

Weakness

Number of 

Material 

Weaknesses

Year 

Identified Component

Target 

Correction 

Year

1 Financial Reporting 18 FY 2001 Departmentwide FY 2017

2 Financial Management 

Systems 1 FY 2001 Departmentwide FY 2017

3 Acquisition 1 FY 2011 Departmentwide

Reassessed 

annually based 

on incremental 

improvements

4

Communications, 

Intelligence and/or 

Security

4 FY 2006

OSD; Navy; 

Air Force; 

USAFRICOM

FY 2013

5 Comptroller and/or 

Resource Management 2 FY 2011 Departmentwide FY 2017

6 Contract Administration 2 FY 2006 Departmentwide

Reassessed 

annually based 

on incremental 

improvements

7 Force Readiness 2 FY 2011 Air Force FY 2013

8

Personnel and/or 

Organizational 

Management

3 FY 2006 Departmentwide FY 2015

9 Property Management 1 FY 2011 Departmentwide FY 2016

10 Supply Operations 1 FY 2011 Departmentwide

Reassessed 

annually based 

on incremental 

improvements

Total Material 

Weaknesses 35
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

44

FINANCIAL MANAGEMENT SYSTEMS

The Department recognizes that to successfully meet our goal of achieving and sustaining 

improvements in financial management and auditable financial statements, we must 

improve our business systems. Our goal is to deliver a streamlined, 21st-century systems 

environment with information technology (IT) capabilities that work together seamlessly to 

support effective and efficient business processes and operations. Regrettably, our current 

business environment does not always meet these objectives. Many of our systems are old 

and handle or exchange information in ways that do not readily support strong financial 

management and audit standards and/or were focused more on budgetary rather than 

proprietary accounting standards. These IT systems tend to be non-standard, and 

sometimes do not include strong financial controls. Many of these legacy systems also do 

not record data at the transaction level, a capability that is essential to audit success.

To address these issues, the Department is pursuing improvements in its business systems 

environment by implementing modern, compliant systems and modernizing legacy systems 

when necessary and supported by a business case. The Department also is aggressively 

retiring legacy systems that are obsolete, redundant, or not aligned with our business 

objectives. Implementing modern technology solutions, a central part of our business 

systems modernization strategy, will directly enable key elements of auditability, such as: 

the ability to trace all transactions from source to statement and to recreate a transaction; 

documented, repeatable processes and procedures; demonstrable compliance with laws, 

regulations and standards; and a control environment that is sufficient to reduce risk to an 

acceptable level. 

These improvements to our business systems are enabled by the advancements we are 

making in Business Enterprise Architecture, Business Process Reengineering (BPR), 

acquisition oversight, and investment 

management. Most recently, Section 901 

of the FY 2012 NDAA introduced important 

changes to our investment management 

process, consolidating its execution and 

broadening its scope. To comply with this 

new law, the Department created a single 

Investment Review Board (IRB), chaired 

by the Deputy Chief Management Officer, 

that reviews the planning, design, 

acquisition, development, deployment, 

operation, maintenance, modernization, 

and project cost versus benefits of all 

defense business systems with total costs 

greater than $1 million across the current 

Future-Year Defense Program. This single, 

cross-functional IRB provides greater 

visibility of the IT investments planned for 

An MH-60S Knight Hawk helicopter passes the 

USS Chafee while delivering supplies to the 

USS Vinson during a vertical replenishment 

mission with the USNS Bridge in the Pacific 

Ocean.

U.S. Navy photo by 

Petty Officer 2nd Class James R. Evans
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

45

the business area and will better integrate business strategies with investment decisions. 

This greater understanding of our business systems environment will significantly aid our 

audit efforts. This IRB forum will help the Department to make better investment decisions, 

to ask the right questions when it comes to duplicative systems and the number of 

interfaces, and to reinforce the relationship of the business environment to the audit. 

In accordance with Section 901 and in support of the single IRB, the Department also 

modified its existing business process re-engineering requirements. Over many years, the 

Department has taken a holistic approach to BPR to assess process weaknesses, identify 

gaps, and streamline and improve processes to ensure success in changes to the full 

spectrum of its business operations. The Department is fully integrating its BPR assessment 

process with its expanded investment management and oversight framework to make 

certain that BPR is conducted at the portfolio, end-to-end process, and system level. 

Conducting appropriate BPR will help the Department make wise investment decisions, 

improve its use of performance management, control scope changes, and reduce the cost of 

fielding business capability. The Department’s updated BPR process provides a standard 

method for assessing and documenting efforts to support consistent compliance with BPR 

requirements. Financially auditable processes that use standard data will increase 

transparency and reduce the vulnerability of improper payments and potential fraud.

Improved systems alone, however, will not eliminate weaknesses or guarantee auditable 

statements. Achieving auditability requires consistent application of process controls across 

organizations and functional areas. Business and financial information that is passed from 

system to system must be controlled to ensure that only authorized personnel are using the 

system, that the systems protect data quality and integrity, and that a compliant audit trail 

is maintained. These processes must be controlled at the transaction level, from the source 

document to general ledger postings, 

accurate trial balances, and reliable period 

closeouts. Only by completing these steps 

can we prepare financial statements that can 

be cost-effectively reviewed and verified.

Additional information about the 

Department’s defense business systems, 

including the plans for acquiring new 

systems and modernizing or retiring legacy 

systems, can be found in the statutorily 

mandated Enterprise Transition Plan. Further 

information about the link between these 

systems and the Department’s auditability 

efforts can be found in the Financial 

Improvement and Audit Readiness (FIAR) 

Plan.

A U.S. Marine and an improvised explosive 

device detection dog search the perimeter of 

the Safar School compound.

Photo by Cpl Reece Lodder
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

46

MANAGEMENT CHALLENGES

While we have made progress in 

FY 2012 in managing DoD financial 

resources, challenges remain. The Office 

of Inspector General works to promote 

efficiency, effectiveness, and integrity in 

the programs and operations of the 

Department. 

Under the Reports Consolidation Act of 

2000, the Agency Financial Report must 

include a statement, prepared by the 

Department’s Inspector General (IG),

that summarizes what the IG considers 

to be the most serious management and 

performance challenges facing the 

Department, along with a brief 

assessment of the Department’s 

progress made in addressing those 

challenges. Detailed information regarding these challenges, along with the Department’s 

management response, is included in the Other Accompanying Information (Addendum A) 

to this report. 

The following lists the IG-cited management and performance challenges facing the 

Department:

• Financial Management

• Acquisition Processes and Contract Management

• Joint Warfighting and Readiness

• Information Assurance, Security, and Privacy

• Health Care

• Equipping and Training Iraq and Afghan Security Forces

• The Nuclear Enterprise

Detailed information regarding these challenges and the IG’s assessment of the 

Department’s progress, along with the Department’s management response, is included in 

Other Accompanying Information (Addendum A) of this report. 

U.S. Navy SEALs exit a C-130 Hercules aircraft 

during a training exercise. 

U.S. Navy photo by Mass Communication 

Specialist Seaman Apprentice Anthony Harding
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

47

PATH FORWARD

Over the last decade, the Department has undertaken extended operations in Iraq and 

Afghanistan to bring stability to those countries and secure our nation’s interests. Even as 

these large-scale military campaigns recede, the U.S. still faces a complex and growing 

array of security challenges across the globe. Unlike past drawdowns, when often the 

threats that the U.S. faced were subsiding, the U.S. faces a strategic turning point due to 

the challenging and rapidly changing geopolitical environment amid difficult domestic fiscal 

circumstances. These challenges include the need to confront violent extremism around the 

globe; the proliferation of lethal weapons and materials; the destabilizing behavior of 

nations such as Iran and North Korea; the rise of new powers in Asia; and the new 

geopolitical landscape in the wake of the “Arab Awakening.”

These challenges prompted the Department 

to begin a strategy-driven review in early 

2011 to reshape our defense priorities and 

spending over the coming decade. This 

strategic review, an inclusive process 

throughout the Department, was guided by 

four overarching principles: maintain the 

world's finest military; avoid hollowing out 

the force; take the reductions in a balanced, 

strategy-driven manner; and preserve the 

quality of the All-Volunteer Force by 

ensuring that we do not break faith with our 

men and women in uniform or their families. 

The Department released a new Defense 

strategy in January 2012, “Sustaining U.S. 

Global Leadership: Priorities for 21st Century 

Defense,” that describes the tough choices 

the Department made to ensure that our 

Armed Forces have the capabilities and readiness they need while contributing to the 

nation’s economic vitality. 

The U.S. Armed Forces will remain capable across the spectrum of potential conflicts. We 

will continue to conduct a complex set of missions, ranging from counterterrorism and 

countering weapons of mass destruction to maintaining a safe, secure and effective nuclear 

deterrent and projecting power abroad. We will be fully prepared to protect our interests, 

defend our homeland, and support civil authorities. Going forward, the U.S. joint force will 

be smaller and leaner, but it will be agile, more flexible, ready to deploy quickly, innovative 

and technologically advanced. We will rebalance our global posture and presence, 

emphasizing the Asia-Pacific and the Middle East regions. We will continue to strengthen our 

key alliances, build partnerships, and develop innovative ways to sustain U.S. presence 

elsewhere in the world. We must be capable of successfully confronting and defeating any 

aggressor and have the ability to defeat more than one adversary at a time. And, even as 

we reduce the growth in the `overall defense budget, we will protect, and in some cases 

President Barack Obama briefs the press on a new 

defense strategy as Defense Secretary Leon E. 

Panetta and Army Gen. Martin E. Dempsey, 

Chairman of the Joint Chiefs of Staff, prepare to offer 

remarks at the Pentagon.

DoD photo by Erin Kirk-Cuomo
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

48

increase, our investments in technology and new capabilities as well as our capacity to 

adapt, mobilize, and grow the force if necessary.

Marines conduct immediate action drills during Exercise Lava Viper on Pohakuloa Training Area, 

Hawaii. The Marines are assigned to Gulf Company, 2nd Battalion, 3rd Marine Regiment. Lava 

Viper is a battalion-level, combined-arms training exercise to better prepare Marines for upcoming 

deployments. 

U.S. Marine Corps photo by Sgt. Pete Thibodeau
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

49

ORGANIZATION 

Management of a large, complex enterprise like the U.S. Department of Defense requires an 

equally sophisticated organization. In keeping with the information typically presented in the 

Agency Financial Report, the following section briefly describes DoD’s organization.

Since the creation of America’s first army in 1775, the Department and its predecessor 

organizations have evolved into a global presence of more than 3 million individuals 

stationed throughout the world, dedicated to defending the United States by deterring and 

defeating aggression and coercion in critical regions. The Department embraces the core 

values of leadership, professionalism, and technical knowledge; its employees are dedicated 

to duty, integrity, ethics, honor, courage, and loyalty.

The Secretary of Defense is the principal assistant to the President in all matters relating to 

the Department of Defense and exercises authority, direction, and control over the 

Department. The Department of Defense is composed of the Office of the Secretary of 

Defense (OSD), the Joint Chiefs of Staff, the Joint Staff, the Office of the Inspector General 

of the Department of Defense (IG DoD), the Military Departments, the Defense Agencies, 

the DoD Field Activities, the Combatant Commands, and such other offices, agencies, 

activities, organizations, and commands established or designated by law, the President, or 

the Secretary of Defense. 

Figure 17. Department of Defense Organizational Structure

Department of

the Air Force

Secretary

of the Air Force

Office

of the

Secretary

of the

Air Force

The

Air

Staff

The

Air Force

Joint Chiefs

of Staff

Chairman of the

Joint Chiefs of Staff

The

Joint Chiefs

The

Joint Staff

Department of

the Navy

Secretary

of the Navy

Office

of the

Secretary

of the

Navy

Office

of the

Chief

of Naval 

Operations

The

Navy

Headquarters 

Marine

Corps

The

Marine

Corps

Department of 

the Army

Secretary

of the Army

Office

of the

Secretary

of the

Army

The

Army

Staff

The

Army

Secretary of Defense

Department of Defense

Office of the Inspector General

of the Department of Defense

Combatant 

Commands

Defense 

Agencies

DoD Field 

Activities 

Office of the

Secretary of Defense

Deputy Secretary, 

Under Secretaries, 

and Assistant 

Secretaries of 

Defense; and other 

specified officials
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

50

THE OFFICE OF THE SECRETARY OF DEFENSE 

The function of OSD is to assist the Secretary of Defense in carrying out the Secretary’s 

duties and responsibilities and to carry out such other duties as prescribed by law. The OSD 

Principal Staff Assistants (PSAs) are responsible for the formulation and oversight of defense 

strategy and policy. The OSD is comprised of the Deputy Secretary of Defense, who also 

serves as the Chief Management Officer; the Under Secretaries (USDs); the Deputy Chief 

Management Officer (DCMO); the General Counsel; the Assistant Secretaries (ASDs); the 

Assistants to the Secretary of Defense; the OSD Directors, and equivalents, who report 

directly to the Secretary or the Deputy Secretary; their staffs; the IG DoD; and such other 

staff offices within OSD established by law or the Secretary to assist in carrying out 

assigned responsibilities. 

Figure 18. Office of the Secretary of Defense Organizational Structure

THE JOINT CHIEFS OF STAFF AND THE JOINT STAFF

The Joint Chiefs of Staff, supported through the Chairman by the Joint Staff, constitute the 

immediate military staff of the Secretary of Defense. The Joint Chiefs of Staff consist of the 

Chairman, the Vice Chairman, the Chief of Staff of the U.S. Army, the Chief of Naval 

Operations, the Chief of Staff of the U.S. Air Force, the Commandant of the Marine Corps, 

and the Chief of the National Guard Bureau. The Joint Chiefs of Staff function as the military 

advisors to the President, the National Security Council, the Homeland Security Council, and 

the Secretary of Defense.

USD

(Acquisition, 

Technology, & 

Logistics)

USD

(Policy)

USD

(Comptroller) /

Chief Financial 

Officer

USD

(Personnel & 

Readiness)

USD

(Intelligence)

Deputy Chief 

Management 

Officer

Inspector

General,

DoD *

Director, Cost

Assessment & 

Program 

Evaluation

Director, 

Operational

Test &

Evaluation

General

Counsel,

DoD

ASD

(Legislative Affairs)

ATSD

(Public

Affairs)

DoD Chief 

Information 

Officer

Assistant to the 

Secretary of 

Defense

(Intelligence 

Oversight) 

Director, 

Administration 

& Management 

Director,

Net

Assessment 

Deputy Secretary of Defense

Chief Management Officer/

Chief Operating Officer

Secretary of Defense

* Although the IG DoD is statutorily part of OSD and is under the general supervision of the Secretary of Defense, the Office of the IG DoD (OIG) 

functions as an independent and objective unit of the Department of Defense
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

51

OFFICE OF THE INSPECTOR GENERAL

The Office of the IG DoD is an independent and objective unit within DoD that conducts and 

supervises audits and investigations relating to the programs and operations of the 

Department.

MILITARY DEPARTMENTS

The Military Departments consist of the Departments of the Army, the Navy (of which the 

Marine Corps is a component), and the Air Force. Upon the declaration of war, if Congress 

so directs in the declaration or when the President directs, the U.S. Coast Guard becomes a 

special component of the Navy; otherwise, it is part of the Department of Homeland 

Security. The three Military 

Departments organize, staff, 

train, equip, and sustain 

America’s military forces 

and are composed of the 

four Military Services (or 

five when including the 

U.S. Coast Guard when 

directed). When the 

President and Secretary of 

Defense determine that 

military action is required, 

these trained and ready 

forces are assigned to a 

Combatant Command 

responsible for conducting 

military operations. 

Military Departments include Active and Reserve Components. The Active Component is 

composed of units under the authority of the Secretary of Defense manned by active duty 

Military Service members, Reservists on active duty orders, or a combination of the two. 

The National Guard has a unique dual mission with both Reserve Component and State 

responsibilities (see Figure 19). The National Guard, when commanded by the Governor of 

each state or territory, can be called into action during local, statewide, or other 

emergencies, such as storms, drought, or civil disturbances (non-Federalized service). When 

ordered to active duty for mobilization or called into Federal service for national 

emergencies, units of the Guard are placed under operational control of the appropriate 

Combatant Commander. The Guard and Reserve forces are recognized as indispensable and 

integral parts of the Nation's defense and fully part of the applicable Military Department.

DEFENSE AGENCIES AND DOD FIELD ACTIVITIES 

Defense Agencies and DoD Field Activities are established as DoD Components by law, the 

President, or the Secretary of Defense to provide for the performance, on a DoD-wide basis, 

of a supply or service activity that is common to more than one Military Department when it 

Figure 19. Reserve Forces and National Guard

B10-25

Federal and 

State Missions

Federal Missions
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

52

is determined to be more effective, economical, or efficient to do so. Each of the 17 Defense 

Agencies and 10 DoD Field Activities operate under the authority, direction, and control of 

the Secretary of Defense, through an OSD PSA or the Chairman of the Joint Chiefs of Staff.

Figure 20. Defense Agencies and DoD Field Activities 

COMBATANT COMMANDS 

The Commanders of the Combatant Commands are responsible to the President and the 

Secretary of Defense for accomplishing the military missions assigned to them and shall 

exercise command authority over assigned forces as directed by the Secretary of Defense. 

The operational chain of command runs from the President to the Secretary of Defense to 

the Commanders of the Combatant Commands. The Chairman of the Joint Chiefs of Staff 

functions within the chain of command by transmitting the orders of the President or the 

Secretary of Defense to the Commanders of the Combatant Commands. 

The U.S. Special Operations Command (USSOCOM) is a Combatant Command with unique 

functions, responsibilities, and authorities. These unique functions, responsibilities, and 

authorities are similar to a number of authorities exercised by the Military Departments and 

Defense Agencies and include programming, budgeting, acquisition, training, organizing, 

equipping, and providing special operations forces (SOF), and developing SOF strategy, 

doctrine, tactics, and procedures. The USSOCOM is reliant upon the Services for common 

support and base operating support.

GC DoD

Defense

Legal

Services

Agency

ATSD

(Public

Affairs)

Defense

Media

Activity

DoD CIO

Defense

Information

Systems

Agency *

Deputy Secretary of Defense

Secretary of Defense

USD

(AT&L)

Defense

Advanced

Research

Projects Agency

Defense

Contract

Management

Agency *

Defense

Logistics

Agency *

Defense

Threat

Reduction

Agency *

Missile

Defense

Agency

Defense

Technical

Information

Center

DoD Test

Resource

Management

Center

Office of

Economic

Adjustment

USD

(Intelligence)

Defense 

Intelligence 

Agency *

Defense Security

Service

National

GeospatialIntelligence

Agency *

National

Reconnaissance

Office

National Security 

Agency /

Central Security 

Service *

• Seven Defense Agencies are designated as Combat Support Agencies

with joint oversight by the Chairman of the Joint Chiefs of Staff

USD

(P&R)

Defense

Commissary

Agency

DoD Human

Resources

Activity

TRICARE

Management

Activity

DoD

Education

Activity

USD

(Comptroller)

Defense

Contract

Audit

Agency

Defense

Finance &

Accounting

Service

USD

(Policy)

Defense

Security

Cooperation

Agency

Defense

POW/Missing

Personnel

Office

Defense

Technology

Security

Administration

DA&M

Pentagon

Force

Protection

Agency

Washington

Headquarters

Services

Defense Agency

DoD Field Activity

Key
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

53

In addition to supplying assigned forces and capabilities to the Combatant Commands, the 

Military Departments provide administrative and logistics support by managing the 

operational costs and execution of these commands. The USSOCOM is the only Combatant 

Command that has budget authority provided directly to the Command through 

Congressional appropriations. 

Figure 21. Combatant Commands Geographic and Functional Areas

B10-04

Six commanders have specific mission objectives for their geographical areas of responsibility:

Three commanders 

have worldwide mission 

responsibilities, each 

focused on a particular 

function:

United States

Strategic Command

United States

Transportation Command

United States

Special Operations

Command

United States

Northern Command

United States

Pacific Command

United States

European Command

United States

Southern Command

United States

Africa Command

United States

Central Command

USNORTHCOM

USEUCOM

USPACOM

USSOUTHCOM

USCENTCOM

USAFRICOM
Department of Defense Agency Financial Report for FY 2012

Management’s Discussion and Analysis

54

This Page Left Blank Intentionally
FINANCIAL SECTION

DEPARTMENT OF DEFENSE

AGENCY FINANCIAL REPORT

FISCAL YEAR 2012
This Page Left Blank Intentionally
Department of Defense Agency Financial Report for FY 2012

Financial Information

55

FINANCIAL INFORMATION

INDEPENDENT AUDITOR’S REPORT
Department of Defense Agency Financial Report for FY 2012

Financial Information

56
Department of Defense Agency Financial Report for FY 2012

Financial Information

57
Department of Defense Agency Financial Report for FY 2012

Financial Information

58
Department of Defense Agency Financial Report for FY 2012

Financial Information

59
Department of Defense Agency Financial Report for FY 2012

Financial Information

60
Department of Defense Agency Financial Report for FY 2012

Financial Information

61
Department of Defense Agency Financial Report for FY 2012

Financial Information

62
Department of Defense Agency Financial Report for FY 2012

Financial Information

63
Department of Defense Agency Financial Report for FY 2012

Financial Information

64
Department of Defense Agency Financial Report for FY 2012

Financial Information

65
Department of Defense Agency Financial Report for FY 2012

Financial Information

66
Department of Defense Agency Financial Report for FY 2012

Financial Information

67

PRINCIPAL FINANCIAL STATEMENTS AND NOTES

LIMITATIONS OF THE FINANCIAL STATEMENTS

The principal financial statements have been prepared to report the financial position and 

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

The statements are prepared from accounting records of the Department in accordance with 

Office of Management And Budget (OMB) Circular No. A-136 and, to the extent possible, 

U.S. Generally Accepted Accounting Principles (USGAAP). The statements, in addition to the 

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

from the same records. The statements should be read with the realization that they are for 

a component of the U.S. Government, a sovereign entity.

The financial statements of the Department include four principal statements listed in 

Figure 2-1.

The financial statements reflect the aggregate financial posture of the Department and

include both the proprietary (Federal accounting standards) and budgetary resources of the 

Department. The Department is large and complex with an asset base of $2.1 trillion, and 

more than 3 million military and civilian employees on installations in every state and 

around the world.

Figure 2-1. Four Principal Financial Statements

Statement What Information It Provides

Balance Sheet Reflects the Department’s financial position as of the statement date

(September 30, 2012). The assets are the amount of future economic benefits owned or 

managed by the Department. The liabilities are amounts owed by the Department. The 

net position is the difference between the assets and liabilities.

Statement of Net 

Cost

Shows separately the components of the net cost of the Department’s operations for the 

period. Net cost is equal to the gross cost incurred by the Department less any exchange 

revenue earned from its activities.

Statement of 

Changes in Net 

Position

Presents the sum of the cumulative results of operations since inception and unexpended 

appropriations provided to the Department that remain unused at the end of the fiscal 

year. The statement focuses on how the net cost of operations is financed. The resulting 

financial position represents the difference between assets and liabilities as shown on the 

consolidated balance sheet.

Statement of 

Budgetary Resources

Provides information about how budgetary resources were made available as well as their 

status at the end of the period. It is the only financial statement exclusively derived from 

the Department’s budgetary general ledger in accordance with budgetary accounting 

rules. 
Department of Defense Agency Financial Report for FY 2012

Financial Information

68

Department of Defense Consolidated Balance Sheet

Agency Wide Dollars in Millions

2012

Consolidated

Restated 2011

Consolidated 

ASSETS (Note 2)

Intragovernmental:

Fund Balance with Treasury (Note 3) $ 512,121.6 $ 523,441.6

Investments (Note 4) 641,666.5 569,342.2

Accounts Receivable (Note 5) 1,439.6 1,726.9

Other Assets (Note 6) 1,583.2 1,760.3

Total Intragovernmental Assets $ 1,156,810.9 $ 1,096,271.0

Cash and Other Monetary Assets (Note 7) 1,822.0 1,720.3

Accounts Receivable, Net (Note 5) 11,522.4 9,961.4

Loans Receivable (Note 8) 957.5 814.4

Inventory and Related Property, Net (Note 9) 243,299.7 242,582.0

General Property, Plant and Equipment, Net (Note 10) 601,458.0 609,298.5

Investments (Note 4) 3,255.0 3,185.0

Other Assets (Note 6) 66,601.2 67,714.4

TOTAL ASSETS $ 2,085,726.7 $ 2,031,547.0

Stewardship Property, Plant & Equipment (Note 10)

LIABILITIES (Note 11)

Intragovernmental:

Accounts Payable (Note 12) $ 1,762.9 $ 1,893.2

Debt (Note 13) 952.6 783.4

Other Liabilities (Note 15) 12,941.6 14,231.7

Total Intragovernmental Liabilities $ 15,657.1 $ 16,908.3

Accounts Payable (Note 12) 19,492.0 26,103.9

Military Retirement and Other Federal Employment Benefits (Note 17) 2,323,924.3 2,212,359.6

Environmental and Disposal Liabilities (Note 14) 62,602.6 64,823.1

Loan Guarantee Liability (Note 8) 12.7 13.9

Other Liabilities (Note 15) 36,308.1 31,308.1

TOTAL LIABILITIES $ 2,457,996.8 $ 2,351,516.9

Commitments & Contingencies (Note 16)

NET POSITION

Unexpended Appropriations – Earmarked Funds (Note 23) $ 295.6 $ 134.6

Unexpended Appropriations – Other Funds 528,660.0 540,239.4

Cumulative Results of Operations – Earmarked Funds (1,477,793.5) (1,430,273.8)

Cumulative Results of Operations – Other Funds 576,567.8 569,929.9

TOTAL NET POSITION $ (372,270.1) $ (319,969.9)

TOTAL LIABILITIES AND NET POSITION $ 2,085,726.7 $ 2,031,547.0

The accompanying notes are an integral part of these financial statements.
Department of Defense Agency Financial Report for FY 2012

Financial Information

69

Department of Defense Consolidated Statement of Net Cost

Agency Wide Dollars in Millions

2012

Consolidated

Restated 2011

Consolidated 

Program Costs

Gross Costs $ 781,731.1 $ 811,635.0

Military Retirement Benefits 85,570.4 107,519.6

Civil Works 10,967.2 13,530.1

Military Personnel 150,330.5 153,881.4

Operations, Readiness & Support 295,704.1 314,560.0

Procurement 130,578.8 128,572.8

Research, Development, Test & Evaluation 76,772.6 79,230.9

Family Housing & Military Construction 31,807.5 14,340.2

(Less: Earned Revenue) (83,304.8) (115,039.9)

Net Cost before Losses/(Gains) from Actuarial Assumption 

Changes for Military Retirement Benefits $ 698,426.3 $ 696,595.1

Losses/(Gains) from Actuarial Assumption Changes for Military 

Retirement Benefits 70,427.3 (12,369.6)

Net Cost of Operations $ 768,853.6 $ 684,225.5

The accompanying notes are an integral part of these financial statements.
Department of Defense Agency Financial Report for FY 2012

Financial Information

70

Department of Defense Consolidated Statement of Changes in Net Position, Agency Wide Dollars in Millions

2012 Earmarked 

Funds

2012 All Other 

Funds

2012 

Eliminations

2012 

Consolidated

2011 Earmarked 

Funds

Restated 2011 

All Other Funds

2011 

Eliminations

Restated 2011 

Consolidated

Cumulative Results Of Operations

Beginning Balances $ (1,325,647.1) $ 464,297.5 $ 0.0 $ (861,349.6) $ (1,338,741.2) $ 417,826.0 $ 0.0 $ (920,915.2)

Prior Period Adjustments:

Changes in accounting principles

Corrections of errors 0.0 1,005.7 0.0 1,005.7 0.0 (13,322.9) 0.0 (13,322.9)

Beginning balances, as adjusted $ (1,325,647.1) $ 465,303.2 $ 0.0 $ (860,343.9) $ (1,338,741.2) $ 404,503.1 $ 0.0 $ (934,238.1)

Budgetary Financing Sources:

Appropriations used 347.3 730,232.2 0.0 730,579.5 206.9 747,758.5 0.0 747,965.4

Nonexchange revenue 2,785.7 (96.3) 0.0 2,689.4 2,764.4 (24.3) 0.0 2,740.1

Donations and forfeitures of cash and cash 

equivalents 29.5 0.2 0.0 29.7 30.3 0.1 0.0 30.4

Transfers(in/out without reimbursement) (948.1) 1,081.7 0.0 133.6 (874.8) 964.0 0.0 89.2

Other (132.2) (14.2) 0.0 (146.4) (1.8) 0.0 0.0 (1.8)

Other Financing Sources (Non-Exchange)

Donations and forfeitures of property 0.0 37.5 0.0 37.5 0.3 7.3 0.0 7.6

Transfers(in/out without reimbursement) (97.2) 163.3 0.0 66.1 (71.7) (75.7) 0.0 (147.4)

Imputed financing 3.4 19,731.9 14,687.2 5,048.1 2.2 19,698.3 14,076.6 5,623.9

Other (45.3) (10,420.4) 0.0 (10,465.7) 12.7 1,799.6 0.0 1,812.3

Total Financing Sources $ 1,943.1 $ 740,715.9 $ 14,687.2 $ 727,971.8 $ 2,068.5 $ 770,127.8 $ 14,076.6 $ 758,119.7

Net Cost of Operations (+/-) 48,368.0 735,172.8 14,687.2 768,853.6 (11.025.6) 709,327.7 14,076.6 684,225.5

Net Change $ (46,424.9) $ 5,543.1 $ 0.0 $ (40,881.8) $ 13,094.1 $ 60,800.1 $ 0.0 $ 73,894.2

Cumulative Results of Operations $ (1,372,072.0) $ 470,846.3 $ 0.0 $ (901,225.7) $ (1,325,647.1) $ 465,303.2 $ 0.0 $ (860,343.9)

Unexpended Appropriations

Beginning Balances 134.6 541,194.5 0.0 541,329.1 325.2 528,479.4 0.0 528,804.6

Prior Period Adjustments:

Correction of Error 0.0 (955.1) 0.0 (955.1) 0.0 (955.1) 0.0 (955.1)

Beginning balances, as adjusted $ 134.6 $ 540,239.4 $ 0.0 $ 540,374.0 $ 325.2 $ 527,524.3 $ 0.0 $ 527,849.5

Budgetary Financing Sources:

Appropriations received 1.3 736,780.9 0.0 736,782.2 16.5 775,450.0 0.0 775,466.5

Appropriations transferred (in/out) 507.0 (898.3) 0.0 (391.3) 0.0 (781.2) 0.0 (781.2)

Other adjustments 0.0 (17,229.8) 0.0 (17,229.8) (0.2) (14,195.2) 0.0 (14,195.4)

Appropriations used (347.3) (730,232.2) 0.0 (730,579.5) (206.9) (747,758.5) 0.0 (747,965.4

Total Budgetary Financing Sources $ 161.0 $ (11,579.4) $ 0.0 $ (11,418.4) $ (190.6) $ 12,715.1 $ 0.0 $ 12,524.5

Unexpended Appropriations $ 295.6 $ 528,660.0 $ 0.0 $ 528,955.6 $ 134.6 $ 540,239.4 $ 0.0 $ 540,374.0

Net Position $ (1,371,776.4) $ 999,506.3 $ 0.0 $ (372,270.1) $ (1,325,512.5) $ 1,005,542.6 $ 0.0 $ (319,969.9)

The accompanying notes are an integral part of these financial statements.
Department of Defense Agency Financial Report for FY 2012

Financial Information

71

Department of Defense Combined 

Statement of Budgetary Resources 

Agency Wide

Page 1 of 2

Dollars in Millions

Budgetary 

Financing Accounts

Non-Budgetary 

Financing Accounts

2012 

Combined

2011 

Combined

2012 

Combined

2011 

Combined

Budgetary Resources

Unobligated balance, brought forward, October 1 $ 162,271.1 $ 160,032.1 $ 17.5 $ 24.9

Unobligated balance brought forward, October 1, 

as adjusted 162,271.1 160,032.1 17.5 24.9

Recoveries of prior year unpaid obligations 65,533.9 56,015.4 0.0 0.0

Other changes in unobligated balance (12,952.1) (11,205.6) 0.0 0.0

Unobligated balance from prior year budget 

authority, net 214,852.9 204,841.9 17.5 24.9

Appropriation (discretionary and mandatory) 792,178.8 829,461.3 0.0 0.0

Borrowing Authority (discretionary and mandatory) 0.0 0.0 172.6 229.8

Contract authority (discretionary and mandatory) 80,486.2 75,760.9 0.0 0.0

Spending authority from offsetting collections 

(discretionary and mandatory) 117,242.4 121,426.6 62.6 88.3

Total Budgetary Resources $ 1,204,760.3 $ 1,231,490.7 $ 252.7 $ 343.0

Status of Budgetary Resources

Obligations incurred $ 1,059,067.8 $ 1,069,218.2 $ 237.2 $ 326.8

Unobligated balance, end of year:

Apportioned 115,696.1 137,148.4 1.6 0.1

Exempt from Apportionment 3,976.1 4,180.3 0.0 0.0

Unapportioned 26,020.3 20,943.8 13.9 16.1

Unobligated balance brought forward, end of 

year $ 145,692.5 $ 162,272.5 $ 15.5 $ 16.2

Total Budgetary Resources $ 1,204,760.3 $ 1,231,490.7 $ 252.7 $ 343.0

Change in Obligated Balance

Unpaid obligations, brought forward, October 1 

(gross) $ 454,926.2 $ 458,620.6 $ 569.1 $ 619.4

Uncollected customer payments from Federal 

Sources, brought forward, October 1 

(75,184.3) (69,766.8) (99.9) (97.3)

Obligated balance start of year (net), before

adjustments

379,741.9 388,853.8 469.2 522.1

Obligated balance, start of year (net), as adjusted 379,741.9 388,853.8 469.2 522.1

Obligations incurred 1,059,067.8 1,069,218.2 237.2 326.8

Outlays (Gross) (979,889.9) (1,016,898.9) (264.5) (375.3)

Change in uncollected customer payments from 

Federal Sources 

(2,769.1) (5,417.5) 16.4 (2.6)

Recoveries of prior year unpaid obligations (65,533.9) (56,015.1) 0.0 0.0

Obligated balances, end of year

Unpaid Obligations, end of year (gross) 468,570.2 454,924.8 541.8 570.9

Uncollected customer payments from (77,953.4) (75,184.3) (83.5) (99.9)

Obligated balance, end of year (net) $ 390,616.8 $ 379,740.5 $ 458.3 $ 471.0

The accompanying notes are an integral part of these financial statements.
Department of Defense Agency Financial Report for FY 2012

Financial Information

72

Department of Defense Combined 

Statement of Budgetary Resources 

Agency Wide

Page 2 of 2

Dollars in Millions

Budgetary 

Financing Accounts

Non-Budgetary 

Financing Accounts

2012 

Combined

2011 

Combined

2012 

Combined

2011 

Combined

Budgetary Authority and Outlays, Net:

Budget Authority, gross (discretionary and 

mandatory) $ 989,907.4 $ 1,026,648.8 $ 235.2 $ 318.1

Actual offsetting collections (discretionary and 

mandatory) (190,586.0) (190,906.0) (92.6) (102.6)

Change in uncollected customer payments from 

Federal sources (discretionary and mandatory) (2,769.1) (5,417.5) 16.4 (2.6)

Budget Authority, net (discretionary and 

mandatory) $ 796,552.3 $ 830,325.3 $ 159.0 $ 212.9

Outlays, gross (discretionary and mandatory) $ 979,889.9 $ 1,016,898.9 $ 264.5 $ 375.3

Actual offsetting collections (discretionary and 

mandatory) (190,586.0) (190,906.0) (92.6) (102.6)

Outlays, net (discretionary and mandatory) 789,303.9 825,992.9 171.9 272.7

Distributed offsetting receipts (79,238.4) (83,198.6) 0.0 0.0

Agency Outlays, net (discretionary and 

mandatory) $ 710,065.5 $ 742,794.3 $ 171.9 $ 272.7

The accompanying notes are an integral part of these financial statements.
Department of Defense Agency Financial Report for FY 2012

Financial Information

73

NOTE 1. SIGNIFICANT ACCOUNTING POLICIES

1.A. Basis of Presentation 

These financial statements have been prepared to report the financial position and results of 

operations of the Department of Defense (DoD), as required by the Chief Financial Officers 

Act of 1990, expanded by the Government Management Reform Act of 1994, and other 

appropriate legislation. The financial statements have been prepared from the books and 

records of the Department in accordance with, to the extent possible, U.S. Generally 

Accepted Accounting Principles (USGAAP) promulgated by the Federal Accounting Standards 

Advisory Board; the Office of Management and Budget (OMB) Circular No. A-136, Financial 

Reporting Requirements; and the DoD, Financial Management Regulation. The 

accompanying financial statements account for all resources for which the Department is 

responsible unless otherwise noted. Information relative to classified assets, programs, and 

operations is excluded from the statements or otherwise aggregated and reported in such a 

manner that it is not discernible.

The Department is unable to fully implement all elements of USGAAP and 

OMB Circular No. A-136, due to limitations of financial and nonfinancial management 

processes and systems that support the financial statements. The Department derives 

reported values and information for major asset and liability categories largely from 

nonfinancial systems, such as inventory and logistics systems. These systems were 

designed to support reporting requirements for maintaining accountability over assets and 

reporting the status of Federal appropriations rather than preparing financial statements in 

accordance with USGAAP. The Department continues to implement process and system 

improvements addressing these limitations.

The Department has 13 auditor-identified material weaknesses: (1) Financial Management 

Systems; (2) Fund Balance with Treasury; (3) Accounts Receivable; (4) Inventory; 

(5) Operating Materials and Supplies; (6) General Property, Plant, and Equipment; 

(7) Government Property in Possession of Contractors; (8) Accounts Payable; 

(9) Environmental Liabilities; (10) Statement of Net Cost; (11) Intragovernmental 

Eliminations; (12) Accounting Entries; and (13) Reconciliation of Net Cost of Operations to 

Budget.

1.B. Mission of the Reporting Entity 

The Department was established by the National Security Act of 1947. The Department 

provides the military forces needed to deter war and protect the security of our country. 

Since the creation of America’s first army in 1775, the Department and predecessor 

organizations have evolved into a global presence with a worldwide infrastructure dedicated 

to defending the United States by deterring and defeating aggression and coercion in critical 

regions. 

The Department includes the Military Departments and the Defense Agencies. The Military 

Departments consist of the Army, the Navy (of which the Marine Corps is a component), 

and the Air Force. The Defense Agencies provide support services commonly used 

throughout the Department.
Department of Defense Agency Financial Report for FY 2012

Financial Information

74

1.C. Appropriations and Funds 

The Department receives appropriations and funds as general, working capital (revolving), 

trust, special, and deposit funds. The Department uses these appropriations and funds to 

execute its missions and subsequently report on resource usage.

General Funds are used for financial transactions funded by congressional appropriations, 

including personnel, operation and maintenance, research and development, procurement, 

and military construction. These general funds also include supplemental funds enacted by 

the American Recovery and Reinvestment Act (Recovery Act) of 2009. Details relating to 

Recovery Act appropriated funds are available on-line at http://www.defense.gov/recovery/.

Working capital funds (WCF) received funding to establish an initial corpus through an 

appropriation or a transfer of resources from existing appropriations or funds. The corpus 

finances operations and transactions that flow through the fund. The WCF resources the 

goods and services sold to customers on a reimbursable basis and maintains the corpus. 

Reimbursable receipts fund future operations and generally are available in their entirety for 

use without further congressional action. At various times, Congress provides additional 

appropriations to supplement the WCF as an infusion of cash when revenues are inadequate 

to cover costs within the corpus.

Trust funds contain receipts and expenditures of funds held in trust by the government for 

use in carrying out specific purposes or programs in accordance with the terms of the donor, 

trust agreement, or statute. Special fund accounts are used to record government receipts 

reserved for a specific purpose. Certain trust and special funds may be designated as 

earmarked funds. Earmarked funds are financed by specifically identified revenues, required 

by statute to be used for designated activities, benefits or purposes, and remain available 

over time. The Department is required to separately account for and report on the receipt, 

use and retention of revenues and other financing sources for earmarked funds.

Deposit funds are used to record amounts held temporarily until paid to the appropriate 

government or public entity. They are not Department funds, and as such, are not available 

for the Department’s operations. The Department is acting as an agent or custodian for 

funds awaiting distribution.

The Department is a party to allocation transfers with other Federal agencies as a 

transferring (parent) entity or receiving (child) entity. An allocation transfer is an entity’s 

legal delegation of authority to obligate budget authority and outlay funds on its behalf.

Generally, all financial activity related to allocation transfers (e.g., budget authority, 

obligations, outlays) is reported in the financial statements of the parent entity. Exceptions 

to this general rule apply to specific funds for which OMB has directed that all activity be 

reported in the financial statements of the child entity. These exceptions include 

U.S. Treasury-Managed Trust Funds, Executive Office of the President (EOP), and all other 

funds specifically designated by OMB.

The Department receives allocation transfers from the following agencies: Departments of 

Agriculture, Interior, Energy, and Transportation; the Appalachian Regional Commission; 

and the Federal Highway Administration.
Department of Defense Agency Financial Report for FY 2012

Financial Information

75

Additionally, the Department receives allocation transfers from certain funds meeting the 

OMB exception and all related activity is included in the Department’s financial statements.

The exceptions reported by the Department include South Dakota Terrestrial Wildlife Habitat 

Restoration, Inland Waterways and Harbor Maintenance. The Department receives allocation 

transfers for the Security Assistance programs that meet the OMB exceptions for EOP funds. 

These funds are reported separately from the DoD financial statements based on an 

agreement with OMB.

As a parent, the Department allocates funds to the Departments of Transportation and 

Agriculture, and reports all related activity in these financial statements.

1.D. Basis of Accounting 

The Department’s financial management systems are unable to meet all full accrual

accounting requirements. Many of the Department’s financial and nonfinancial feeder 

systems and processes were designed and implemented prior to the issuance of USGAAP. 

These systems were not designed to collect and record financial information on the full 

accrual accounting basis as required by USGAAP. Most of the Department’s financial and 

nonfinancial legacy systems were designed to record information on a budgetary basis.

The Department’s financial statements and supporting trial balances are compiled from the 

underlying financial data and trial balances of the Military Services and Defense Agencies 

and their sub-entities. The underlying data is largely derived from budgetary transactions 

(obligations, disbursements, and collections), from nonfinancial feeder systems, and 

accruals made for major items such as payroll expenses, accounts payable, and 

environmental liabilities. Some of the sub-entity level trial balances may reflect known 

abnormal balances resulting largely from business and system processes. At the 

consolidated level these abnormal balances may not be evident. Disclosures of abnormal 

balances are made in the applicable footnotes, but only to the extent that the abnormal 

balances are evident at the consolidated level. 

The Department is determining the actions required to bring financial and nonfinancial 

feeder systems and processes into compliance with USGAAP. One such action is the current 

revision of accounting systems to record transactions based on the U.S. Standard General 

Ledger (USSGL). Until all of the Department’s financial and nonfinancial feeder systems and 

processes are able to collect and report financial information as required by USGAAP, the 

Department’s financial data will be derived from budgetary transactions, data from 

nonfinancial feeder systems, and accruals.

1.E. Revenues and Other Financing Sources 

The Department receives congressional appropriations as financing sources for general 

funds that expire annually, on a multi-year basis, or do not expire. When authorized by 

legislation, these appropriations are supplemented by revenues generated by sales of goods 

or services. The Department recognizes revenue as a result of costs incurred for goods and 

services provided to other Federal agencies and the public. Full-cost pricing is the 

Department’s standard policy for services provided as required by OMB Circular No. A-25, 

User Charges. The Department recognizes revenue when earned within the constraints of its 

current system capabilities. In some instances, revenue is recognized when bills are issued. 
Department of Defense Agency Financial Report for FY 2012

Financial Information

76

Depot Maintenance and Ordnance WCF activities recognize revenue according to the 

percentage of completion method. Supply Management WCF activities recognize revenue 

from the sale of inventory items.

The Department does not include nonmonetary support provided by U.S. allies for common 

defense and mutual security in amounts reported in the Statement of Net Cost and Note 21, 

Reconciliation of Net Cost of Operations to Budget. The U.S. has cost sharing agreements 

with countries having a mutual or reciprocal defense agreement, where U.S. troops are 

stationed, or where the U.S. Fleet is in a port.

1.F. Recognition of Expenses

For financial reporting purposes, the Department’s policy requires the recognition of 

operating expenses in the period incurred. Current financial and nonfinancial feeder systems 

were not designed to collect and record financial information on the full accrual accounting 

basis. Estimates are made for major items such as payroll expenses, accounts payable, 

environmental liabilities, and unbilled revenue. In the case of Operating Materiel and 

Supplies (OM&S), operating expenses are generally recognized when the items are 

purchased. Efforts are underway to transition to the consumption method for recognizing 

OM&S expenses. Under the consumption method, OM&S would be expensed when 

consumed. Due to system limitations, in some instances expenditures for capital and other 

long-term assets may be recognized as operating expenses. The Department continues to 

implement process and system improvements to address these limitations.

1.G. Accounting for Intragovernmental Activities

Accounting standards require that an entity eliminate intraentity activity and balances from 

consolidated financial statements in order to prevent overstatement for business with itself. 

However, the Department cannot accurately identify intragovernmental transactions by 

customer because the Department’s systems do not track buyer and seller data at the 

transaction level. Generally, seller entities within the Department provide summary 

seller-side balances for revenue, accounts receivable, and unearned revenue to the 

buyer-side internal accounting offices. In most cases, the buyer-side records are adjusted to 

agree with the Department’s seller-side balances and are then eliminated. The Department 

is implementing replacement systems and a standard financial information structure, which 

will incorporate the necessary elements that will enable the Department to correctly report, 

reconcile, and eliminate intragovernmental balances.

The Treasury Financial Manual Part 2 – Chapter 4700, “Agency Reporting Requirements for 

the Financial Report of the United States Government”, provides guidance for reporting and 

reconciling intragovernmental balances. While the Department is unable to fully reconcile

intragovernmental transactions with all Federal agencies, the Department is able to 

reconcile balances pertaining to investments in Federal securities, borrowings from the 

U.S. Treasury and the Federal Financing Bank, Federal Employees’ Compensation Act

transactions with the Department of Labor, and benefit program transactions with the Office 

of Personnel Management. 

The Department’s proportionate share of public debt and related expenses of the Federal 

Government is not included. The Federal Government does not apportion debt and related 
Department of Defense Agency Financial Report for FY 2012

Financial Information

77

costs to Federal agencies. The Department’s financial statements do not report any public 

debt, interest, or source of public financing, whether from issuance of debt or tax revenues. 

Generally, financing for the construction of the Department’s facilities is obtained through 

appropriations. To the extent this financing ultimately may have been obtained through the 

issuance of public debt, interest costs have not been capitalized since the U.S. Treasury 

does not allocate such costs to the Department.

1.H. Transactions with Foreign Governments and International 

Organizations 

Each year, the Department sells defense articles and services to foreign governments and 

international organizations under the provisions of the Arms Export Control Act of 1976. 

Under the provisions of the Act, the Department has authority to sell defense articles and 

services to foreign countries and international organizations generally at no profit or loss to 

the Federal Government. Payment in U.S. dollars is required in advance.

1.I. Funds with the U.S. Treasury 

The Department’s monetary resources are maintained in U.S. Treasury accounts. The 

disbursing offices of Defense Finance and Accounting Service (DFAS), the Military 

Departments, the U.S. Army Corps of Engineers (USACE), and the Department of State’s 

financial service centers process the majority of the Department’s cash collections, 

disbursements, and adjustments worldwide. Each disbursing station prepares monthly 

reports to the U.S. Treasury on checks issued, electronic fund transfers, interagency 

transfers, and deposits.

In addition, DFAS sites and the USACE Finance Center submit reports to the U.S. Treasury 

by appropriation on interagency transfers, collections received, and disbursements issued. 

The U.S. Treasury records these transactions to the applicable Fund Balance with Treasury 

(FBWT) account. On a monthly basis, the Department's FBWT is adjusted to agree with the 

U.S. Treasury accounts.

1.J. Cash and Other Monetary Assets

Cash is the total of cash resources under the control of the Department which includes coin, 

paper currency, negotiable instruments, and amounts held for deposit in banks and other 

financial institutions. Foreign currency consists of the total U.S. dollar equivalent of both 

purchased and nonpurchased foreign currencies held in foreign currency fund accounts. 

Foreign currency is valued using the U.S. Treasury prevailing rate of exchange.

The majority of cash and all foreign currency is classified as “nonentity” and is restricted.

Amounts reported consist primarily of cash and foreign currency held by disbursing officers 

to carry out their paying, collecting, and foreign currency accommodation exchange 

missions.

The Department conducts a significant portion of operations overseas. Congress established 

a special account to handle the gains and losses from foreign currency transactions for five 

general fund appropriations: (1) operations and maintenance; (2) military personnel; 

(3) military construction; (4) family housing operation and maintenance; and (5) family 

housing construction. The gains and losses are calculated as the variance between the 
Department of Defense Agency Financial Report for FY 2012

Financial Information

78

exchange rate current at the date of payment and a budget rate established at the 

beginning of each fiscal year. Foreign currency fluctuations related to other appropriations 

require adjustments to the original obligation amount at the time of payment. The 

Department does not separately identify foreign currency fluctuation transactions.

1.K. Accounts Receivable

Accounts receivable from other Federal entities or the public include: accounts receivable, 

claims receivable, and refunds receivable. Allowances for uncollectible accounts due from 

the public are based upon an analysis of collection experience. The Department does not 

recognize an allowance for estimated uncollectible amounts from other Federal agencies. 

Claims against other Federal agencies are to be resolved between the agencies in 

accordance with dispute resolution procedures defined in the Intragovernmental Business 

Rules published in the Treasury Financial Manual.

1.L. Direct Loans and Loan Guarantees

The Department operates a direct loan and loan guarantee program authorized by the 

National Defense Authorization Act for FY 1996 (Public Law (PL) 104-106, Section 2801). 

The Act includes a series of authorities that allow the Department to work with the private 

sector to renovate military housing. The Department’s goals are to obtain private capital to 

leverage government dollars, make efficient use of limited resources, and use a variety of 

private sector approaches to build and renovate military housing faster and at a lower cost 

to the American taxpayers.

The Act also provides the Department with a variety of authorities to obtain private sector 

financing and expertise to improve military housing. The Department uses these authorities 

individually or in combination. They include guarantees (both loan and rental), 

conveyance/leasing of existing property and facilities, differential lease payments, 

investments (both limited partnerships and stock/bond ownership), and direct loans. 

National Defense Authorization Act for FY 2005 (PL 108-375, Section 2805) provided 

permanent authorities to the Military Housing Privatization Initiative (MHPI).

The Department operates the Armament Retooling and Manufacturing Support Initiative 

under Title 10 United States Code 4551-4555. This loan guarantee program is designed to 

encourage commercial use of inactive government facilities. The revenue generated from 

property rental offsets the cost of maintaining these facilities.

The Department administers the Foreign Military Financing program on behalf of the EOP. 

This program is authorized by sections 23 and 24 of the Arms Export Control Act of 1976, as 

amended, PL 90-629, as amended, and section 503(a). This program provides loans to help 

countries purchase U.S. produced weapons, defense equipment, services, or military 

training. The direct loans and loan guarantees related to Foreign Military Sales are not 

included in these financial statements, per the Department’s agreement with OMB; this 

information is provided separately as other accompanying information.

The Federal Credit Reform Act of 1990 governs all amended direct loan obligations and loan 

guarantee commitments made after FY 1991.
Department of Defense Agency Financial Report for FY 2012

Financial Information

79

1.M. Inventories and Related Property

The Department values approximately 84 percent of resale inventory using the moving 

average cost method. An additional 12 percent (fuel inventory) is reported using the 

first-in-first-out method. The Department reports the remaining 4 percent of resale 

inventories at an approximation of historical cost using latest acquisition cost adjusted for 

holding gains and losses. The latest acquisition cost method is used because legacy 

inventory systems were designed for materiel management rather than accounting. 

Although these systems provide visibility and accountability over inventory items, they do 

not maintain historical cost data necessary to comply with Statement of Federal Financial 

Accounting Standards (SFFAS) No. 3, Accounting for Inventory and Related Property. 

Additionally, these systems cannot produce financial transactions using the USSGL, as 

required by the Federal Financial Management Improvement Act of 1996 (PL 104-208). The 

Department is continuing to transition the balance of the inventories to the moving average 

cost method through the use of new inventory systems. Most transitioned balances, 

however, were not baselined to auditable historical cost and remain noncompliant with 

SFFAS No. 3.

The Department manages only military or government-specific materiel under normal 

conditions. Materiel is a unique term that relates to military force management, and 

includes items such as ships, tanks, self-propelled weapons, aircraft, etc., and related 

spares, repair parts, and support equipment. Items commonly used in and available from 

the commercial sector are not managed in the Department’s materiel management 

activities. Operational cycles are irregular, and the military risks associated with stock-out 

positions have no commercial parallel. The Department holds materiel based on military 

need and support for contingencies. The Department is currently developing a methodology 

to be used to account for “inventory held for sale” and “inventory held in reserve for future 

sale.”

Related property includes OM&S and stockpile materiel. The OM&S, including munitions not 

held for sale, are valued at standard purchase price. The Department uses both the 

consumption method and the purchase method of accounting for OM&S. Items that are 

centrally managed and stored, such as ammunition and engines, are generally recorded 

using the consumption method and are reported on the Balance Sheet as OM&S. When 

current systems cannot fully support the consumption method, the Department uses the 

purchase method. Under this method, materiel and supplies are expensed when purchased. 

During FY 2012 and FY 2011, the Department expensed significant amounts using the 

purchase method because the systems could not support the consumption method or 

management deemed that the item was in the hands of the end user. This is a material 

weakness for the Department and long-term system corrections are in process. Once the 

proper systems are in place, these items will be accounted for under the consumption 

method of accounting.

The Department determined that the recurring high dollar-value of OM&S in need of repair 

is material to the financial statements and requires a separate reporting category. Many 

high-dollar items, such as aircraft engines, are categorized as OM&S rather than military 

equipment.
Department of Defense Agency Financial Report for FY 2012

Financial Information

80

The Department recognizes excess, obsolete, and unserviceable inventory and OM&S at a 

net realizable value of $0 pending development of an effective means of valuing such 

materiel.

Inventory available and purchased for resale includes consumable spare and repair parts, 

and repairable items owned and managed by the Department. This inventory is retained to 

support military or national contingencies. Inventory held for repair is damaged inventory 

that requires repair to make it suitable for sale. Often, it is more economical to repair these 

items rather than to procure them. The Department often relies on weapon systems and 

machinery no longer in production. As a result, the Department supports a process that 

encourages the repair and rebuilding of certain items. This repair cycle is essential to 

maintaining a ready, mobile, and armed military force. Work in process balances include: 

(1) costs related to the production or servicing of items, including direct material, labor, and 

applied overhead; (2) the value of finished products or completed services that are yet to 

be placed in service; and (3) munitions in production and depot maintenance work with 

associated costs incurred in the delivery of maintenance services.

1.N. Investments in U.S. Treasury Securities

The Department reports investments in U.S. Treasury securities at cost, net of amortized 

premiums or discounts. Premiums or discounts are amortized over the term of the 

investments using the effective interest rate method or another method that yields similar 

results. The Department’s intent is to hold investments to maturity unless they are needed 

to finance claims or otherwise sustain operations. Consequently, a provision is not made for 

unrealized gains or losses on these securities.

The Department invests in nonmarketable market-based U.S. Treasury securities, which are 

issued to Federal agencies by the U.S. Treasury’s Bureau of the Public Debt. They are not 

traded on any securities exchange but mirror the prices of particular U.S. Treasury 

securities traded in the government securities market.

The Department’s net investments are held by various trust and special funds. These funds 

include the Military Retirement Fund; Medicare-Eligible Retiree Health Care Fund; Other 

Defense Organizations General Fund trust and special funds; donations (gift funds); and the 

U.S. Treasury managed trust funds reported by USACE including the South Dakota 

Terrestrial Habitat Restoration, Inland Waterways, and Harbor Maintenance Trust Funds.

Other investments represent joint ventures with private developers constructing or 

improving military housing on behalf of the Department under the authority of MHPI, 

authorized by PL 104-106, Section 2801. These investments do not require market value 

disclosure. The Department’s potential losses on these ventures are limited to the amounts 

invested.

1.O. General Property, Plant and Equipment

The Department uses the estimated historical cost for valuing military equipment. The 

Department identified the universe of military equipment by accumulating information 

relating to program funding and associated military equipment, equipment useful life, 

program acquisitions, and disposals to establish a baseline. The military equipment baseline 

is updated using expenditure, acquisition, and disposal information.
Department of Defense Agency Financial Report for FY 2012

Financial Information

81

The Department’s General Property, Plant, and Equipment (PP&E) capitalization threshold is

$100 thousand except for real property, which is $20 thousand. The Department has not 

fully implemented the threshold for real property; therefore, the Department is primarily 

using the capitalization threshold of $100 thousand for General PP&E, and most real 

property.

With the exception of USACE Civil Works and WCF, General PP&E assets are capitalized at 

historical acquisition cost when an asset has a useful life of two or more years and when the 

acquisition cost equals or exceeds the Department’s capitalization threshold. The 

Department also requires the capitalization of improvements to existing General PP&E 

assets if the improvements equal or exceed the capitalization threshold and extend the 

useful life or increase the size, efficiency, or capacity of the asset. The Department 

depreciates all General PP&E, other than land, on a straight-line basis.

The WCF capitalize all PP&E used in the performance of their mission. These assets are 

capitalized as General PP&E, whether or not they meet the definition of any other PP&E 

category.

The USACE Civil Works General PP&E is capitalized at acquisition cost plus capitalized 

improvements when an asset has a useful life of two or more years and the acquisition cost 

exceeds $25 thousand. The exception is buildings and structures related to hydropower 

projects, which are capitalized regardless of cost.

When it is in the best interest of the government, the Department provides government 

property to contractors to complete contract work. The Department either owns or leases 

such property, or it is purchased directly by the contractor for the government based on 

contract terms. When the value of contractor-procured General PP&E meets or exceeds the 

Department’s capitalization threshold, Federal accounting standards require that it be 

reported on the Department’s Balance Sheet.

The Department developed policy and a reporting process for contractors with government 

furnished equipment that provides appropriate General PP&E information for financial 

statement reporting. The Department requires that entities maintain, in their property 

systems, information on all property furnished to contractors. These actions are structured 

to capture and report the information necessary for compliance with Federal accounting 

standards. The Department has not fully implemented this policy primarily due to system 

limitations.

1.P. Advances and Prepayments

When advances are permitted by law, legislative action, or presidential authorization, the 

Department’s policy is to record advances or prepayments in accordance with USGAAP. As 

such, payments made in advance of the receipt of goods and services should be reported as 

an asset on the Balance Sheet. The Department’s policy is to expense and/or properly 

classify assets when the related goods and services are received. The Department has not 

fully implemented this policy primarily due to system limitations.
Department of Defense Agency Financial Report for FY 2012

Financial Information

82

1.Q. Leases

Lease payments for the rental of equipment and operating facilities are classified as either 

capital or operating leases. When a lease is essentially equivalent to an installment 

purchase of property (a capital lease), and the value equals or exceeds the current 

capitalization threshold, the Department records the applicable asset as though purchased, 

with an offsetting liability, and depreciates it. The Department records the asset and liability 

at the lesser of the present value of the rental and other lease payments during the lease 

term (excluding portions representing executory costs paid to the lessor) or the asset’s fair 

market value. The discount rate for the present value calculation is either the lessor’s 

implicit interest rate or the government’s incremental borrowing rate at the inception of the 

lease. The Department, as the lessee, receives the use and possession of leased property, 

for example real estate or equipment, from a lessor in exchange for a payment of funds. An 

operating lease does not substantially transfer all the benefits and risks of ownership. 

Payments for operating leases are expensed over the lease term as they become payable.

Office space and leases entered into by the Department are the largest component of 

operating leases and are based on costs gathered from existing leases, General Services 

Administration bills, and interservice support agreements. Future year projections use the 

Consumer Price Index.

1.R. Other Assets

Other assets include those assets, such as military and civil service employee pay advances, 

travel advances, and certain contract financing payments that are not reported elsewhere 

on the Department’s Balance Sheet.

The Department conducts business with commercial contractors under two primary types of

contracts: fixed price and cost reimbursable. To alleviate the potential financial burden on 

the contractor that long-term contracts can cause, the Department may provide financing 

payments. Contract financing payments are defined in the Federal Acquisition Regulation, 

Part 32, as authorized disbursements to a contractor prior to acceptance of supplies or 

services by the Government. Contract financing payment clauses are incorporated in the 

contract terms and conditions and may include advance payments, performance-based 

payments, commercial advances and interim payments, progress payments based on cost, 

and interim payments under certain cost reimbursement contracts. It is the Department’s 

policy to record certain contract financing payments as other assets. The Department has 

not fully implemented this policy primarily due to system limitations.

Contract financing payments do not include invoice payments, payments for partial 

deliveries, lease and rental payments, or progress payments based on a percentage or 

stage of completion. The Defense Federal Acquisition Regulation Supplement authorizes 

progress payments based on a percentage or stage of completion only for construction of 

real property, shipbuilding and ship conversion, alteration, or repair. Progress payments 

based on percentage or stage of completion are reported as Construction in Progress.
Department of Defense Agency Financial Report for FY 2012

Financial Information

83

1.S. Contingencies and Other Liabilities

The SFFAS No. 5, “Accounting for Liabilities of the Federal Government”, as amended by 

SFFAS No. 12, “Recognition of Contingent Liabilities Arising from Litigation”, defines a 

contingency as an existing condition, situation, or set of circumstances that involves an 

uncertainty as to possible gain or loss. The uncertainty will be resolved when one or more 

future events occur or fail to occur. The Department recognizes contingent liabilities when 

past events or exchange transactions occur, a future loss is probable, and the loss amount 

can be reasonably estimated.

Financial statement reporting is limited to disclosure when conditions for liability recognition 

do not exist, but there is at least a reasonable possibility of incurring a loss or additional 

losses. The Department’s risk of loss and resultant contingent liabilities arise from pending 

or threatened litigation or claims and assessments due to events such as aircraft, ship and 

vehicle accidents; medical malpractice; property or environmental damages; and contract 

disputes.

Other liabilities also arise as a result of anticipated disposal costs for the Department’s 

assets. Consistent with SFFAS No. 6, “Accounting for Property, Plant, and Equipment”, 

recognition of an anticipated environmental disposal liability begins when the asset is placed 

into service. Based on the Department’s policy, which is consistent with SFFAS No. 5, 

“Accounting for Liabilities of the Federal Government”, nonenvironmental disposal liabilities 

are recognized when management decides to dispose of an asset. The Department 

recognizes nonenvironmental disposal liabilities for military equipment nuclear-powered 

assets when placed into service. These amounts are not easily distinguishable and are 

developed in conjunction with environmental disposal costs.

1.T. Accrued Leave 

The Department reports liabilities for military leave and accrued compensatory and annual 

leave for civilians. Sick leave for civilians is expensed when taken. The liabilities are based 

on current pay rates.

1.U. Net Position 

Net position consists of unexpended appropriations and cumulative results of operations.

Unexpended appropriations represent the amounts of budget authority that are unobligated 

and have not been rescinded or withdrawn. Unexpended appropriations also represent 

amounts obligated for which legal liabilities for payments have not been incurred.

Cumulative results of operations represent the net difference between expenses and losses, 

and financing sources (including appropriations, revenue, and gains), since inception. The 

cumulative results of operations also include donations and transfers in and out of assets 

that were not reimbursed.

1.V. Treaties for Use of Foreign Bases 

The Department has the use of land, buildings, and other overseas facilities that are 

obtained through various international treaties and agreements negotiated by the 

Department of State. The Department purchases capital assets overseas with appropriated 
Department of Defense Agency Financial Report for FY 2012

Financial Information

84

funds; however, the host country retains title to the land and capital improvements. Treaty 

terms generally allow the Department continued use of these properties until the treaties 

expire. In the event treaties or other agreements are terminated, use of the foreign bases is 

prohibited and losses are recorded for the value of any nonretrievable capital assets. The 

settlement due to the U.S. or host nation is negotiated and takes into account the value of 

capital investments and may be offset by the cost of environmental cleanup.

1.W. Undistributed Disbursements and Collections 

Undistributed disbursements and collections represent the difference between 

disbursements and collections matched at the transaction level to specific obligations, 

payables, or receivables in the source systems and those reported by the U.S. Treasury.

Supported disbursements and collections may be evidenced by corroborating documentation

that would generally support the summary level adjustments made to accounts payable and 

receivable. Unsupported disbursements and collections do not have supporting 

documentation for the transaction and most likely would not meet audit scrutiny. However, 

both supported and unsupported adjustments may have been made to the Department’s 

Accounts Payable and Receivable trial balances prior to validating underlying transactions 

required to establish the Accounts Payable/Receivable were previously made. As a result, 

misstatements of reported Accounts Payable and Receivable are likely present in the 

Department’s financial statements.

Due to noted material weaknesses in current accounting and financial feeder systems, the 

Department is generally unable to determine whether undistributed disbursements and 

collections should be applied to Federal or non-Federal accounts payable/receivable at the 

time accounting reports are prepared. Accordingly, the Department’s policy is to allocate 

supported undistributed disbursements and collections between Federal and non-Federal 

categories based on the percentage of distributed Federal and non-Federal accounts payable 

and accounts receivable. Both supported and unsupported undistributed disbursements and 

collections are then applied to reduce accounts payable and receivable accordingly.

1.X. Fiduciary Activities

Fiduciary cash and other assets are not assets of the Department and are not recognized on 

the Balance Sheet. Fiduciary activities are reported on the financial statement note 

schedules.

1.Y. Military Retirement and Other Federal Employment Benefits

The Department applies SFFAS No. 33, “Pensions, Other Retirement Benefits, and Other 

Postemployment Benefits: Reporting the Gains and Losses from Changes in Assumptions 

and Selecting Discount Rates and Valuation Dates”, in selecting the discount rate and 

valuation date used in estimating actuarial liabilities. In addition, gains and losses from 

changes in long-term assumptions used to estimate the actuarial liability are presented 

separately on the Statement of Net Cost. Refer to Note 17, Military Retirement and Other 

Federal Employment Benefits and Note 18, General Disclosures Related to the Statement of 

Net Cost, for additional information.
Department of Defense Agency Financial Report for FY 2012

Financial Information

85

1.Z. Significant Events

None.

NOTE 2. NONENTITY ASSETS

Nonentity Assets Dollars in Millions

As of September 30

2012 Restated

2011

Intragovernmental Assets

Fund Balance with Treasury $ 788.8 $ 988.6

Total Intragovernmental Assets $ 788.8 $ 988.6

Non-Federal Assets

Cash and Other Monetary Assets $ 1,709.1 $ 1,643.2

Accounts Receivable 7,172.8 6,490.7

Other Assets 179.1 184.8

Total Non-Federal Assets $ 9,061.0 $ 8,318.7

Total Nonentity Assets $ 8,849.8 $ 9,307.3

Total Entity Assets $ 2,075,876.9 $ 2,022,239.7

Total Assets $ 2,085,726.7 $ 2,031,547.0

Nonentity assets are assets for which the Department maintains stewardship accountability 

and reporting responsibility but are not available for the Department’s normal operations.

Restatements

The Department corrected a $1.0 billion understatement of General Property, Plant and 

Equipment, and a $0.9 billion overstatement of Other Assets to align the accounting records 

to the property accountability system. These corrections result in a $0.1 billion increase in 

Total Entity Assets. Refer to Note 26, Restatements, for further information.

Other Disclosures

Intra-governmental Fund Balance with Treasury (FBWT) primarily consists of deposit funds 

and receipt accounts. Deposit funds are used to record amounts held temporarily until paid 

to the appropriate party. Receipt accounts are used for amounts collected on behalf of the 

U.S. Treasury General Fund.

Intra-governmental Accounts Receivable consist of amounts associated with canceled year 

appropriations. Generally, the Department cannot use the collections related to cancelled 

appropriation and must return them to the U.S. Treasury.

Non-Federal Cash and Other Monetary Assets primarily consist of cash held by Disbursing 

Officers to carry out payment, collection, and foreign currency accommodation exchange 

missions. 

Non-Federal Accounts Receivable consist of amounts associated with canceled year 

appropriations, and interest, fines and penalties due on debt. Generally, the Department 

cannot use collections and must distribute them to the U.S. Treasury. 
Department of Defense Agency Financial Report for FY 2012

Financial Information

86

Non-Federal Other Assets consist of Advance Payment Pool Agreements (APPAs) for 

research and development projects. AAPAs are utilized when multiple contracts with a 

nonprofit educational institution require advance payments.

NOTE 3. FUND BALANCE WITH TREASURY

Fund Balance with Treasury Dollars in Millions

As of September 30 2012 2011

Fund Balance

Appropriated Funds $ 500,572.1 $ 509,337.0

Revolving Funds 8,037.2 9,887.2

Trust Funds 2,132.9 2,494.4

Special Funds 548.2 697.7

Other Fund Types 831.2 1,025.3

Total Fund Balance $ 512,121.6 $ 523,441.6

Fund Balance Per Treasury Versus Agency

Fund Balance per Treasury $ 521,342.1 $ 530,849.7

Fund Balance per Agency 512,121.6 523,441.6

Reconciling Amount $ 9,220.5 $ 7,408.1

Other Fund Types primarily consists of deposit funds and receipt accounts.

The Department shows a reconciling net difference of $9.2 billion with U.S. Treasury. This 

includes canceling year authority of $8.5 billion, unavailable receipts of $586.6 million, 

allocation transfers of $103.3 million, and fiduciary activities of $36.9 million.

Status of Fund Balance with Treasury Dollars in Millions

As of September 30 2012 2011

Unobligated Balances

Available $ 119,674.0 $ 141,171.4

Unavailable 582,311.3 583,913.4

Obligated Balance not yet Disbursed 469,112.0 455,495.4

Non-Budgetary FBWT 723.3 1,966.0

Non-FBWT Budgetary Accounts (659,699.0) (659,104.6)

Total Fund Balance $ 512,121.6 $ 523,441.6

The Status of Fund Balance with Treasury (FBWT) reflects the budgetary resources to 

support FBWT and is a reconciliation between budgetary and proprietary accounts. It 

primarily consists of unobligated and obligated balances. The balances reflect the budgetary 

authority remaining for disbursements against current or future obligations.

Unobligated Balance is classified as available or unavailable and represents the cumulative 

amount of budgetary authority that has not been set aside to cover outstanding obligations. 

The unavailable balance consists primarily of funds invested in U.S. Treasury securities that 

are temporarily precluded from obligation by law. Certain unobligated balances are 

restricted for future use and are not apportioned for current use. Unobligated balances for 

trust fund accounts are restricted for use by the public laws that established the funds.
Department of Defense Agency Financial Report for FY 2012

Financial Information

87

Obligated Balance not yet Disbursed represents funds that have been obligated for goods 

and services not received, and those received but not paid.

Non-Budgetary FBWT includes accounts that do not have budgetary authority, such as 

deposit funds, unavailable receipt accounts, clearing accounts, and nonentity FBWT.

Non-FBWT Budgetary Accounts reduce the Status of FBWT and consist of investments in 

U.S. Treasury securities, unfilled customer orders without advance, contract and borrowing 

authority accounts, and receivables.

NOTE 4. INVESTMENTS AND RELATED INTEREST

Investments and Related Interest Dollars in Millions

2012

As of September 30

Cost Amortization 

Method

Amortized 

(Premium)/ 

Discount

Investments, 

Net

Market 

Value 

Disclosure

Intragovernmental Securities

Nonmarketable, Market-Based

Military Retirement Fund $ 435,206.4 See Below $ (11,012.4) $ 424,194.0 $ 536,544.6

Medicare-Eligible Retiree Health 

Care Fund

 207,793.6 See Below (6,433.4) 201,360.2 262,831.3

US Army Corps of Engineers 7,264.6 See Below (57.7) 7,206.9 7,416.2

Other Funds 3,278.3 See Below (79.8) 3,198.5 3,461.3

Total Nonmarketable, Market-Based 653,542.9 (17,583.3) 635,959.6 810,253.4

Accrued Interest 5,706.9 5,706.9 5,706.9

Total Intragovernmental Securities $ 659,249.8 $ (17,583.3) $ 641,666.5 $ 815,960.3

Other Investments

Total Other Investments $ 3,255.0 See Below $ 0.0 $ 3,255.0 N/A

Amortization Method Used: Effective Interest

Investments and Related Interest Dollars in Millions

2011

As of September 30

Cost Amortization 

Method

Amortized 

(Premium)/ 

Discount

Investments, 

Net

Market 

Value 

Disclosure

Intragovernmental Securities

Nonmarketable, Market-Based

Military Retirement Fund $ 376,420.2 See Below $ (8,209.2) $ 368,211.0 432,741.4

Medicare-Eligible Retiree Health 

Care Fund

 191,058.7 See Below (5,136.4) 185,922.3 221,620.5

US Army Corps of Engineers 6,495.4 See Below (37.3) 6,457.8 6,171.8

Other Funds 3,448.3 See Below (57.9) 3,390.4 3,611.4

Total Nonmarketable, Market-Based 577,422.3 (13,440.8) 563,981.5 664,145.1

Accrued Interest 5,360.7 5,360.7 5,360.7

Total Intragovernmental Securities $ 582,783.0 $ (13,440.8) $ 569,342.2 $ 669,505.8

Other Investments

Total Other Investments $ 3,185.0 See Below $ 0.0 $ 3,185.0 N/A

Amortization Method Used: Effective Interest
Department of Defense Agency Financial Report for FY 2012

Financial Information

88

The Department invests primarily in non-marketable, market-based securities. The value of 

these securities fluctuates in tandem with the selling price of the equivalent marketable 

security. The securities are purchased with the intent to hold until maturity, thus balances 

are not adjusted to market value.

The U.S. Treasury securities are issued to the earmarked funds as evidence of its receipts 

and are an asset to the Department and a liability to the U.S. Treasury. The Federal 

Government does not set aside assets to pay future benefits or other expenditures 

associated with earmarked funds. The cash generated from earmarked funds is deposited in 

the U.S. Treasury and used for general government purposes. Since the Department and 

the U.S. Treasury are both part 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.

The U.S. Treasury securities provide the Department with authority to draw upon the 

U.S. Treasury to make future benefit payments or other expenditures. When the 

Department requires redemption of these securities to make expenditures, the Government 

will finance them from accumulated cash balances, by raising taxes or other receipts, 

borrowing from the public or repaying less debt, or curtailing other expenditures. The 

Federal Government uses the same method to finance all other expenditures.

Other Funds primarily consists of $2.0 billion in investments of the DoD Education Benefits 

Trust Fund, $817.9 million in investments of the Host Nation Support for U.S. Relocation 

Activities Trust Fund, and $316.7 million in investments of the Voluntary Separation 

Incentive Trust Fund.

Other Investments consist of Military Housing Privatization Initiative limited partnerships. 

The limited partnerships support military housing at Army, Air Force, Navy and Marine 

Corps installations. This investment relates to limited partnerships that do not require 

Market Value Disclosure.

NOTE 5. ACCOUNTS RECEIVABLE

Accounts Receivable Dollars in Millions

2012

As of September 30

Gross Amount Due

Allowance for 

Estimated 

Uncollectibles

Accounts 

Receivable, Net

Intragovernmental Receivables $ 1,439.6 N/A $ 1,439.6

Non-Federal Receivables 

(From the Public) 12,420.5 (898.1) 11,522.4

Total Accounts Receivable $ 13,860.1 $ (898.1) $ 12,962.0
Department of Defense Agency Financial Report for FY 2012

Financial Information

89

Accounts Receivable Dollars in Millions

2011

As of September 30

Gross Amount Due

Allowance for 

Estimated 

Uncollectibles

Accounts 

Receivable, Net

Intragovernmental Receivables $ 1,726.9 N/A $ 1,726.9

Non-Federal Receivables 

(From the Public) 10,644.6 (683.2) 9,961.4

Total Accounts Receivable $ 12,371.5 $ (683.2) $ 11,688.3

Accounts receivable represent the Department's claim for payment from other entities. The 

Department only recognizes an allowance for uncollectible amounts from the public. Claims 

with other Federal agencies are resolved in accordance with the Intragovernmental Business 

Rules.

NOTE 6. OTHER ASSETS

Other Assets Dollars in Millions

As of September 30

2012 Restated

2011

Intragovernmental Other Assets

Advances and Prepayments $ 1,447.3 $ 1,634.2

Other Assets 135.9 126.1

Total Intragovernmental Other Assets $ 1,583.2 $ 1,760.3

Non-Federal Other Assets

Outstanding Contract Financing Payments $ 65,342.9 $ 66,713.5

Advances and Prepayments 1,063.6 801.3

Other Assets (With the Public) 194.7 199.6

Total Non-Federal Other Assets $ 66,601.2 $ 67,714.4

Total Other Assets $ 68,184.4 $ 69,474.7

Restatements

The Department corrected a $955.1 million prior-year overstatement of Other Assets (With 

the Public). Refer to Note 26, Restatements, for further information.

Other Disclosures

Intragovernmental Other Assets represents the Department’s right to approximately 

6.4 million barrels of crude oil held by the Department of Energy. 

Other Assets (With the Public) consist of Advance Payment Pool Agreements (APPAs) for 

research and development projects. AAPAs are utilized when multiple contracts with a 

nonprofit educational institution require advance payments.

Contract terms and conditions for certain types of contract financing payments convey 

rights to the Government that protect the contract work from state or local taxation, liens or 

attachment by contractor’s creditors, transfer of property, or disposition in bankruptcy. 

However, these rights should not be misconstrued to mean that ownership of contractor’s 

work has transferred to the Federal Government. The Federal Government does not have 
Department of Defense Agency Financial Report for FY 2012

Financial Information

90

the right to take the work, except as provided for in contract clauses related to termination 

or acceptance. The Department is not obligated to make payment to contractors until 

delivery and acceptance. 

Outstanding Contract Financing Payments includes $61.9 billion in contract financing 

payments and an additional $3.4 billion in estimated future payments to contractors upon 

delivery and government acceptance of satisfactory product. Refer to Note 15, Other 

Liabilities, for further information.

NOTE 7. CASH AND OTHER MONETARY ASSETS

Cash and Other Monetary Assets Dollars in Millions

As of September 30 2012 2011

Cash $ 443.9 $ 472.9

Foreign Currency 1,378.1 1,247.4

Total Cash, Foreign Currency, and Other Monetary Assets $ 1,822.0 $ 1,720.3

Cash (except for $112.9 million in undeposited collections and imprest funds) and Foreign 

Currency represent nonentity assets and are restricted and unavailable to fund the 

Department’s mission.

NOTE 8. DIRECT LOAN AND LOAN GUARANTEES

Direct Loan and Loan Guarantee Programs 

The Department operates the following direct loan and/or loan guarantee programs:

• Military Housing Privatization Initiative (MHPI) 

• Armament Retooling and Manufacturing Support Initiative (ARMS)

The Federal Credit Reform Act of 1990 governs all new and amended direct loan obligations 

and loan guarantee commitments made after FY 1991.

Direct loans are reported at the net present value of the following projected cash flows:

• Loan disbursements

• Repayments of principal

• Payments of interest and other payments over the life of the loan after adjusting for 

estimated defaults, prepayments, fees, penalties, and recoveries

Loan guarantee liabilities are reported at the net present value. The cost of the loan 

guarantee is the net present value of the following estimated projected cash flows:

• Payments by the Department to cover defaults and delinquencies, interest subsidies, or 

other payments; offset by payments to the Department including origination and other 

fees, penalties, and recoveries.

Military Housing Privatization Initiative

The MHPI includes both direct loan and loan guarantee programs. The programs are 

authorized by the National Defense Authorization Act for FY 1996 (PL 104-106, 
Department of Defense Agency Financial Report for FY 2012

Financial Information

91

Section 2801) and includes a series of authorities that allow the Department to work with 

the private sector to renovate and build military family housing. The MHPI accelerates the 

construction of new housing built to market standards, and leverages private sector capital. 

One of the goals of the Department is to obtain private sector capital to leverage 

government dollars. The Department provides protection to the private sector partner 

against specific risks, such as base closure or member deployment.

Armament Retooling and Manufacturing Support Initiative

The ARMS Initiative, Title 10 United States Code 4551-4555, is a loan guarantee program 

designed to encourage commercial use of the Army’s inactive ammunition plants through 

incentives for businesses willing to locate to a government ammunition production facility. 

The production capacity of these facilities is greater than current military requirements; 

however, this capacity may be needed by the military in the future. Revenues from property 

rentals are used to help offset the overhead costs for the operation, maintenance and 

environmental cleanup at the facilities. 

In an effort to preclude any additional loan liability, the Army instituted an ARMS loan 

guarantee moratorium in FY 2004. The Army continues to operate under the moratorium 

and does not anticipate new loans.

Summary of Direct Loans and Loan Guarantees Dollars in Millions

2012 2011

Loans Receivable

Direct Loans:

Military Housing Privatization Initiative 957.5 814.4

Total Direct Loans $ 957.5 $ 814.4

Defaulted Loan Guarantees:

Military Housing Privatization Initiative 0.0 0.0

Armament Retooling & Manufacturing Support Initiative 0.0 0.0

Total Default Loan Guarantees

Total Loans Receivable $ 957.5 $ 814.4

Loan Guarantee Liability

Military Housing Privatization Initiative 11.7 13.7

Armament Retooling & Manufacturing Support Initiative 1.0 0.2

Total Loan Guarantee Liability $ 12.7 $ 13.9

Direct Loans Obligated Dollars in Millions

2012 2011

Direct Loans Obligated After FY 1991

(Present Value Method):

Military Housing Privatization Initiative

Loans Receivable Gross $ 1,119.6 $ 953.8

Interest Receivable 0.0 0.0

Foreclosed Property 0.0 0.0

Allowance for Subsidy Cost (Present Value) (162.1) (139.4)

Value of Assets Related to Direct Loans 957.5 814.4

Total Direct Loans Receivable $ 957.5 $ 814.4
Department of Defense Agency Financial Report for FY 2012

Financial Information

92

Loans receivable, net, or value of assets related to loans, is not the same as the proceeds the 

Department would expect to receive from selling the loans. 

Interest receivable is calculated using the interest earned method.

Total Amount of Direct Loans Disbursed Dollars in Millions

2012 2011

Direct Loan Programs

Military Housing Privatization Initiative $ 261.1 $ 304.8

Total $ 261.1 $ 304.8

Subsidy Expense for Direct Loan by Program Dollars in Millions

2012 Interest 

Differential Defaults Fees Other Total

New Direct Loans Disbursed

Military Housing Privatization Initiative $ 21.3 $ 22.2 $ 0.0 $ 0.0 $ 43.5

Total $ 21.3 $ 22.2 $ 0.0 $ 0.0 $ 43.5

2011 Interest 

Differential Defaults Fees Other Total

New Direct Loans Disbursed

Military Housing Privatization Initiative $ 30.3 $ 27.3 $ 0.0 $ 0.0 $ 57.6

Total $ 30.3 $ 27.3 $ 0.0 $ 0.0 $ 57.6

2012 Modifications

Interest Rate 

Reestimates

Technical 

Reestimates

Total 

Reestimates Total

Direct Loan Modifications and Reestimates

Military Housing Privatization Initiative $ 0.0 $ (9.6) $ (4.1) $ (13.7) $ (13.7)

Total $ 0.0 $ (9.6) $ (4.1) $ (13.7) $ (13.7)

2011 Modifications

Interest Rate 

Reestimates

Technical 

Reestimates

Total 

Reestimates Total

Direct Loan Modifications and Reestimates

Military Housing Privatization Initiative $ 0.0 $ (5.5) $ (30.8) $ (36.3) $ (36.3)

Total $ 0.0 $ (5.5) $ (30.8) $ (36.3) $ (36.3)

2012 2011

Total Direct Loan Subsidy Expense:

Military Housing Privatization Initiative $ 29.8 $ 21.3

Total $ 29.8 $ 21.3

Subsidy Expense for Direct Loan by Program Dollars in Millions

As of September 30

Interest 

Differential Defaults Fees Other Total

Budget Subsidy Rates for Direct Loans

Military Housing Privatization Initiative -7.26% 10.35% 0.00% 0.00% 3.09%

Subsidy rates pertain to the loan agreements contracted during the current fiscal year. 

These rates cannot be applied to the direct loans disbursed during the current reporting 

year to yield the subsidy expense. The subsidy expense for new loans disbursed in the 

current year results from disbursements of loans from current and prior year loan 

agreements. The subsidy expense reported in the current year also includes reestimates.
Department of Defense Agency Financial Report for FY 2012

Financial Information

93

Schedule for Reconciling Subsidy Cost Allowance Balances

for Post FY 1991 Direct Loans Dollars in Millions

2012 2011

Beginning Balance, Changes, and Ending Balance:

Beginning Balance of the Subsidy Cost Allowance $ 139.4 $ 129.2

Add: Subsidy Expense for Direct Loans Disbursed during the Reporting Years by Component

Interest Rate Differential Costs 21.3 30.3

Default Costs (Net of Recoveries) 22.2 27.3

Fees and Other Collections 0.0 0.0

Other Subsidy Costs 0.0 0.0

Total of the above Subsidy Expense Components 43.5 $ 57.6

Adjustments

Loan Modifications $ 0.0 $ 0.0

Fees Received 0.0 0.0

Foreclosed Property Acquired 0.0 0.0

Loans Written Off 0.0 0.0

Subsidy Allowance Amortization (7.1) (11.1)

Other 0.0 0.0

Total of the above Adjustment Components $ (7.1) $ (11.1)

Ending Balance of the Subsidy Cost Allowance before Reestimates $ 175.8 $ 175.7

Add or Subtract Subsidy Reestimates by Component

Interest Rate Reestimates $ (9.6) $ (5.5)

Technical/Default Reestimate (4.1) (30.8)

Total of the above Reestimate Components (13.7) (36.3)

Ending Balance of the Subsidy Cost Allowance $ 162.1 $ 139.4

Defaulted Guaranteed Loans Dollars in Millions

As of September 30 2012 2011

Defaulted Guaranteed Loans from Post-FY 1991 Guarantees (Present Value Method):

Military Housing Privatization Initiative

Defaulted Guaranteed Loans Receivable, Gross $ 0.0 $ 0.0

Interest Receivable 0.0 0.0

Foreclosed Property 0.0 0.0

Allowance for Subsidy Cost (Present Value) 0.0 0.0

Value of Assets Related to Defaulted Guaranteed 

Loans Receivable, Net $ 0.0 $ 0.0

Armament Retooling & Manufacturing Support Initiative

Defaulted Guaranteed Loans Receivable, Gross $ 0.7 $ 0.7

Interest Receivable 0.0 0.0

Foreclosed Property 0.0 0.0

Allowance for Subsidy Cost (Present Value) (0.7) (0.7)

Value of Assets Related to Defaulted Guaranteed Loans 

Receivable, Net $ 0.0 $ 0.0

Total Value of Assets Related to Defaulted $ 0.0 $ 0.0
Department of Defense Agency Financial Report for FY 2012

Financial Information

94

Guaranteed Loans Outstanding Dollars in Millions

As of September 30

Outstanding 

Principal of 

Guaranteed Loans, 

Face Value

Amount of 

Outstanding 

Principal 

Guaranteed

2012

Guaranteed Loans Outstanding

Military Housing Privatization Initiative $ 448.4 $ 448.4

Armament Retooling & Manufacturing Support Initiative 0.0 0.0

Total $ 448.4 $ 448.4

2011

Guaranteed Loans Outstanding

Military Housing Privatization Initiative $ 464.7 $ 464.7

Armament Retooling & Manufacturing Support Initiative 2.4 2.1

Total $ 467.1 $ 466.8

2012

New Guaranteed Loans Disbursed

Military Housing Privatization Initiative $ 0.0 $ 0.0

Armament Retooling & Manufacturing Support Initiative 0.0 0.0

Total $ 0.0 $ 0.0

2011

New Guaranteed Loans Disbursed

Military Housing Privatization Initiative $ 0.0 $ 0.0

Armament Retooling & Manufacturing Support Initiative 0.0 0.0

Total $ 0.0 $ 0.0

Liabilities for Loan Guarantees Dollars in Millions

As of September 30 2012 2011

Liabilities for Loan Guarantee from Post 1991

(Present Value)

Military Housing Privatization Initiative $ 11.7 $ 13.7

Armament Retooling & Manufacturing Support Initiative 1.0 0.2

Total Loan Guarantee Liability (Post FY 1991) $ 12.7 $ 13.9

Total Loan Guarantee Liability $ 12.7 $ 13.9
Department of Defense Agency Financial Report for FY 2012

Financial Information

95

Subsidy Expense for Direct Loan by Program

As of September 30 Dollars in Millions

2012 Interest 

Differential Defaults Fees Other Total

New Loan Guarantees Disbursed

Military Housing Privatization Initiative $ 0.0 $ 0.0 $ 0.0 $ 0.0 $ 0.0

Armament Retooling & 

Manufacturing Support Initiative 0.0 0.0 0.0 0.0 0.0

Total $ 0.0 $ 0.0 $ 0.0 $ 0.0 $ 0.0

2011 Interest 

Differential Defaults Fees Other Total

New Loan Guarantees Disbursed

Military Housing Privatization Initiative $ 0.0 $ 0.0 $ 0.0 $ 0.0 $ 0.0

Armament Retooling & 

Manufacturing Support Initiative 0.0 0.0 0.0 0.0 0.0

Total $ 0.0 $ 0.0 $ 0.0 $ 0.0 $ 0.0

2012 Modifications

Interest Rate 

Reestimates

Technical 

Reestimates

Total 

Reestimates Total

Modifications and Reestimates

Military Housing Privatization Initiative $ 0.0 $ (0.9) $ (1.7) $ (2.6) $ (2.6)

Armament Retooling & 

Manufacturing Support Initiative 0.0 0.8 (0.0) 0.8 0.8

Total $ 0.0 $ (0.1) $ (1.7) $ (1.8) $ (1.8)

2011 Modifications

Interest Rate 

Reestimates

Technical 

Reestimates

Total 

Reestimates Total

Modifications and Reestimates

Military Housing Privatization Initiative $ 0.0 $ (1.1) $ (2.2) $ (3.3) $ (3.3)

Armament Retooling & 

Manufacturing Support Initiative 0.0 0.0 (3.6) (3.6) (3.6)

Total $ 0.0 $ (1.1) $ (5.8) $ (6.9) $ (6.9)

2012 2011

Total Loan Guarantee

Military Housing Privatization Initiative $ (2.6) $ (3.3)

Armament Retooling & 

Manufacturing Support Initiative 0.8 (3.6)

Total $ (1.8) $ (6.9)

There are no new loan guarantees in FY2012.

Subsidy Expense for Direct Loan by Program

As of September 30

Interest 

Supplements Defaults

Fees and 

other 

Collections

Other Total

Budget Subsidy Rates for Loan Guarantees

Military Housing Privatization Initiative 0.0% 0.0% 0.0% 0.0% 0.0%

Armament Retooling & 

Manufacturing Support Initiative 0.0% 0.0% 0.0% 0.0% 0.0%

There are no new loan guarantees in FY 2012.
Department of Defense Agency Financial Report for FY 2012

Financial Information

96

Schedule for Reconciling Loan Guarantee Liability Balances

for Post-FY 1991 Loan Guarantees Dollars in Millions

As of September 30 2012 2011

Beginning Balance, Changes, and Ending Balance

Beginning Balance of the Loan Guarantee Liability $ 13.9 $ 19.8

Add: Subsidy Expense for Guaranteed Loans Disbursed during the Reporting Years by Component

Interest Supplement Costs $ 0.0 $ 0.0

Default Costs (Net of Recoveries) 0.0 0.0

Fees and Other Collections 0.0 0.0

Other Subsidy Costs 0.0 0.0

Total of the above Subsidy Expense Components $ 0.0 $ 0.0

Adjustments

Loan Guarantee Modifications $ 0.0 $ 0.0

Fees Received 0.0 0.0

Interest Supplements Paid 0.0 0.0

Foreclosed Property and Loans Acquired 0.0 0.0

Claim Payments to Lenders 0.0 0.0

Interest Accumulation on the Liability Balance 0.6 1.0

Other 0.0 0.0

Total of the above Adjustments $ 0.6 $ 1.0

Ending Balance of the Loan Guarantee Liability before Reestimates $ 14.5 $ 20.8

Add or Subtract Subsidy Reestimates by Component

Interest Rate Reestimate $ (0.1) $ (1.1)

Technical/Default Reestimate (1.7) (5.8)

Total of the above Reestimate Components $ (1.8) (6.9)

Ending Balance of the Loan Guarantee Liability $ 12.7 $ 13.9

Administrative Expenses are limited to separately identified expenses for administering preFY 1992 and post-FY 1991 Direct Loans and Loan Guarantee Programs. The Department 

does not maintain a separate program to capture the expenses related to direct loans and 

loan guarantees for MHPI. Administrative expenses for the ARMS Initiative represent a fee 

paid to the U.S. Department of Agriculture, Rural Business Cooperative Service for servicing 

the loan guarantee program.

NOTE 9. INVENTORY AND RELATED PROPERTY

Inventory and Related Property Dollars in Millions

As of September 30 2012 2011

Inventory, Net $ 90,156.8 $ 94,280.2

Operating Materiel & Supplies, Net 152,591.5 147,731.5

Stockpile Materiel, Net 551.4 570.3

Total Inventory and Related Property $ 243,299.7 $ 242,582.0
Department of Defense Agency Financial Report for FY 2012

Financial Information

97

Restrictions

The following are restrictions on the use, sale, or disposition of inventory: 

• War reserve materiel valued at $1.8 billion;

• Commissary items valued at $398.8 million held for purchase by authorized patrons; 

and

• Dispositions pending litigation or negotiation valued at $64.0 million.

There are no known restrictions on inventory disposition related to environmental or other 

liabilities.

General Composition of Inventory

Inventory includes spare and repair parts, clothing and textiles, and fuels held for sale. 

Inventory is tangible personal property that is:

Inventory, Net Dollars in Millions

2012 Valuation 

Method

As of September 30

Inventory, 

Gross Value

Revaluation 

Allowance Inventory, Net

Inventory Categories

Available and Purchased for Resale $ 61,608.0 $ (2,602.5) $ 59,005.5 FIFO,LAC,

MAC

Held for Repair 33,864.2 (4,143.9) 29,720.3 LAC,MAC

Excess, Obsolete, and Unserviceable 6,833.8 (6,833.8) 0.0 NRV

Raw Materiel 1,352.6 0.0 1,352.6 MAC,SP,LAC

Work in Process 78.4 0.0 78.4 AC

Total Inventory, Net $ 103,737.0 $ (13,580.2) $ 90,156.8

Legend for Valuation Methods:

Adjusted LAC = Latest Acquisition Cost, adjusted for holding gains and losses

SP = Standard Price

AC = Actual Cost

NRV = Net Realizable Value

MAC = Moving Average Cost

Inventory, Net Dollars in Millions

2011 Valuation 

Method

As of September 30

Inventory, 

Gross Value

Revaluation 

Allowance Inventory, Net

Inventory Categories

Available and Purchased for Resale $ 65,084.4 $ 590.1 $ 65,674.5 FIFO,LAC, 

MAC

Held for Repair 30,748.1 (3,805.1) 26,943.0 LAC,MAC

Excess, Obsolete, and Unserviceable 7,776.0 (7,776.0) 0.0 NRV

Raw Materiel 1,373.7 0.0 1,373.7 MAC,SP,LAC

Work in Process 289.0 0.0 289.0 AC

Total Inventory, Net $ 105,271.2 $ (10,991.0) $ 94,280.2

Legend for Valuation Methods:

Adjusted LAC = Latest Acquisition Cost, adjusted for holding gains and losses

SP = Standard Price

AC = Actual Cost

NRV = Net Realizable Value

MAC = Moving Average Cost
Department of Defense Agency Financial Report for FY 2012

Financial Information

98

• Held for sale, or held for repair and eventual sale; 

• In the process of production for sale; or 

• To be consumed in the production of goods for sale or in the provision of service for a 

fee.

The Department assigns inventory items to a category based upon the type and condition of 

the asset.

As a result of audit readiness efforts, adjustments had to be made to mission critical asset 

balances that resulted from events that could not be identified to specific accounting 

periods, and those adjustments were made against current year gain/loss accounts. 

Significant accounting adjustments have been made to the Department’s mission critical 

assets as a result of the Department’s ongoing audit readiness efforts. These accounting 

adjustments were recognized in current year gain/loss accounts when auditable data was 

not available to support restatement of prior period financial statements.

Restrictions

Some munitions included in Operating Materiel and Supplies (OM&S) are restricted due to 

condition. Restricted munitions are considered obsolete or unserviceable when they cannot 

meet performance requirements. However, obsolete and unserviceable OM&S may be used 

in emergency combat situations in which no other suitable munitions are immediately 

available.

Operating Materiel and Supplies, Net Dollars in Millions

2012 Valuation 

Method

As of September 30

OM&S, Gross 

Value

Revaluation 

Allowance OM&S, Net

Inventory Categories

Held for Use $ 134,535.9 $ (28.0) $ 134,507.9 SP, LAC, MAC

Held for Repair 18,882.2 (798.6) 18,083.6 SP, LAC, MAC

Excess, Obsolete, and Unserviceable 1,925.0 (1,925.0) 0.0 NRV

Total OM&S $ 155,343.1 $ (2,751.6) $ 152,591.5

Legend for Valuation Methods:

Adjusted LAC = Latest Acquisition Cost, adjusted for holding gains and losses

SP = Standard Price

NRV = Net Realizable Value

MAC = Moving Average Cost

Operating Materiel and Supplies, Net Dollars in Millions

2011 Valuation 

Method

As of September 30

OM&S, Gross 

Value

Revaluation 

Allowance OM&S, Net

Inventory Categories

Held for Use $ 131,405.5 $ 0.0 $ 131,405.5 SP, LAC, MAC

Held for Repair 17,561.7 (1,235.7) 16,326.0 SP, LAC, MAC

Excess, Obsolete, and Unserviceable 2,225.1 (2,225.1) 0.0 NRV

Total OM&S $ 151,192.3 $ (3,460.8) $ 147,731.5

Legend for Valuation Methods:

Adjusted LAC = Latest Acquisition Cost, adjusted for holding gains and losses

SP = Standard Price

NRV = Net Realizable Value

MAC = Moving Average Cost
Department of Defense Agency Financial Report for FY 2012

Financial Information

99

General Composition of OM&S

OM&S include spare and repair parts, ammunition, tactical missiles, aircraft configuration 

pods, and centrally-managed aircraft engines held for consumption. The Department 

assigns OM&S items into a category based upon the type and condition of the asset.

Restrictions

Materiel held by the National Defense Stockpile (NDS) is restricted unless released by 

congressional action and made available for sale on the open market. Stockpile materiel 

may not be disposed except for: (1) necessary upgrading, refining, or processing;

(2) necessary rotation to prevent deterioration; (3) determination as excess with potential 

financial loss if retained; or (4) authorization by law. 

Before selling any materiel, Congress must enact specific enabling legislation (e.g., the 

National Defense Authorization Act). When authorized to offer materiel for sale, NDS 

removes the materiel from Materiel Held in Reserve and reclassifies these items as Materiel

Held for Sale. The estimated market price of the stockpile materiel held for sale as of 

3rd Quarter, FY 2012, is $1.4 billion.

General Composition of Stockpile Materiel

Due to statutory requirements, the Department holds strategic and critical stockpile 

materiel for use in national defense, conservation, or national emergencies.

Stockpile Materiel, Net Dollars in Millions

2012

Valuation 

Method

As of September 30

Stockpile, 

Materiel

Amount

Allowance for 

Gains 

(Losses)

Stockpile, 

Materiel,

Net

Stockpile Materiel Categories

Held for Sale $ 522.1 $ 0.0 $ 522.1 AC, LCM

Held for Reserve for Future Sale 29.3 0.0 29.3 AC, LCM

Total Stockpile Materiel $ 551.4 $ 0.0 $ 551.4

Legend for Valuation Methods:

AC = Actual Cost LCM = Lower of Cost or Market

Stockpile Materiel, Net Dollars in Millions

2011

Valuation 

Method

As of September 30

Stockpile, 

Materiel

Amount

Allowance for 

Gains 

(Losses)

Stockpile, 

Materiel,

Net

Stockpile Materiel Categories

Held for Sale $ 541.0 $ 0.0 $ 541.0 AC, LCM

Held for Reserve for Future Sale 29.3 0.0 29.3 AC, LCM

Total Stockpile Materiel $ 570.3 $ 0.0 $ 570.3

Legend for Valuation Methods:

AC = Actual Cost LCM = Lower of Cost or Market
Department of Defense Agency Financial Report for FY 2012

Financial Information

100

NOTE 10. GENERAL PP&E, NET

General PP&E, Net Dollars in Millions

2012

As of September 30

Depreciation/

Amortization 

Method

Service Life Acquisition 

Value

(Accumulated 

Depreciation/

Amortization)

Net Book 

Value

Major Asset Classes

Land N/A N/A $ 10,706.2 N/A $ 10,706.2

Buildings, Structures, and Facilities S/L 20 or 40 248,871.1 (120,845.8) 128,025.3

Leasehold Improvements S/L Lease term 880.5 (302.2) 578.3

Software S/L 2 – 5 or 10 11,324.7 (7,640.2) 3,684.5

General Equipment S/L 5 or 10 105,745.4 (69,931.6) 35,813.8

Military Equipment S/L Various 878,687.7 (500,413.0) 378,274.7

Assets Under Capital Lease1 S/L Lease term 901.4 (520.4) 381.0

Construction-in-Progress N/A N/A 42,825.7 N/A 42,825.7

Other 1,171.4 (2.9) 1,168.5

Total General PP&E $ 1,301,114.1 $ (699,656.1) $ 601,458.0

1 Note 15 for additional information on Capital Leases

Legend for Valuation Methods: S/L = Straight Line N/A = Not Applicable

General PP&E, Net Dollars in Millions

Restated 2011

As of September 30

Depreciation/

Amortization 

Method

Service Life Acquisition 

Value

(Accumulated 

Depreciation/

Amortization)

Net Book 

Value

Major Asset Classes

Land N/A N/A $ 10,577.1 N/A $ 10,577.1

Buildings, Structures, and Facilities S/L 20 or 40 230,160.8 (118,526.4) 111,634.4

Leasehold Improvements S/L Lease term 1,032.2 (452.7) 579.5

Software S/L 2 – 5 or 10 10,027.4 (6,932.4) 3,095.0

General Equipment S/L 5 or 10 92,368.7 (64,943.0) 27,425.7

Military Equipment S/L Various 854,180.3 (446,334.0) 407,846.3

Assets Under Capital Lease1 S/L Lease term 1,182.3 (748.6) 433.7

Construction-in-Progress N/A N/A 46,507.2 N/A 46,507.2

Other 1,201.4 (1.8) 1,199.6

Total General PP&E $ 1,247,237.4 $ (637,938.9) $ 609,298.5

1 Note 15 for additional information on Capital Leases

Legend for Valuation Methods: S/L = Straight Line N/A = Not Applicable

Restatements

The Department corrected a $1.0 billion understatement of General Property, Plant and 

Equipment to align the accounting records to the property accountability system. Refer to 

Note 26, Restatements, for further information.

Other Disclosures

The Department has use of overseas land, buildings, and other facilities obtained through 

international treaties and agreements negotiated by the Department of State. Treaty 
Department of Defense Agency Financial Report for FY 2012

Financial Information

101

covenants restrict the Department’s use and disposal of real property (land and buildings) 

located outside the United States.

The Department does not have the acquisition value for all General PP&E and uses several 

cost methodologies to provide General PP&E values for financial statement reporting 

purposes. The discovery and validation phases are identifying adjustments to values 

resulting in current year gains/losses.

Other consists of assets awaiting disposition.

Heritage Assets and Stewardship Land 

The Department’s policy is to preserve its heritage assets, which are items of historical, 

cultural, educational, or artistic importance.

The mission of the Department is to provide the military forces necessary to deter war and 

protect the security of the United States. In that mission, the Department, with minor 

exceptions, uses most of the buildings and stewardship land in its daily activities and 

includes the buildings on the Balance Sheet as multi-use heritage assets (capitalized and 

depreciated).

Differences in the heritage assets and stewardship land quantities from the FY 2011 ending 

to the FY 2012 beginning unit counts resulted from efforts to improve quality of reported 

data.

Heritage assets within the Department consist of buildings and structures, archeological 

sites, and museum collections. The Department defines these as follows:

• Buildings and Structures. Buildings and structures that are listed, or eligible for listing, 

on the National Register of Historic Places, including Multi-Use Heritage Assets.

• Archeological Sites. Sites that have been identified, evaluated, and determined to be 

eligible for or are listed on the National Register of Historic Places in accordance with 

Section 110 National Historic Preservation Act.

• Museum Collection Items. Items which are unique for one or more of the following 

reasons: historical or natural significance; cultural, educational, or artistic importance; 

or significant technical or architectural characteristics.

The Department is unable to identify all quantities of heritage assets and stewardship land 

added through donation or devise in FY 2012 due to limitations of the Department’s financial 

and nonfinancial management processes and systems that feed the financial statements. 

Categories Measure 

Quantity

As of 

9/30/11 Additions Deletions As of 9/30/12

Buildings and Structures Each 58,603 859 3,287 56,175

Archeological Sites Each 30,637 633 1,357 29,913

Museum Collection Items 

(Objects, not including fine art) Each 1,367,534 28,272 163,580 1,232,226

Museum Collection Items (Objects, 

fine art) Each 51,296 2,222 125 53,393
Department of Defense Agency Financial Report for FY 2012

Financial Information

102

Stewardship land is land and land rights owned by the Department, but not acquired for, or 

in connection with, items of General Property, Plant, and Equipment. All land provided to 

the Department from the public domain or at no cost, regardless of its use, is classified as 

Stewardship Land.

Stewardship land is presented in context of all categories of the Department's lands and 

reported in acres based on the predominant use of the land. The three categories of 

Stewardship land held in public trust are: State-Owned Land, Withdrawn Public-Land, and 

Public Land.

The Department’s stewardship land consists mainly of mission essential land.

Facility 

Code

Predominant Land Use 

Categories

As of 

9/30/11

(Acres in 

Thousands)

Additions Deletions As of 

9/30/12

9110 Government Owned Land 6,505 93 47 6,551

9111 State Owned Land 7 0 2 5

9120 Withdrawn Public Land 16,135 0 1,421 14,714

9130 Licensed and Permitted Land 2,362 461 1,906 917

9140 Public Land 202 0 0 202

9210 Land Easement 376 3 1 378

9220 In-leased Land 226 10 112 124

9230 Foreign Land 454 0 157 297

Grand Total 23,188

Total – All Other Lands 8,267

Total – Stewardship Lands 14,921

Assets Under Capital Lease Dollars in Millions

As of September 30 2012 2011

Entity as Lessee, Assets Under Capital Lease

Land and Buildings $ 273.0 $ 538.8

Equipment 628.4 643.5

Accumulated Amortization (520.4) (748.6)

Total Capital Leases $ 381.0 $ 433.7
Department of Defense Agency Financial Report for FY 2012

Financial Information

103

NOTE 11. LIABILITIES NOT COVERED BY BUDGETARY RESOURCES

Liabilities Not Covered by Budgetary Resources Dollars in Millions

As of September 30 2012 2011

Intragovernmental Liabilities

Accounts Payable $ 12.9 $ 9.2

Debt 4.3 5.1

Other 2,141.0 2,142.1

Total Intragovernmental Liabilities $ 2,158.2 $ 2,156.4

Non-Federal Liabilities

Accounts Payable $ 53.0 $ 692.2

Military Retirement and Other Federal Employment Benefits 1,771,202.7 1,656,021.3

Environmental Liabilities 57,911.8 60,567.0

Other Liabilities 16,323.7 17,186.6

Total Non-Federal Liabilities $ 1,845,491.2 $ 1,734,467.1

Total Liabilities Not Covered by Budgetary Resources $ 1,847,649.4 $ 1,736,623.5

Total Liabilities Covered by Budgetary Resources $ 610,347.4 $ 614,893.4

Total Liabilities $ 2,457,996.8 $ 2,351,516.9

Liabilities Not Covered by Budgetary Resources includes liabilities requiring congressional 

action before budgetary resources can be provided.

Abnormal Balance

Total Liabilities Covered by Budgetary Resources includes an abnormal balance of 

$6.2 million in USSGL account 2140, Accrued Interest Payable. This is primarily due to 

improper posting of accounting transactions.

Other Disclosures

Intragovernmental Accounts Payable represents subsidy payments for the Military Housing 

Privatization Initiative and liabilities in canceled appropriations that, if paid, will be 

disbursed using current year funds.

Non-Federal Accounts Payable primarily represents liabilities in canceled appropriations that, 

if paid, will be disbursed using current year funds. 

Debt consists primarily of borrowing from the U.S. Treasury for capital improvements to the 

Washington Aqueduct Project. Arlington County and Falls Church, Virginia, will complete 

reimbursement to the Department by 2023.

Environmental Liabilities represents the Department’s liability for existing and anticipated 

environmental clean-up and disposal.

Intragovernmental Liabilities, Other primarily consists of unfunded liabilities for Federal 

Employees Compensation Act, Unemployment Insurance, and Judgment Fund.

Non-Federal Liabilities, Other primarily consists of unfunded annual leave, contingent 

liabilities, and expected expenditures for disposal of conventional munitions.
Department of Defense Agency Financial Report for FY 2012

Financial Information

104

Military Retirement and Other Federal Employment Benefits consists of various employee 

actuarial liabilities not due and payable during the current fiscal year. These liabilities 

primarily consist of $1.1 trillion in pension liabilities and $656.3 billion in health benefit 

liabilities. Refer to Note 17, Military Retirement and Other Federal Employment Benefits, for 

additional details and disclosures.

NOTE 12. ACCOUNTS PAYABLE

Accounts Payable Dollars in Millions

2012

As of September 30

Accounts Payable

Interest, Penalties, 

and Administrative 

Fees

Total

Intragovernmental Payables $ 1,762.9 N/A $ 1,762.9

Non-Federal Payables

(To the Public) 19,498.2 (6.2) 19,492.0

Total Accounts Payable $ 21,261.1 $ (6.2) $ 21,254.9

Accounts Payable Dollars in Millions

2011

As of September 30

Accounts Payable

Interest, Penalties, 

and Administrative 

Fees

Total

Intragovernmental Payables $ 1,893.2 N/A $ 1,893.2

Non-Federal Payables

(To the Public) 26,102.4 1.5 26,103.9

Total Accounts Payable $ 27,995.6 $ 1.5 $ 27,997.1

Accounts Payable include amounts owed to Federal and non-Federal entities for goods and 

services received by the Department. The Department’s systems do not track 

intragovernmental transactions by customer at the transaction level. Buyer-side accounts 

payable are adjusted to agree with interagency seller-side accounts receivable. Accounts 

Payable was adjusted by reclassifying amounts between Federal and non-Federal accounts 

payable, accruing additional accounts payable and expenses, and applying both supported 

and unsupported undistributed disbursements at the reporting entity level. 

Abnormal Balance

Non-Federal Payables, interest, penalties, and administrative fees, includes an abnormal 

balance of $6.2 million in USSGL account 2140 (Accrued Interest Payable). This is primarily 

due to an improper posting of accounting transactions.
Department of Defense Agency Financial Report for FY 2012

Financial Information

105

NOTE 13. DEBT

Debt Dollars in Millions

2012

As of September 30 Beginning Balance Net Borrowing Ending Balance

Agency Debt (Intragovernmental)

Debt to the Treasury $ 783.4 $ 169.2 $ 952.6

Total Agency Debt $ 783.4 $ 169.2 $ 952.6

Debt Dollars in Millions

2011

As of September 30 Beginning Balance Net Borrowing Ending Balance

Agency Debt (Intragovernmental)

Debt to the Treasury $ 518.3 $ 265.1 $ 783.4

Total Agency Debt $ 518.3 $ 265.1 $ 783.4

The Department’s debt consists of interest and principal payments due to the U.S. Treasury. 

The Department borrows funds for the Military Housing Privatization Initiative and the 

Washington Aqueduct Capital Improvements Project.

The Department must pay the debt on direct loans if borrowers (e.g. county or city 

governments, or housing builders) default. For loan guarantees, the Department must pay 

the amount of outstanding principal guaranteed.

NOTE 14. ENVIRONMENTAL LIABILITIES AND DISPOSAL LIABILITIES

Environmental Liabilities and Disposal Liabilities Dollars in Millions

As of September 30 2012 2011

Environmental Liabilities–Non-Federal

Accrued Environmental Restoration Liabilities

Active Installations – Installation Restoration Program (IRP) and 

Building Demolition and Debris Removal (BD/DR) $ 10,571.0 $ 11,043.3

Active Installations – Military Munitions Response Program (MMRP) 3,953.9 4,120.0

Formerly Used Defense Sites – IRP & BD/DR 3,063.4 3,295.4

Formerly Used Defense Sites – MMRP 10,842.6 10,990.0

Other Accrued Environmental Liabilities – Non-BRAC

Environmental Corrective Action $ 786.4 $ 500.2

Environmental Closure Requirements 1,838.8 1,968.6

Environmental Response at Operational – Ranges 93.7 95.2

Asbestos 1,057.4 1,485.0

Non-Military Equipment 554.1 548.2

Other 1,121.7 1,079.9

Base Realignment and Closure Installations (BRAC)

Installation Restoration Program $ 3,388.2 $ 3,743.0

Military Munitions Response Program 703.1 707.3

Environmental Corrective Action/Closure Requirements 159.5 309.9

 Asbestos 0.3 0.0
Department of Defense Agency Financial Report for FY 2012

Financial Information

106

Environmental Liabilities and Disposal Liabilities Dollars in Millions

As of September 30 2012 2011

Environmental Disposal for Military Equipment/Weapons Programs

Nuclear Powered Military Equipment/Spent Nuclear Fuel $ 14,055.9 $ 13,637.3

Non-Nuclear Powered Military Equipment 36.4 36.4

Other Weapons Systems 146.0 161.0

Chemical Weapons Disposal Program

Chemical Demilitarization – Chemical Materials Agency (CMA) $ 3,691.1 $ 4,592.0

CAMD Demilitarization – Assembled Chemical Weapons Alternatives 

(ACWA) 6,539.1 6,510.4

Total Environmental Liabilities $ 62,602.6 $ 64,823.1 

Other Accrued Environmental Liabilities, Non-Base Realignment and Closure (BRAC), Other

primarily consists of remediation related to Formerly Utilized Sites Remedial Action Program 

(FUSRAP). The Department is responsible for FUSRAP, which remediates radiological 

contamination from the Department of Energy’s U.S. Atomic Energy and Weapons Program. 

The unrecognized portion of the estimated total clean-up costs associated with General 

Property, Plant, and Equipment (PP&E) is $3.2 billion for FY 2012. Not all components of the 

Department are able to compile the necessary information for this disclosure, thus the 

amount reported may not accurately reflect the Department’s total unrecognized costs 

associated with General PP&E. The Department is implementing procedures to address 

these deficiencies.

OTHER DISCLOSURES

Types of Environmental Liabilities and Disposal Liabilities Identified

The Department has clean up requirements for the Defense Environmental Restoration 

Program (DERP) sites at active installations, Base Realignment and Closure installations, 

Formerly Used Defense Sites, sites at active installations that are not covered by DERP, 

weapon systems programs, and chemical weapons disposal programs. The weapons 

systems program consists of chemical weapons disposal, nuclear powered aircraft carriers, 

nuclear powered submarines, and other nuclear ships. All cleanup efforts are performed in 

coordination with regulatory agencies, other responsible parties, and current property 

owners.

Applicable Laws and Regulations for Cleanup Requirements

The Department is required to clean up contamination resulting from past waste disposal 

practices, leaks, spills, and other past activity that created a public health or environmental 

risk. The Department accomplishes this effort in coordination with regulatory agencies and, 

if applicable, other responsible parties and current property owners. The Department is also 

required to recognize closure and post-closure costs for its General PP&E and environmental 

corrective action costs for current operations. Each of the Department’s major reporting 

entities is responsible for tracking and reporting all required environmental information 

related to environmental restoration costs, other accrued environmental costs, disposal 

costs of weapon systems, and environmental costs related to BRAC actions that have taken 
Department of Defense Agency Financial Report for FY 2012

Financial Information

107

place. 

The Department follows the Comprehensive Environmental Response, Compensation, and 

Liability Act (CERCLA), Superfund Amendment and Reauthorization Act, Resource 

Conservation and Recovery Act (RCRA) or other applicable Federal or state laws to clean up 

contamination. The CERCLA and RCRA require the Department to clean up contamination in 

coordination with regulatory agencies, current owners of property damaged by the 

Department, and third parties that have a partial responsibility for the environmental 

restoration. Failure to comply with agreements and legal mandates puts the Department at 

risk of incurring fines and penalties.

The clean-up requirements for nuclear-powered aircraft carriers, submarines, and other 

nuclear ships are based on laws that affect the Department’s conduct of environmental 

policy and regulations. The Atomic Energy Act of 1954, as amended, assures the proper 

management of source, special nuclear, and byproduct materiel.

As in all cases with nuclear power, the Department coordinates actions with the Department 

of Energy. The Nuclear Waste Policy Act of 1982 requires all owners and generators of highlevel nuclear waste and spent nuclear fuel to pay their respective shares of the full cost of 

the program.

Finally, the Low-Level Radioactive Waste Policy Amendments Act of 1986 provides for the 

safe and efficient management of low-level radioactive waste.

The Chemical Weapons Disposal Program is based on FY 1986 National Defense 

Authorization Act (Public Law 99-145, as amended) that directed the Department to destroy 

the unitary chemical stockpile in accordance with the requirements of the Chemical 

Weapons Convention Treaty.

Methods for Assigning Total Cleanup Costs to Current Operating 

Periods

The Department uses engineering estimates and independently validated models to 

estimate environmental costs. The models include the Remedial Action Cost Engineering 

Requirements application and the Normalization of Data System. The Department validates 

the models in accordance with DoD Instruction 5000.61 and uses the models to estimate 

the liabilities based on data received during a preliminary assessment and initial site 

investigation. The Department primarily uses engineering estimates after obtaining 

extensive data during the remedial investigation/feasibility phase of the environmental 

project.

Once the environmental cost estimates are complete, the Department complies with accounting 

standards to assign costs to current operating periods. The Department has already expensed 

the costs for cleanup associated with General PP&E placed into service prior to October 1, 1997, 

unless the costs are intended to be recovered through user charges. If the costs are recovered 

through user charges, the Department expenses cleanup costs associated with that portion of 

the asset life that has passed since the General PP&E was placed into service. The Department 

systematically recognizes the remaining cost over the life of the assets.

For General PP&E placed into service after September 30, 1997, the Department expenses 
Department of Defense Agency Financial Report for FY 2012

Financial Information

108

associated environmental costs systematically over the life of the asset using two methods: 

physical capacity for operating landfills and life expectancy in years for all other assets. The 

Department expenses the full cost to clean up contamination for Stewardship PP&E at the 

time the asset is placed into service. 

Nature of Estimates and the Disclosure of Information Regarding 

Possible Changes Due to Inflation, Deflation, Technology, or 

Applicable Laws and Regulations

The Department had changes in estimates resulting from overlooked or previously unknown 

contaminants, re-estimation based on different assumptions, and other changes in project 

scope. Environmental liabilities may change in the future due to changes in laws and 

regulation, changes in agreements with regulatory agencies, and advances in technology.

Uncertainty Regarding the Accounting Estimates Used to Calculate 

the Reported Environmental Liabilities

The environmental liabilities for the Department are based on accounting estimates, which 

require certain judgments and assumptions that are reasonable based upon information 

available at the time the estimates are calculated. The actual results may materially vary 

from the accounting estimates if agreements with regulatory agencies require remediation 

to a different degree than anticipated when calculating the estimates. Liabilities can be 

further affected if investigation of the environmental sites reveals contamination levels that 

differ from the estimate parameters.

The Department has a liability to take environmental restoration and corrective action for 

buried chemical munitions and agents; however, it is unable to estimate at this time 

because the extent of the buried chemical munitions and agents is unknown. The 

Department is also unable to provide a complete estimate for FUSRAP. The Department has 

ongoing studies and will update its estimate as additional liabilities are identified. In 

addition, not all components of the Department recognize environmental liabilities 

associated with General PP&E due to process and system limitations.

The Department has the potential to incur costs for restoration initiatives in conjunction with 

returning overseas Defense facilities to host nations. The Department is unable to provide a 

reasonable estimate at this time because the extent of required restoration is unknown.
Department of Defense Agency Financial Report for FY 2012

Financial Information

109

NOTE 15. OTHER LIABILITIES

Other Liabilities Dollars in Millions

2012

As of September 30 Current Liability Noncurrent 

Liability Total

Intragovernmental

Advances from Others $ 1,185.8 $ 0.0 $ 1,185.8

Deposit Funds and Suspense 

Account Liabilities 153.3 0.0 153.3

Disbursing Officer Cash 1,889.4 0.0 1,889.4

Judgment Fund Liabilities 328.1 0.0 328.1

FECA Reimbursement to the 

Department of Labor 616.9 756.1 1,373.0

Custodial Liabilities 4,647.9 2,508.0 7,155.9

Employer Contribution and 

Payroll Taxes Payable 365.6 0.0 365.6

Other Liabilities 490.5 0.0 490.5

Total Intragovernmental Other $ 9,677.5 $ 3,264.1 $ 12,941.6

Non-Federal

Accrued Funded Payroll and 

Benefits $ 9,387.2 $ 0.0 $ 9,387.2

Advances from Others 4,225.2 0.0 4,225.2

Deferred Credits 0.0 0.0 0.0

Deposit Funds and Suspense 

Accounts 473.1 0.0 473.1

Nonenvironmental Disposal 

Liabilities

Military Equipment 

(Nonnuclear) 151.3 26.5 177.8

Excess/Obsolete Structures 66.1 525.6 591.7

Conventional Munitions 

Disposal 0.0 2,136.6 2,136.6

Accrued Unfunded Annual Leave 10,638.2 0.0 10,638.2

Capital Lease Liability 184.0 22.3 206.3

Contract Holdbacks 964.2 0.2 964.4

Employer Contribution and 

Payroll Taxes Payable 371.4 0.0 371.4

Contingent Liabilities 531.9 6,421.2 6,953.1

Other Liabilities 182.6 0.5 183.1

Total Non-Federal Other 

Liabilities $ 27,175.2 $ 9,132.9 $ 36,308.1

Total Other Liabilities $ 36,852.7 $ 12,397.0 $ 49,249.7
Department of Defense Agency Financial Report for FY 2012

Financial Information

110

Other Liabilities Dollars in Millions

2011

As of September 30 Current Liability Noncurrent 

Liability Total

Intragovernmental

Advances from Others $ 1,548.6 $ 0.0 $ 1,548.6

Deposit Funds and Suspense 

Account Liabilities

1,799.8 0.0 1,799.8

Disbursing Officer Cash 1,828.9 0.0 1,828.9

Judgment Fund Liabilities 260.6 0.0 260.6

FECA Reimbursement to the 

Department of Labor

607.1 776.4 1,383.5

Custodial Liabilities 3,949.3 2,533.8 6,483.1

Employer Contribution and 

Payroll Taxes Payable

352.2 0.0 352.2

Other Liabilities 575.0 0.0 575.0

Total Intragovernmental Other $ 10,921.5 $ 3,310.2 $ 14,231.7

Non-Federal

Accrued Funded Payroll and 

Benefits $ 5,703.1 $ 0.0 $ 5,703.1

Advances from Others 4,279.2 0.0 4,279.2

Deferred Credits 0.0 0.0 0.0

Deposit Funds and Suspense 

Accounts 164.8 0.0 164.8

Nonenvironmental Disposal 

Liabilities

Military Equipment 

(Nonnuclear) 12.8 207.6 220.4

Excess/Obsolete Structures 3.2 535.4 538.6

Conventional Munitions 

Disposal 0.0 2,752.4 2,752.4

Accrued Unfunded Annual Leave 10,211.5 0.0 10,211.5

Capital Lease Liability 208.1 29.6 237.7

Contract Holdbacks 806.2 0.3 806.5

Employer Contribution and 

Payroll Taxes Payable 373.9 0.0 373.9

Contingent Liabilities 1,581.1 4,288.3 5,869.4

Other Liabilities 150.1 0.5 150.6

Total Non-Federal Other 

Liabilities $ 23,494.0 $ 7,814.1 $ 31,308.1

Total Other Liabilities $ 34,415.5 $ 11,124.3 $ 45,539.8
Department of Defense Agency Financial Report for FY 2012

Financial Information

111

Intragovernmental Other Liabilities primarily consists of unemployment compensation 

liabilities.

Non-Federal Other Liabilities primarily consist of estimated costs for services provided; 

accrued liabilities for inventory owned and managed on behalf of foreign governments; and 

undistributed international tariff receipts.

Contingent Liabilities includes $3.4 billion related to contracts authorizing progress 

payments based on cost as defined in the Federal Acquisition Regulation (FAR). In 

accordance with contract terms, specific rights to contractors’ work vests with the Federal 

Government when a specific type of contract financing payment is made. This action 

protects taxpayer funds in the event of contract nonperformance. These rights should not 

be misconstrued as rights of ownership. The Department is under no obligation to pay 

contractors for amounts greater than the amounts authorized in contracts until delivery and 

government acceptance. Due to the probability the contractors will complete their efforts 

Capital Lease Liability Dollars in Millions

2012 – Asset Category

As of September 30

Land and 

Buildings Equipment Other Total

Future Payments Due

2013 $ 17.5 $ 0.1 $ 2.8 $ 20.4

2014 19.6 0.0 1.1 20.7

2015 19.1 0.0 0.0 19.1

2016 10.4 0.0 0.0 10.4

2017 11.7 0.0 0.0 11.7

After 5 Years 126.9 0.0 0.0 126.9

Total Future Lease Payments Due $ 205.2 $ 0.1 $ 3.9 $ 209.2

Less: Imputed Interest Executory Costs 2.9 0.0 0.0 2.9

Net Capital Lease Liability $ 202.3 $ 0.1 $ 3.9 $ 206.3

Capital Lease Liabilities Covered by Budgetary Resources 206.3

Capital Lease Liabilities Not Covered by Budgetary Resources 0.0

Capital Lease Liability Dollars in Millions

2011 – Asset Category

As of September 30

Land and 

Buildings Equipment Other Total

Future Payments Due

2012 $ 46.2 $ 0.1 $ 9.7 $ 56.0

2013 22.8 0.1 2.8 25.7

2014 18.9 0.0 2.6 21.5

2015 18.9 0.0 0.0 18.9

2016 19.1 0.0 0.0 19.1

After 5 Years 138.6 0.0 0.0 138.6

Total Future Lease Payments Due $ 264.5 $ 0.2 $ 15.1 $ 279.8

Less: Imputed Interest Executory Costs 42.1 0.0 0.0 42.1

Net Capital Lease Liability $ 222.4 $ 0.2 $ 15.1 $ 237.7

Capital Lease Liabilities Covered by Budgetary Resources 237.7

Capital Lease Liabilities Not Covered by Budgetary Resources 0.0
Department of Defense Agency Financial Report for FY 2012

Financial Information

112

and deliver satisfactory products, and because the amount of contractor costs incurred but 

yet unpaid are estimable, the Department has recognized a contingent liability for the 

estimated unpaid costs that are considered conditional for payment pending delivery and 

government acceptance.

Total contingent liabilities for progress payments based on cost represent the difference 

between the estimated costs incurred to date by contractors and amounts authorized to be 

paid under progress payments based on cost provisions within the FAR. Estimated 

contractor-incurred costs are calculated by dividing the cumulative unliquidated progress 

payments based on cost by the contract-authorized progress payment rate. The balance of 

unliquidated progress payments based on cost is deducted from the estimated total 

contractor-incurred costs to determine the contingency amount.

NOTE 16. COMMITMENTS AND CONTINGENCIES

Legal Contingencies

The Department is a party in various administrative proceedings and legal actions related to 

claims for environmental damage, equal opportunity matters, and contractual bid protests. 

The Department has accrued contingent liabilities for legal actions where the Office of 

General Counsel (OGC) considers an adverse decision probable and the amount of loss is 

measurable. In the event of an adverse judgment against the Government, some of the 

liabilities may be payable from the U.S. Treasury Judgment Fund. The Department records 

contingent liabilities in Note 15, Other Liabilities.

The Department reports 48 legal actions with individual claims greater than the 

Department’s FY 2012 materiality threshold of $140.3 million. The total of the 48 actions is 

approximately $13.0 trillion. Of this amount, the OGC determined that claims totaling 

approximately $8.6 billion are classified “reasonably possible,” $956.7 billion are classified 

“remote,” and $12.0 trillion are classified “unable to determine the probability of loss.” The 

Department also had a number of potential claims that individually did not meet the 

Department’s materiality threshold but did meet the individual Components’ thresholds. 

These claims are disclosed in the Components' financial statements. 

Other Commitments and Contingencies

The Department is a party in numerous individual contracts that contain clauses, such as 

price escalation, award fee payments, or dispute resolution, that may result in a future 

outflow of expenditures. Currently, the Department has limited automated system 

processes by which it captures or assesses these potential contingent liabilities, therefore,

the amounts reported may not fairly present the Department’s contingent liabilities. 

Contingencies considered both measurable and probable have been recognized as liabilities. 

Refer to Note 15, Other Liabilities, for further information.
Department of Defense Agency Financial Report for FY 2012

Financial Information

113

NOTE 17. MILITARY RETIREMENT AND OTHER FEDERAL EMPLOYMENT

BENEFITS

Military Retirement and Other Federal Employment Benefits Dollars in Millions

2012

As of September 30

Liabilities

(Less: Assets 

Available to Pay 

Benefits)

Unfunded 

Liabilities

Pension and Health Benefits

Military Retirement Pensions $ 1,477,918.0 $ (371,657.5) $ 1,106,260.5

Military Retirement Health 

Benefits 298,216.9 0.0 298,216.9

Military Medicare-Eligible Retiree 

Benefits 532,781.3 (174,703.7) 358,077.6

Total Pension and Health 

Actuarial Benefits $ 2,308,916.2 $ (546,361.2) $ 1,762,555.0

Other Benefits

FECA $ 6,540.8 $ 0.0 $ 6,540.8

Voluntary Separation Incentive 

Programs 678.2 (308.5) 369.7

DoD Education Benefits Fund 1,385.4 (1,385.4) 0.0

Other 6,403.7 (4,666.3) 1,737.4

Total Other Benefits $ 15,008.1 $ (6,360.2) $ 8,647.9

Total Military Retirement and 

Other Federal Employment 

Benefits

$ 2,323,924.3 $ (552,721.4) $ 1,771,202.9

Actuarial Cost Method Used: Aggregate Entry-Age Method 

Assumptions: Effective Interest 

Market Value of Investments in Market-based and Marketable Securities: $807.7 billion

Military Retirement and Other Federal Employment Benefits Dollars in Millions

2011

As of September 30

Liabilities

(Less: Assets 

Available to Pay 

Benefits)

Unfunded 

Liabilities

Pension and Health Actuarial Benefits

Military Retirement Pensions $ 1,360,922.5 $ (368,236.0) $ 992,686.5

Military Retirement Health 

Benefits 305,985.0 0.0 305,985.0

Military Medicare-Eligible Retiree 

Benefits 533,667.7 (184,914.3) 348,753.4

Total Pension and Health 

Actuarial Benefits $ 2,200,575.2 $ (553,150.3) $ 1,647,424.9

Other Actuarial Benefits

FECA $ 6,366.4 $ 0.0 $ 6,366.4

Voluntary Separation Incentive 

Programs 770.1 (348.6) 421.5

DoD Education Benefits Fund 1,773.6 (1,773.6) 0.0

Other 2,874.3 (1,065.8) 1,808.5

Total Other Actuarial Benefits $ 11,784.4 $ (3,188.0) $ 8,596.4

Total Military Retirement and $ 2,212,359.6 $ (556,338.3) $ 1,656,021.3
Department of Defense Agency Financial Report for FY 2012

Financial Information

114

Other Federal Employment 

Benefits

Actuarial Cost Method Used: Aggregate Entry-Age Method 

Assumptions: Effective Interest 

Market Value of Investments in Market-based and Marketable Securities: $662.4 billion

Military Retirement and Other Federal Employment Benefits Dollars in Millions

2012

As of September 30

Military 

Retirement 

Pensions

Military PreMedicare 

Eligible 

Retiree 

Health 

Benefits

Military 

MedicareEligible 

Retiree Health 

Benefits

Voluntary 

Separation 

Incentive 

Programs

DoD 

Education 

Benefits Fund

Beginning Actuarial Liability $ 1,360,922.5 $ 305,985.0 $ 533,667.7 $ 770.1 $ 1,773.6

Normal Cost Liability 30,563.7 10,700.7 10,958.3 0.0 299.0

Interest Cost 64,807.2 15,237.2 26,457.4 27.1 78.2

Plan Amendments 0.0 1,384.1 (33,269.9) 0.0 0.0

Experience Losses (Gains) (3,202.1) (5,611.4) (6,682.4) (14.2) (93.4)

Other factors 0.2 (0.0) 0.1 (0.1) (259.7)

Subtotal: Expenses before 

Losses (Gains) from Actuarial 

Assumption Changes

92,169.0 21,710.6 (2,536.5) 12.8 24.1

Actuarial (Gain)/Loss due to :

Changes in trend assumptions 0.0 (23,958.5) (14,673.9) 0.0 0.0

Changes in assumptions other 

than trend 77,190.2 6,063.8 25,794.6 11.0 0.0

Subtotal: Losses (Gains) from 

Actuarial Assumption Changes 77,190.2 (17,894.7) 11,120.7 11.0 0.0

Total Expenses $ 169,359.2 $ 3,815.9 $ 8,584.2 $ 23.8 $ 24.1

Less Benefit Outlays 52,363.7 11,584,0 9,470.6 115.7 412.3

Total Changes in Actuarial 

Liability $ 116,995.5 $ (7,768.1) $ (886.4) $ (91.9) $ (388.2)

Ending Actuarial Liability $ 1,477,918.0 $ 298,216.9 $ 532,781.3 $ 678.2 $ 1,385.4

The Department complies with SFFAS No. 33, “Pensions, Other Retirement Benefits, and 

Other Postemployment Benefits: Reporting the Gains and Losses from Changes in 

Assumptions and Selecting Discount Rates and Valuation Dates.” The standard requires the 

separate presentation of gains and losses from changes in long-term assumptions used to 

estimate liabilities associated with pensions, other retirement and postemployment benefits. 

The SFFAS No. 33 also provides a standard for selecting the discount rate and valuation 

date used in estimating these liabilities.

Military Retirement Pensions

The Military Retirement Fund is a defined benefit plan authorized by Public Law (PL) 98-94

to provide funds used to pay annuities and pensions to retired military personnel and their 

survivors. The Department of Defense (DoD) Board of Actuaries approves the long-term 

economic assumptions for inflation, salary, and interest. The actuaries calculate the 

actuarial liabilities annually using economic assumptions and actual experience 

(e.g., mortality and retirement rates). Due to reporting deadlines, the current year actuarial 
Department of Defense Agency Financial Report for FY 2012

Financial Information

115

present value of projected plan benefits rolls forward from the prior year’s valuation results. 

The actuaries used the following assumptions to calculate the FY 2012 roll-forward amount:

Military Retirement Pensions Inflation Salary Interest

Fiscal Year 2012 3.6% (actual) 1.6% (actual) 4.8%

Fiscal Year 2013 1.6% (estimated) 1.7% (estimated) 4.6%

Long Term 2.6% 3.0% 4.6%

Actuarial Cost Method Used: Aggregate Entry-Age Normal Method

Market Value of Investments in Market-Based and Marketable Securities: $540.2 billion

Assumed Interest Rate: 4.8 percent

Historically, the initial unfunded liability of the program was amortized over a 50-year 

period. Effective FY 2008, the initial unfunded liability is amortized over a 42-year period to 

ensure the annual payments cover the interest on the unfunded actuarial liability, with the 

last payment expected October 1, 2025. All subsequent gains and losses experienced are 

amortized over a 30-year period. 

MILITARY RETIREMENT HEALTH BENEFITS (MRHB)

The MRHB are post-retirement benefits the Department provides to non-Medicare-eligible 

military retirees and other eligible beneficiaries through private sector health care providers 

and the Department’s medical treatment facilities. The actuaries calculate the actuarial 

liabilities annually using assumptions and actual experience. For the FY 2012 actuarial 

liability calculation, the actuaries used the following assumptions:

MHRB Medical Trend FY 2011 –

FY 2012

Ultimate Rate 

FY 2036

Medicare Inpatient (Direct Care) 1.60% 5.35%

Medicare Outpatient (Direct Care) 2.26% 5.35%

Medicare Prescriptions (Direct Care) 0.00% 5.35%

Non-Medicare Inpatient (Direct Care) 2.00% 5.35%

Non-Medicare Outpatient (Direct Care) 5.00% 5.35%

Non-Medicare Prescriptions (Direct Care) 1.70% 5.35%

Non-Medicare Inpatient (Purchased Care) 4.57% 5.35%

Non-Medicare Outpatient (Purchased Care) 5.34% 5.35%

Non-Medicare Prescriptions (Purchased Care) 5.25% 5.35%

U.S. Family Health Plan (USFHP) (Purchased Care) 4.75% 5.35%

Actuarial Cost Method Used: Aggregate Entry-Age Normal Method

Assumed Interest Rate: 4.6 percent

Medicare-Eligible Retiree Health Care Fund (MERHCF) Benefits 

In accordance with PL 106-398, MERHCF accumulates funds to finance the health care 

program liabilities of Medicare-eligible retirees for all the Uniformed Services and specific 

Medicare-eligible beneficiaries. The DoD Board of Actuaries approves the long-term 

assumptions for medical trends and interest. The actuaries calculate the actuarial liabilities 

annually using actual experience (e.g., mortality and retirement rates, direct care costs, 

purchased care). Due to reporting deadlines, the current year actuarial present value of 

projected plan benefits rolls forward from the prior year’s results. The actuaries used the 
Department of Defense Agency Financial Report for FY 2012

Financial Information

116

following assumptions to calculate the FY 2012 roll-forward amount:

MERHCF Benefits – Medical Trend FY 2011 –

FY 2012

Ultimate Rate 

FY 2036

Medicare Inpatient (Direct Care) 1.60% 5.35%

Medicare Inpatient (Purchased Care) 3.60% 5.35%

Medicare Outpatient (Direct Care) 2.26% 5.35%

Medicare Outpatient (Purchased Care) 3.26% 5.35%

Medicare Prescriptions (Direct Care) 0.00% 5.35%

Medicare Prescriptions (Purchased Care) 4.44% 5.35%

Medicare USFHP (Purchased Care) 3.83% 5.35%

Actuarial Cost Method Used: Aggregate Entry-Age Normal Method

Market Value of Investments in Market-Based and Marketable Securities: $264.8 billion

Assumed Interest Rate: 4.6 percent

The MERHCF liability includes Medicare liabilities for all Uniformed Services. The 

$532.8 billion liability includes $520.7 billion for the Department, $10.8 billion for the 

Coast Guard, $1.2 billion for the Public Health Service and $78.5 million for National Oceanic 

and Atmospheric Administration (NOAA). The FY 2012 contributions from each of the 

Uniformed Services were $10.8 billion from the Department, $261.9 million from the 

Coast Guard, $36.0 million from the Public Health Service, and $1.8 million from NOAA.

Federal Employees Compensation Act (FECA) 

The Department of Labor (DOL) annually determines the liability for future workers’ 

compensation benefits, which includes the expected liability for death, disability, medical, 

and miscellaneous costs for approved compensation cases, plus a component for incurredbut-not-reported claims. The liability is determined using historical benefit payment patterns 

related to a specific incurred period to predict the final payment related to that period. 

Consistent with past practice, these projected annual benefit payments have been 

discounted to present value using the Office of Management and Budget’s economic 

assumptions for 10-year U.S. Treasury notes and bonds. A 2.3 percent interest rate was 

assumed for year one and 3.1 percent for year two and thereafter.

The DOL calculates this liability using wage inflation factors (cost of living adjustments or 

COLAs) and medical inflation factors (consumer price index medical or CPIM). The actual 

rates for these factors for charge back year (CBY) 2012 were also used to adjust the 

methodology’s historical payments to current year constant dollars. The compensation 

COLAs and CPIMs used in the projections for various charge back years were as follows:

Federal Employees – Compensation Act (FECA)

CBY COLA CPIM

2013 2.83% 3.65%

2014 2.03% 3.66%

2015 1.93% 3.72%

2016 2.00% 3.73%

2017+ 2.03% 3.80%
Department of Defense Agency Financial Report for FY 2012

Financial Information

117

The model’s resulting projections were analyzed by DOL to ensure the estimates were 

reliable. The analysis was based on four tests: (1) a sensitivity analysis of the model of 

economic assumptions, (2) a comparison of the percentage change in the liability amount to 

the percentage change in the actual incremental payments, (3) a comparison of the 

incremental paid losses per case (a measure of case-severity) in CBY 2012 to the average 

pattern observed during the prior three charge back years, and (4) a comparison of the 

estimated liability per case in the 2012 projection to the average pattern for the projections 

for the most recent three years.

Voluntary Separation Incentive (VSI) Program 

The VSI Program was established by PL 102-190 to reduce the number of military personnel 

on active duty. The DoD Board of Actuaries approved the assumed annual interest rate of 

3.4 percent used to calculate the actuarial liability. Since VSI is no longer offered, the 

actuarial liability calculated annually is expected to continue to decrease with benefit outlays 

and increase with interest cost. 

Market Value of Investments in Market-based and Marketable Securities: $364.4 million

DoD Education Benefits Fund (EBF)

The EBF was established by PL 98-525 to recruit and retain military members and aid in the 

readjustment of military members to civilian life. The actuaries calculate the actuarial 

liability annually based on the assumed interest rate of 4.0 percent that was approved by 

the DoD Board of Actuaries. 

Market Value of Investments in Market-based and Marketable Securities: $2.3 billion

Other Federal Employment Benefits

Other Federal Employment Benefits primarily consists of accrued pensions and annuities, 

and an estimated liability for incurred-but-not-reported medical claims not processed prior 

to fiscal year end.
Department of Defense Agency Financial Report for FY 2012

Financial Information

118

NOTE 18. GENERAL DISCLOSURES RELATED TO THE STATEMENT OF NET 

COST

Costs and Exchange Revenue Dollars in Millions

As of September 30

2012 Restated

2011

Military Retirement Benefits 

1. Gross Cost

A. Intragovernmental Cost $ 6.1 $ 0.0

B. Non-Federal Cost $ 85,564.3 $ 107,519.8

C. Total Cost $ 85,570.4 $ 107,519.8

2. Earned Revenue

A. Intragovernmental Revenue $ (19,073.3) $ (27,456.7)

B. Non-Federal Revenue $ 0.0 $ 0.0

C. Total Revenue $ (19,073.3) $ (27,456.7)

3. Losses/(Gains) from Actuarial Assumption Changes for Military 

Retirement Benefits $ 88,311.0 $ 12,646.1

Total Net Cost $ 154,808.1 $ 92,709.2

Civil Works

1. Gross Cost

A. Intragovernmental Cost $ 1,435.6 $ 1,466.4

B. Non-Federal Cost $ 9,531.6 $ 12,063.7

C. Total Cost $ 10,967.2 $ 13,530.1

2. Earned Revenue

A. Intragovernmental Revenue $ (1,393.5) $ (1,623.6)

B. Non-Federal Revenue $ (774.1) $ (694.6)

C. Total Revenue $ (2,167.6) $ (2,318.2)

3. Losses/(Gains) from Actuarial Assumption Changes for Military 

Retirement Benefits $ 0.0 $ 0.0

Total Net Cost $ 8.799.6 $ 11,211.9

Military Personnel

1. Gross Cost

A. Intragovernmental Cost $ 38,673.2 $ 35,115.5

B. Non-Federal Cost $ 111,657.3 $ 118,765.9

C. Total Cost $ 150,330.5 $ 153,881.4

2. Earned Revenue

A. Intragovernmental Revenue $ (1,119.5) $ (804.3)

B. Non-Federal Revenue $ (339.1) $ (77.3)

C. Total Revenue $ (1,458.6) $ (881.6)

3. Losses/(Gains) from Actuarial Assumption Changes for Military 

Retirement Benefits $ 0.0 $ 0.0

Total Net Cost $ 148,871.9 $ 152,999.8

Operations, Readiness & Support

1. Gross Cost

A. Intragovernmental Cost $ (56,303.5) $ (55,748.9)

B. Non-Federal Cost $ 352,007.6 $ 370.308.9

C. Total Cost $ 295,704.1 $ 314,560.0

2. Earned Revenue

A. Intragovernmental Revenue $ 13,726.5 $ 11,470.3
Department of Defense Agency Financial Report for FY 2012

Financial Information

119

Costs and Exchange Revenue Dollars in Millions

As of September 30

2012 Restated

2011

B. Non-Federal Revenue $ (48,357.2) $ (73,595.3)

C. Total Revenue $ (34,630.7) $ (62,125.0)

3. Losses/(Gains) from Actuarial Assumption Changes for Military 

Retirement Benefits $ (17,883.7) $ (25,015.9)

Total Net Cost $ 243,189.7 $ 227,419.1

Procurement

1. Gross Cost

A. Intragovernmental Cost $ 30,773.4 $ 29,956.9

B. Non-Federal Cost $ 99,805.4 $ 98,615.9

C. Total Cost $ 130,578.8 $ 128,572.8

2. Earned Revenue

A. Intragovernmental Revenue $ (3,192.3) $ (3,150.6)

B. Non-Federal Revenue $ (305.7) $ (3,015.0)

C. Total Revenue $ (3,498.0) $ (6,165.6)

3. Losses/(Gains) from Actuarial Assumption Changes for Military 

Retirement Benefits $ 0.0 $ 0.0

Total Net Cost $ 127,080.8 $ 122,407.2

Research, Development, Test & Evaluation

1. Gross Cost

A. Intragovernmental Cost $ 22,256.0 $ 22,993.7

B. Non-Federal Cost $ 54,516.6 $ 56,237.2

C. Total Cost $ 76,772.6 $ 79,230.9

2. Earned Revenue

A. Intragovernmental Revenue $ (7,676.9) $ (7,916.6)

B. Non-Federal Revenue $ (1,590.3) $ (251.7)

C. Total Revenue $ (9,267.2) $ (8,168.3)

3. Losses/(Gains) from Actuarial Assumption Changes for Military 

Retirement Benefits $ 0.0 $ 0.0

Total Net Cost $ 67,505.4 $ 71,062.6

Family Housing & Military Construction

1. Gross Cost

A. Intragovernmental Cost $ 2,019.9 $ 1,734.3

B. Non-Federal Cost $ 29,787.6 $ 12,605.9

C. Total Cost $ 31,807.5 $ 14,340.2

2. Earned Revenue

A. Intragovernmental Revenue $ (8,579.0) $ (7,547.4)

B. Non-Federal Revenue $ (4,630.4) $ (377.1)

C. Total Revenue $ (13,209.4) $ (7,924.5)

3. Losses/(Gains) from Actuarial Assumption Changes for Military 

Retirement Benefits $ 0.0 $ 0.0

Total Net Cost $ 18,598.1 $ 6,415.7

Consolidated

1. Gross Cost

A. Intragovernmental Cost $ 38,860.7 $ 35,517.9

B. Non-Federal Cost $ 742,870.4 $ 776,117.3

C. Total Cost $ 781,731.1 $ 811,635.2
Department of Defense Agency Financial Report for FY 2012

Financial Information

120

Costs and Exchange Revenue Dollars in Millions

As of September 30

2012 Restated

2011

2. Earned Revenue

A. Intragovernmental Revenue $ (27,308.0) $ (37,028.9)

B. Non-Federal Revenue $ (55,996.8) $ (78,011.0)

C. Total Revenue $ (83,304.8) $ (115,039.9)

3. Losses/(Gains) from Actuarial Assumption Changes for Military 

Retirement Benefits $ 70,427.3 $ (12,369.8)

4. Costs Not Assigned to Programs $ 0.0 $ 0.0

5. (Less: Earned Revenues) Not Attributed to Programs $ 0.0 $ 0.0

Total Net Cost $ 768,853.6 $ 684,225.5

Abnormal Balances

Operations, Readiness & Support Intragovernmental Gross Cost on the SNC has an 

abnormal balance of $56.3 billion. The current business practice is to include elimination 

reporting in this program group.

Operations, Readiness & Support Intragovernmental Earned Revenue on the SNC has an 

abnormal balance of $13.7 billion. The current business practice is to include elimination 

reporting in this program group.

Earned Revenue includes an abnormal balance of $93.7 million in USSGL account 5909

(Contra Revenue for Other Revenue). During FY 2012, the prior year deferred revenue 

balance was reversed and the current year recorded. The prior year deferred revenue was 

greater than the current year causing the abnormal balance. 

Restatements

The Department identified an understatement of General Property, Plant and Equipment. 

This correction increased the FY 2011 net cost by $72.2 million. This prior period 

adjustment is reflected in the schedule above as non-Federal Gross Cost in Procurement; 

Research, Development, Test and Evaluation. See Note 26, Restatements, for additional 

information.

Other Disclosures

The SNC represents the net cost of programs and organizations of the Department that are 

supported by appropriations or other means. The intent of the SNC is to provide gross and 

net cost information related to the amount of output or outcome for a given program or 

organization administered by a responsible reporting entity. The Department’s current 

processes and systems capture costs based on appropriation groups as presented in the 

schedule above. The lower level costs for major programs are not presented as required by 

the Government Performance and Results Act. The Department is in the process of 

reviewing available data and developing a cost reporting methodology as required by the 

Statement of Federal Financial Accounting Standards (SFFAS) No. 4, “Managerial Cost 

Accounting Concepts and Standards for the Federal Government”, as amended by 

SFFAS No. 30, “Inter-Entity Cost Implementation”.
Department of Defense Agency Financial Report for FY 2012

Financial Information

121

Intragovernmental costs and revenue represent transactions made between two reporting 

entities within the Federal Government. Public costs and revenues are exchange 

transactions made between the reporting entity and a non-Federal entity. 

The Department’s systems do not track intragovernmental transactions by customer at the 

transaction level. Buyer side expenses are adjusted to agree with internal seller side 

revenues. Expenses are generally adjusted by reclassifying amounts between Federal and 

non-Federal expenses. Intradepartmental revenues and expenses are then eliminated.

The SNC presents information based on budgetary obligation, disbursement, and collection 

transactions, as well as data from nonfinancial feeder systems. Amounts are adjusted for 

accruals, such as payroll expenses, accounts payable, and environmental liabilities. The 

General Fund data is primarily derived from budgetary transactions (obligations, 

disbursements, and collections), data from nonfinancial feeder systems, and accruals made 

for major items. While Working Capital Funds primarily record transactions on an accrual 

basis, the systems do not always capture actual costs in a timely manner. 

The Department’s accounting systems generally do not capture information relative to 

heritage assets separately and distinctly from normal operations.

The Department implemented SFFAS No. 33, “Pensions, Other Retirement Benefits, and 

Other Postemployment Benefits: Reporting the Gains and Losses from Changes in 

Assumptions and Selecting Discount Rates and Valuation Dates”. The standard requires the 

separate presentation of gains and losses from changes in long term assumptions used to 

estimate liabilities associated with pensions, other retirement benefits, and other 

postemployment benefits on the SNC. The SFFAS No. 33 also provides a standard for 

selecting the discount rate and valuation date used in estimating these liabilities.

During FY 2011, based on SFFAS No. 33, the Department included all costs associated with 

the change in the actuarial liabilities for military retirement in “Losses/(Gains) from 

Actuarial Assumption Changes”. During FY 2012, the Department of Treasury and the

Government Accountability Office provided additional guidance which specified only trend 

and other assumption changes should be recorded as “Losses/(Gains) from Actuarial 

Assumption Changes”. To ensure comparability, the FY 2011 column on the Statement of

Net Cost has been updated to reflect the additional guidance. As a result, there may be

inconsistencies between the FY 2011 column and the FY 2011 published statements.

NOTE 19. DISCLOSURES RELATED TO THE STATEMENT OF CHANGES IN NET 

POSITION

Abnormal Balances

Net Cost of Operations includes an abnormal balance of $93.7 million in USSGL 

account 5909 (Contra Revenue for Other Revenue). During FY 2012, the prior year deferred 

revenue balance was reversed in the current year and the current year deferred revenue 

was recorded. The prior year deferred revenue was more than the current year deferred 

revenue causing this account balance to be abnormal.

Nonexchange Revenue includes an abnormal balance of $26.4 million in USSGL 

account 5320 (Penalties and Fines Revenue). During 4th Quarter, FY 2012, penalties 
Department of Defense Agency Financial Report for FY 2012

Financial Information

122

previously recorded for the Cerrillos Dam long term water storage contract at the 

Jacksonville District were reversed as the cost share agreement did not allow for penalties.

Other Financing Sources, Other – Earmarked Funds on the Statement of Changes in Net 

Position include an abnormal balance of $21.8 million in USSGL account 5791 (Adjustment 

to Financing Sources - Downward Reestimate or Negative Subsidy). This account is offset by 

a corresponding entry in the non-earmarked direct loan program account. 

Restatements

The Department corrected a $1.0 billion understatement of General Property, Plant and 

Equipment to align the accounting records with the property accountability system and a 

$955.1 million overstatement of Other Assets (With the Public). Refer to Note 26, 

Restatements, for further information.

Other Disclosures

Other Financing Sources, Other consists primarily of nonexchange gains and losses 

necessary to reconcile the proprietary and budgetary amounts, as well as gains and losses 

on disposition of assets. Due to financial system limitations, the Department adjusts for 

these unreconciled differences.

Earmarked Cumulative Results of Operations ending balance on the Statement of Changes 

in Net Position (SCNP) does not agree with the Earmarked Cumulative Results reported on 

the Balance Sheet because the cumulative results on the Balance Sheet are presented net 

of eliminations. In the SCNP, all offsetting balances (e.g., transfers-in and transfers-out,

revenues and expenses) for intraentity activity between Earmarked Funds and All Other 

Funds are reported on the same lines. The Eliminations column contains all appropriate 

elimination entries, which net to zero within each respective line, except for intraentity 

imputed financing costs. 

Appropriations Received on the SCNP does not agree with Appropriations on the Statement 

of Budgetary Resources (SBR) by $55.4 billion. This difference represents $125.3 billion in 

trust and special fund receipts reported as exchange revenue on the Statement of Net Cost 

and included in appropriations on the SBR, offset by $60.5 billion in receipts and 

appropriations temporarily precluded from obligation, $8.5 billion in permanent reductions, 

and $0.9 billion in receipts and appropriations temporarily precluded from obligations and 

current year authority transfers. In order to preserve visibility with the President’s Budget, 

these appropriations are effectively reported twice on the SBR. They are reported once by 

the Military Departments and Defense Agencies as appropriated and once by the individual 

trust funds as receipts. Refer to Note 20, Disclosures Related to the SBR, for further 

information.
Department of Defense Agency Financial Report for FY 2012

Financial Information

123

NOTE 20. DISCLOSURES RELATED TO THE STATEMENT OF BUDGETARY 

RESOURCES

Disclosures Related to the Statement of Budgetary Resources Dollars in Millions

As of September 30

2012 Restated 

2011

Net Amount of Budgetary Resources Obligated for Undelivered Orders at 

the End of the Period. $ 486,886.1 $ 477,099.3

Restatements

The Department corrected a $955.1 million overstatement impacting the Net Amount of 

Budgetary Resources Obligated for Undelivered Orders at the End of the Period. Refer to 

Note 26, Restatements, for further information.

Reconciliation Differences

Appropriations on the SBR exceed Appropriations Received on the Statement of Changes in 

Net Position by $55.4 billion. This difference represents $125.3 billion in trust and special 

fund receipts reported as exchange revenue on the Statement of Net Cost and included in 

appropriations on the SBR, offset by $60.5 billion in receipts and appropriations temporarily 

precluded from obligation, $8.5 billion in permanent reductions, and $0.9 billion in receipts 

unavailable for obligation upon collection and current year authority transfers. In 

accordance with OMB guidance, $109.9 billion of General Fund appropriations received by 

the Department are also recognized on the SBR as appropriations received for trust and 

special funds. The difference is primarily due to duplicate reporting in the SBR of the Military 

Services’ contributions and U.S. Treasury’s payments to the Military Retirement Trust Fund 

and the Department of Defense Medicare-Eligible Retiree Health Care Fund. 

The SBR FY 2011 column includes $108.5 billion more in budget authority than reported in 

the 2011 actual column of the President’s FY 2013 Budget. The difference is primarily due to 

duplicate reporting in the SBR of the Military Services’ contributions and U.S. Treasury’s 

payments to the Military Retirement Trust Fund and the Department of Defense MedicareEligible Retiree Health Care Fund.

The SBR FY 2011 column includes $66.3 million less in obligations than reported in the 2011 

actual column of the President's FY 2013 Budget. The difference is primarily due to the 

timing of the recognition of obligations.

The SBR FY 2011 column includes $83.2 billion less in net outlays than reported in the 2011 

actual column of the President’s FY 2013 Budget. The SBR reduces net outlays by the 

distributed offsetting receipts. The President’s Budget does not reduce the Department’s 

outlays by the distributed offsetting receipts.

Permanent Indefinite Appropriations

The Department of Defense (DoD) received the following permanent indefinite 

appropriations: 

Department of the Army General Gift Fund (10 USC 2601(C)(1))

Department of the Navy General Gift Fund (10 USC 2601(C)(2))
Department of Defense Agency Financial Report for FY 2012

Financial Information

124

Department of the Air Force General Gift Fund (10 USC 2601 (C)(3))

Department of Defense General Gift Fund (10 USC 2601)

Disposal of Department of Defense Real Property (40 USC 485(h)(2)(A)(B))

Lease of Department of Defense Real Property (40 USC 485(h)(2)(A)(B))

Foreign National Employees Separation Pay Account, Defense (10 USC 1581)

United States Naval Academy Gift and Museum Fund (10 USC 6973-4)

Ship Stores Profits, Navy (10 USC 7220, 31 USC 1321)

Burdensharing Contributions (10 USC 2350j) 

Forest Program (10 USC 2665) 

Medicare Eligible Retiree Health Care Fund (10 USC 1111)

Military Retirement Fund (10 USC 1461)

Education Benefits Fund (10 USC 2006)

Host Nation Support for U.S. Relocation Activities (10 USC 2350k)

Hydraulic Mining Debris Reservoir (33 USC 683)

Maintenance and Operation of Dams and Other Improvements of Navigable Waters 

(16 USC 810(a))

Payments to States (33 USC 701c-3)

Wildlife Conservation (16 USC 670-670(f))

Ainsworth Bequest (31 USC 1321)

DoD Family Housing Improvement Fund (10 USC 2883 (a))

DoD Military Unaccompanied Housing Improvement Fund (10 USC 2883 (a))

Voluntary Separation Incentive Fund (10 USC 1175(h))

Rivers & Harbors Contributed Funds (33 USC 560, 701h)

Concurrent Receipt Accrual Payments to the Military Retirement Fund 10 USC 1466(b)(1)

Rocky Mountain Arsenal, Restoration (100 Statute, 4003 SEC 1367)

DoD Family Housing Improvement Fund, Direct Loan, Financing Account (2 USC 661d)

DoD Family Housing Improvement Fund, Guaranteed Loan, Financing Account (2 USC 661d)

Homeowners Assistance Fund (10 USC 4551-4555; 42 USC 3374(d), Title United States 

Code; Public Law 111-5)

Payments to Military Retirement Fund, Defense (10 USC, 1466)

Payment to Department of Defense Medicare-Eligible Retiree Health Care Fund 

(10 USC 1116(a))
Department of Defense Agency Financial Report for FY 2012

Financial Information

125

ARMS Initiative, Guaranteed Loan Financing Account, Army (10 USC 2501, 

10 USC 4551-4555)

Medicare-Eligible Retiree Health Fund Contribution, Navy (10 USC 1116)

Medicare-Eligible Retiree Health Fund Contribution, Marine Corps (10 USC 1116)

Medicare-Eligible Retiree Health Fund Contribution, Reserve Personnel, Navy (10 USC 1116)

Medicare-Eligible Retiree Health Fund Contribution, Reserve Personnel, Marine Corps 

(10 USC 1116)

Medicare-Eligible Retiree Health Fund Contribution, Army (10 USC 1116)

Medicare-Eligible Retiree Health Fund Contribution, Reserve Personnel, Army (10 USC 1116)

Medicare-Eligible Retiree Health Fund Contribution, National Guard Personnel, Army 

(10 USC 1116)

Medicare-Eligible Retiree Health Fund Contribution, Air Force (10 USC 1116)

Medicare-Eligible Retiree Health Fund Contribution, Reserve Personnel, Air Force 

(10 USC 1116)

Medicare-Eligible Retiree Health Fund Contribution, National Guard Personnel, Air Force 

(10 USC 1116)

Department of Defense Vietnam War Commemoration Fund, Defense (P.L. 110-181, 

122 Stat. 141 (Sec. 598))

The above permanent indefinite appropriations cover a wide variety of purposes to help the 

Department accomplish its missions. These purposes include: (1) military retirees’ health 

care benefits, retirement and survivor pay, and education benefits for veterans; (2) wildlife 

habitat restoration and water resources maintenance; (3) relocation of armed forces within 

a host nation; (4) separation payments for foreign nationals; and (5) upkeep of libraries 

and museums.

Apportionment Categories for Obligations incurred

The Department reported the following amounts of direct obligations: (1) $503.4 billion in 

category A; (2) $222.3 billion in category B; and (3) $130.7 billion in exempt from 

apportionment. The Department reported reimbursable obligations of: (1) $27.1 billion in 

category A and (2) $175.5 billion in category B. Category A relates to appropriations for a

specific period of time (e.g., Military Personnel appropriation), and category B relates to 

appropriations for a specific project (e.g., Military Construction appropriation).

Legal Arrangements Affecting the Use of Unobligated Balances

A portion of the Department’s unobligated balances represent trust fund receipts collected in 

the current fiscal year that exceed the amount needed to pay benefits or other valid obligations. 

These receipts are temporarily precluded from obligation by law due to a benefit formula or 

other limitation. The receipts, however, are assets of the funds and are available for obligation 

as needed in the future. The Department operates within the constraints of fiscal law and has 

no additional legal arrangements affecting the use of unobligated balances.
Department of Defense Agency Financial Report for FY 2012

Financial Information

126

Other Disclosures

The SBR includes intraentity transactions because the statements are presented as 

combined.

The Department utilizes borrowing authority for the Military Housing Privatization Initiative 

and the Armament Retooling and Manufacturing Support Initiative. Borrowing authority is 

used in accordance with OMB Circular A-129, “Managing Federal Credit Programs.” 

The Department received additional funding of $115.1 billion to cover obligations incurred 

above baseline operations in support of contingency operations.

NOTE 21. RECONCILIATION OF NET COST OF OPERATIONS TO BUDGET

Reconciliation of Net Cost of Operations to Budget Dollars in Millions

As of September 30

2012 Restated 

2011

Resources Used to Finance Activities

Budgetary Resources Obligated:

Obligations incurred $ 1,059,305.0 $ 1,069,545.0

Less: Spending authority from offsetting collections and recoveries (-) (258,964.9) (252,444.2)

Obligations net of offsetting collections and recoveries $ 800,340.1 $ 817,100.8

Less: Offsetting receipts (-) (79,238.4) (83,198.6)

Net obligations $ 721,101.7 $ 733,902.2

Other Resources:

Donations and forfeitures of property $ 37.5 $ 7.6

Transfers in/out without reimbursement (+/-) 66.1 (147.4)

Imputed financing from costs absorbed by others 5,048.1 5,623.9

Other (+/-) (10,465.7) 1,812.3

Net other resources used to finance activities $ (5,314.0) $ 7,296.4

Total resources used to finance activities $ 715,787.7 $ 741,198.6

Resources Used to Finance Items not Part of the Net Cost of Operations

Change in budgetary resources obligated for goods, services and 

benefits ordered but not yet provided:

Undelivered Orders (-) $ (16,379.3) $ (9,125.9)

Unfilled Customer Orders 3,715.0 3,691.4

Resources that fund expenses recognized in prior Periods (-) (19,822.5) (74,469.2)

Budgetary offsetting collections and receipts that do not affect Net Cost of 

Operations 966,1 2,507.9

Resources that finance the acquisition of assets (-) $ (105,865.0) $ (128,667.3)

Other resources or adjustments to net obligated resources that do not 

affect Net Cost of Operations:

Less: Trust or Special Fund Receipts Related to exchange in the 

Entity’s Budget (-) $ 0.0 $ 0.0

Other (+/-) 10,323.4 (1,672.7)

Total resources used to finance items not part of the Net Cost of 

Operations $ (127,062.3) $ (207,735.8)

Total resources used to finance the Net Cost of Operations $ 588,725.4 $ 533,462.8

Components of the Net Cost of Operations that will not Require or Generate Resources in the Current 

Period

Components Requiring or Generating Resources in Future Period:
Department of Defense Agency Financial Report for FY 2012

Financial Information

127

Reconciliation of Net Cost of Operations to Budget Dollars in Millions

As of September 30

2012 Restated 

2011

Increase in annual leave liability $ 253.6 $ 363.7

Increase in environmental and disposal liability 657.2 3,667.8

Upward/Downward reestimates of credit subsidy expense (+/-) (12.0) 8.3

Increase in exchange revenue receivable from the public (-) 84.6 (552.3)

Other (+/-) 124,388.8 112,105.1

Total components of Net Cost of Operations that will Require or 

Generate Resources in future periods $ 125,372.2 $ 115,592.6

Components not Requiring or Generating Resources:

Depreciation and amortization $ 47,978.8 $ 55,937.5

Revaluation of assets or liabilities (+/-) 2,693.3 (8,286.9)

Other (+/-)

Trust Fund Exchange Revenue (50,977.7) (55,336.7)

Cost of Goods Sold 78,140.6 72,938.9

Operating Materiel and Supplies Used 27,873.0 33,442.2

Other (50,952.0) (63,524.9)

Total Components of Net Cost of Operations that will not Require or 

Generate Resources $ 54,756.0 $ 35,170.1

Total components of Net Cost of Operations that will not Require or 

Generate Resources in the current period $ 180,128.2 $ 150,762.7

Net Cost of Operations $ 768,853.6 $ 684,225.5

Abnormal Balance

Budgetary Resources Obligated, Other and Other Resources or Adjustments to Net 

Obligated Resources that do not Affect Net Cost of Operations, Other include an abnormal 

balance of $21.8 million in USSGL account 5791 (Adjustment to Financing Sources -

Downward Reestimate or Negative Subsidy). This account is offset by a corresponding entry 

in the non-earmarked direct loan program account.

Restatements

The Department corrected a $955.1 million understatement of undelivered orders and 

Resources that finance the acquisition of assets, and a $72.2 million understatement of 

Depreciation and amortization to align the accounting records to the property accountability 

system. These corrections resulted in a $72.2 million increase in Net Cost of Operations. 

Refer to Note 26, Restatements, for further information.

Other Disclosures

Due to the Department’s financial system limitations, budgetary data does not agree with 

proprietary expenses and capitalized assets. The difference between budgetary and 

proprietary data is a previously identified deficiency. The following adjustments (absolute 

value) were made to balance the Reconciliation of Net Cost of Operations to the Statement 

of Net Cost:
Department of Defense Agency Financial Report for FY 2012

Financial Information

128

Dollars in Millions

Resources that Finance the Acquisition of Assets $ 9,385.7

Other Components not Requiring or Generating Resources $ 2.8

Total Amount $ 9,388.5

The following Reconciliation of Net Cost of Operations to Budget lines are presented as 

combined instead of consolidated due to intraagency budgetary transactions not being 

eliminated:

• Obligations Incurred

• Less: Spending Authority from Offsetting Collections and Recoveries

• Obligations Net of Offsetting Collections and Recoveries

• Less: Offsetting Receipts

• Net Obligations

• Undelivered Orders

• Unfilled Customer Orders

Other Resources, Other primarily consists of nonexchange gains and losses necessary to

reconcile the proprietary and budgetary amounts, as well as gains and losses on disposition 

of assets. 

Other Resources or Adjustments to Net Obligated Resources that Do Not Affect Net Cost of 

Operations, Other primarily consists of nonexchange gains and losses necessary to reconcile 

the proprietary and budgetary amounts, financing sources transferred in and out without 

reimbursement, and gains and losses from disposition of assets.

Components Requiring or Generating Resources in Future Period, Other consists primarily of 

future funded expenses.

Components not Requiring or Generating Resources, Other primarily consists of cost 

capitalization offsets and other expenses not requiring budgetary resources.

NOTE 22. DISCLOSURES RELATED TO INCIDENTAL CUSTODIAL 

COLLECTIONS

The Department collected $6.3 million of incidental custodial revenues generated primarily 

from forfeitures of unclaimed money and property. These funds are not available for use by 

the Department. At the end of each fiscal year, the accounts are closed and the balances 

are rendered to the U.S. Treasury.
Department of Defense Agency Financial Report for FY 2012

Financial Information

129

NOTE 23. EARMARKED FUNDS

Earmarked Funds Dollars in Millions

2012

As of September 30

Military 

Retirement 

Fund

Medicare 

Eligible 

Retiree Health 

Care Fund

Other 

Earmarked 

Funds

Eliminations Total

Balance Sheet

Assets

Fund balance with Treasury $ 23.0 $ 162.3 $ 2,973.7 $ 0.0 $ 3,159.0

Investments 427,867.4 203,341.5 10,329.9 0.0 641,538.8

Accounts and Interest Receivable 67.0 1,004.3 1,619.0 (8.7) 2,681.6

Other Assets 0.0 2.3 1,346.3 0.0 1,348.6

Total Assets $ 427,957.4 $ 204,510.4 $ 16,268.9 $ (8.7) $ 648,728.0

Liabilities and Net Position

Military Retirement Benefits and 

Other Federal Employment Benefits $ 1,481,969.9 $ 533,392.4 $ 2,063.7 $ 0.0 $ 2,017,426.0

Other Liabilities 2.0 555.1 2,530.0 (150.6) 2,936.5

Total Liabilities $ 1,481,971.9 $ 533,947.5 $ 4,593.7 $ (150.6) $ 2,020,362.5

Unexpended Appropriations $ 0.0 $ 0.0 $ 295.6 $ 0.0 $ 295.6

Cumulative Results of Operations (1,054,014.5) $ (329,437.1) $ 11,379.6 $ (105,721.5) $ (1,477,793.5)

Total Liabilities and Net Position $ 427,957.4 $ 204,510.4 $ 16,268.9 $ (105,872.1) $ 542,864.6

Statement of Net Cost

Program Costs $ 169,471.1 $ 7,304.5 $ 1,572.8 $ (3,004.9) $ 175,343.5

Less Earned Revenue (104,506.2) (24,118.7) (1,355.5) 109,791.0 (20,189.4)

Net Program Costs 64,964.9 (16,814.2) 217.3 106,786.1 155,154.1

Net Cost of Operations $ 64,964.9 $ (16,814.2) $ 217.3 $ 106,786.1 $ 155,154.1

Statement of Changes in Net Position

Net Position Beginning of the 

Period $ (989,049.6) $ (346,251.3) $ 9,788.5 $ 0.0 $ (1,325,512.4)

Net Cost of Operations 64,964.9 (16,814.2) 217.3 106,786.1 155,154.1

Budgetary Financing Sources 0.0 0.0 2,243.0 991.9 3,234.9

Other Financing Sources 0.0 0.0 (139.0) 72.7 (66.3)

Change in Net Position $ (64,964.9) $ 16,814.2 $ 1,886.7 $ (105,721.5) $ (151,985.5)

Net Position End of Period $ (1,054,014.5) $ (329,437.1) $ 11,675.2 $ (105,721.5) $ (1,477,497.9)
Department of Defense Agency Financial Report for FY 2012

Financial Information

130

Earmarked Funds Dollars in Millions

2011

As of September 30

Military 

Retirement 

Fund

Medicare 

Eligible 

Retiree Health 

Care Fund

Other 

Earmarked 

Funds

Eliminations Total

Balance Sheet

Assets

Fund balance with Treasury $ 370.3 $ 227.2 $ 2,730.6 $ 0.0 $ 3,328.1

Investments 371,616.3 187,826.1 9,899.7 0.0 569,342.1

Accounts and Interest Receivable 233.5 498.0 1,415.6 (201.5) 1,945.6

Other Assets 0.0 0.0 1,398.9 0.0 1,398.9

Total Assets $ 372,220.1 $ 188,551.3 $ 15,444.8 $ (201.5) $ 576,014.7

Liabilities and Net Position

Military Retirement Benefits and 

Other Federal Employment Benefits $ 1,361,267.8 $ 534,379.7 $ 2,543.7 $ 0.0 $ 1,898,191..2

Other Liabilities 1.9 422.9 3,112.6 (120.6) 3,416.8

Total Liabilities $ 1,361,269.7 $ 534,802.6 $ 5,656.3 $ (120.6) $ 1,901,608.0

Unexpended Appropriations $ 0.0 $ 0.0 $ 134.6 $ 0.0 $ 134.6

Cumulative Results of Operations (989,049.6) (346,251.3) 9,653.9 (104,626.8) (1,430,273.8)

Total Liabilities and Net Position $ 372,220.1 $ 188,551.3 $ 15,444.8 $ (104,747.4) $ 471,468.8

Statement of Net Cost

Program Costs $ 153,446.3 $ (30,507.5) $ 2,939.4 $ (2,863.1) $ 123,015.1

Less Earned Revenue (105,322.4) (30,253.8) (1,327.8) 108,427.4 (28,476.6)

Net Program Costs 48,123.9 (60,761.3) 1,611.6 105,564.3 94,538.5

Net Cost of Operations $ 48,123.9 $ (60,761.3) $ 1,611.6 $ 105,564.3 $ 94,538.5

Statement of Changes in Net Position

Net Position Beginning of the 

Period $ (940,925.7) $ (407,012.6) $ 9,522.3 $ 0.0 $ (1,338,416.0)

Net Cost of Operations 48,123.9 (60,761.3) 1,611.6 105,564.3 94,538.5

Budgetary Financing Sources 0.0 0.0 1,934.4 922.7 2,857.1

Other Financing Sources 0.0 0.0 (56.6) 14.8 (41.8)

Change in Net Position $ (48,123.9) $ 60,761.3 $ 266.2 $ (104,626.8) $ (91,723.2)

Net Position End of Period $ (989,049.6) $ (346,251.3) $ 9,788.5 $ (104,626.8) $ (1,430,139.2)
Department of Defense Agency Financial Report for FY 2012

Financial Information

131

Abnormal Balances

Other Financing Sources on the Statement of Changes in Net Position include an abnormal 

balance of $21.8 million in USSGL account 5791 (Adjustment to Financing Sources –

Downward Reestimate or Negative Subsidy). This account is offset by a corresponding entry 

in the non-earmarked direct loan program account.

Cumulative Results of Operations/Net Cost of Operations include an abnormal balance of 

$93.7 million in USSGL account 5909, Contra Revenue for Other Revenue. During FY 2012, 

the prior year deferred revenue balance was reversed and the current year deferred 

revenue recorded. The prior year deferred revenue was greater than the current year 

causing the abnormal balance.

Other Disclosures

The SFFAS No. 27, “Identifying and Reporting Earmarked Funds,” requires the disclosure of 

Earmarked Funds separate from All Other Funds on the SCNP and Balance Sheet. Funds 

must meet three criteria to be classified as earmarked: (1) a statute committing use of 

specifically-identified revenues for designated purposes, (2) explicit authority to retain the 

revenues, and (3) a requirement to account and report on the revenues. The Department’s 

earmarked funds are either special or trust funds and use both receipt and expenditure 

accounts to report activity to the U.S. Treasury. There have been no changes in legislation 

that significantly changed the purposes of the funds.

The SFFAS No. 27 also requires the presentation of gross amounts of Earmarked Funds 

separate from All Other (nonearmarked) Funds. Cumulative Results of Operations ending 

balances for Earmarked Funds on the SCNP do not agree with the Cumulative Results of 

Operations for Earmarked Funds reported on the Balance Sheet because the Cumulative 

Results of Operations on the Balance Sheet are presented net of eliminations, whereas the 

SCNP presents gross Cumulative Results of Operations. 

The Total column is shown as consolidated and relates only to Earmarked Funds. The 

Eliminations column includes eliminations associated with Earmarked Funds and excludes 

the offsetting eliminations from All Other Funds. This exclusion causes assets to not equal 

liabilities and net position in the note. However, the amounts in the Total column equal the 

amounts reported for Earmarked Funds on the Balance Sheet.

Military Retirement Fund (MRF), 10 United States Code (USC) 1461. The MRF 

accumulates funds in order to finance, on an actuarially sound basis, the liabilities of the 

Department’s military retirement and survivor benefit programs. Financing sources for the 

MRF are interest earnings on Fund assets, monthly Department contributions, and annual 

contributions from the U.S. Treasury. The monthly Department contributions are calculated 

as a percentage of basic pay. The contribution from the U.S. Treasury represents the 

amortization of the unfunded liability for service performed prior to October 1, 1984, plus 

the amortization of actuarial gains and losses that have arisen since then. The U.S. Treasury 

annual contribution also includes the normal cost amount for the concurrent receipt 

provisions of the FY 2004 National Defense Authorization Act.

Medicare-Eligible Retiree Health Care Fund (MERHCF), 10 USC 1111. The MERHCF 

accumulates funds to finance, on an actuarially sound basis, liabilities of the Department 
Department of Defense Agency Financial Report for FY 2012

Financial Information

132

and the uniformed services health care programs for qualified Medicare-eligible 

beneficiaries. Financing sources for MERHCF are provided primarily through an annual 

actuarial liability payment from the U.S. Treasury, annual contributions from each 

Uniformed Service (Army, Navy, Air Force, Marine Corps, U.S. Coast Guard, National 

Oceanic and Atmospheric Administration, and U.S. Public Health Service) and interest 

earned from the Fund’s investments. 

Other Earmarked Funds

Special Recreation Use Fees, 16 USC 4061-6a note. The United States Army Corps of 

Engineers (USACE) is granted the authority to charge and collect fair and equitable Special 

Recreation Use Fees at campgrounds located at lakes or reservoirs that are under the 

jurisdiction of USACE. Types of allowable fees include daily use fees, admission fees, 

recreational fees, annual pass fees, and other permit type fees. The receipts are used for 

the operation and maintenance of the recreational sites.

Hydraulic Mining in California, Debris, 33 USC 683. Operators of hydraulic mines 

through which debris flows in part or in whole to a body restrained by a dam or other work 

erected by the California Debris Commission are required to pay an annual tax as 

determined by the Commission. Taxes imposed under this code are collected and expended 

under the supervision of USACE and the direction of the Department of the Army. The funds 

are used for repayment of funds advanced by the Federal government or other agencies for 

construction, restraining works, settling reservoirs, and maintenance. 

Payments to States, Flood Control Act of 1954, 33 USC 701c-3. Seventy-five percent 

of all funds received and deposited from the leasing of lands acquired by the United States 

for flood control, navigation, and allied purposes (including the development of hydroelectric 

power) are returned to the state in which the property is located. USACE collects lease 

receipts into a receipt account. Funds are appropriated for the amount of receipts the 

following fiscal year. The funds may be expended by the states for the benefit of public 

schools and public roads of the counties in which such property is situated, or for defraying 

any of the expenses of county government.

Maintenance and Operation of Dams and Other Improvements of Navigable 

Waters, 16 USC 803(f) and 810. When a reservoir or other improvement is constructed 

by the U.S., the Federal Energy Regulatory Commission (FERC) assesses charges against 

licensees directly benefited. The statute requires all proceeds from any Indian reservation 

be placed to the credit of the Indians of the reservation. All other charges arising from 

licenses, except those charges established by the FERC for administrative reimbursement, 

are paid to the U.S. Treasury and allocated for specific uses. The Army is allocated 

50 percent of charges from all licenses, except licenses for the occupancy and use of public 

lands and national forests. These funds are deposited in a special fund and used for 

maintenance, operation, and improvement of dams and other navigation structures that are 

owned by the United States, or in construction, maintenance, or operation of headwater, or 

other improvements to navigable waters of the United States. 

Fund for Non-Federal Use of Disposal Facilities (for dredged material), 

33 USC 2326. Any dredged material disposal facility under the jurisdiction of, or managed 

by, the Secretary of the Army may be used by a non-Federal interest if the Secretary 
Department of Defense Agency Financial Report for FY 2012

Financial Information

133

determines that such use will not reduce the availability of the facility for project purposes. 

Fees may be imposed to recover capital, operation, and maintenance costs associated with 

such use. Any monies received through collection of fees under this law shall be available 

to, and used by, the Secretary of the Army for the operation and maintenance of the 

disposal facility from which the fees were collected. 

Coastal Wetlands Restoration Trust Fund and Costal Wetlands Planning, 

Protection, and Restoration Act, 16 USC 3951-3956. USACE (along with the 

Environmental Protection Agency, and the Fish and Wildlife Service) is granted the authority 

to work with the State of Louisiana to develop, review, evaluate, and approve a plan to 

achieve a goal of “no net loss of wetlands” in coastal Louisiana. USACE is also responsible 

for allocating funds among the named task force members. Federal contributions are 

established at 75 percent of project costs or 85 percent if the state has an approved Coastal 

Wetlands Conservation Plan.

Rivers and Harbors Contributed and Advance Funds, 33 USC 701h, 702f, and 703.

Whenever any state or political subdivision offers to advance funds for a flood control 

project duly adopted and authorized by law, the Secretary of the Army may, in his 

discretion, receive such funds and expend them in the immediate prosecution of such work. 

The funding may be used to construct, improve, and maintain levees, water outlets, flood 

control, debris removal, rectification and enlargement of river channels, etc. in the course of 

flood control and river and harbor maintenance. 

Inland Waterways Trust Fund, 26 USC 9506. This law made the Inland Waterways 

Trust Fund available for USACE expenditures for navigation, construction, and rehabilitation 

projects on inland waterways. Collections for excise taxes from the public are made into the 

Trust Fund. The collections are invested and investment activity is managed by the BPD. 

The BPD purchases and redeems nonmarketable market-based securities. Investments 

include one-day certificates, bonds, and notes. 

Harbor Maintenance Trust Fund, 26 USC 9505. The USACE Civil Works mission is 

funded by the Energy and Water Development Appropriations Act. The Water Resources 

Development Act of 1986 covers a portion of USACE operations and maintenance costs for 

deep draft navigation. The Harbor Maintenance Trust Fund is available for making 

expenditures to carry out the functions specified in the Act and for the payment of all 

expenses of administration incurred by the U.S. Treasury, USACE, and the Department of 

Commerce. Collections are made into the Trust Fund from taxes collected from imports, 

domestics, passengers, and foreign trade. The collections are invested and investment 

activity is managed by the Bureau of Public Debt.

Foreign National Employees Separation Pay Account Trust Fund, 10 USC 1581. This 

fund makes payments from amounts obligated by the Secretary of Defense that remain 

unexpended for separation pay for foreign national employees of the Department. The 

foreign national employees’ separation pay funded by Foreign Military Sales administrative 

funds is maintained as a separate fund. 

Defense Commissary Agency Surcharge Trust Fund, 10 USC 2685. This fund was 

established as the repository for the surcharge on sales of commissary goods paid for by 

authorized patrons to finance certain operating expenses and capital purchases of the 
Department of Defense Agency Financial Report for FY 2012

Financial Information

134

Commissary System, which are precluded by law from being paid with appropriated funds. 

Most Surcharge revenue is generated by the 5 percent surcharge applied to each sale. 

These funds may be used to pay for commissary store-related information technology 

investments, to purchase commissary equipment, to finance advance design modifications 

to prior year projects, for both minor and major construction projects, and to maintain and 

repair commissary facilities and equipment.

Education Benefit Fund, 10 USC 2006. This fund was established to finance, on an 

actuarially sound basis, the liabilities of the Department’s education benefit programs for 

current and former active duty, guard, and reserve members of the armed forces, and 

members of the Coast Guard. Financing sources for the Education Benefit Fund are interest 

earnings on Fund assets and monthly Department contributions. 

Voluntary Separation Incentive Fund, 10 USC 1175. This fund was established to 

finance, on an actuarially sound basis, the liabilities of the Department’s incentive program 

for early separation from military service. Financing sources for the Voluntary Separation

Incentive Fund are interest earnings on Fund assets and annual Department contributions.

Military Housing Privatization Initiative, Public Law 104-106, Section 2801. The 

Military Housing Privatization Initiative (MHPI) includes both direct loan and loan guarantee 

programs, is authorized by the National Defense Authorization Act for FY 1996, and includes 

a series of authorities that allow the Department to work with the private sector to renovate 

and build military family housing. The MHPI accelerates the construction of new housing 

built to market standard and leverages private sector capital with government dollars. The 

Department provides protection to the private sector partner against specific risks, such as 

base closure or member deployment.

Armament Retooling and Manufacturing Support Initiative, 10 USC 4551-4555. The 

Armament Retooling and Manufacturing Support Initiative is a loan guarantee program 

designed to incentivize commercial use of the Army's inactive ammunition plants for 

businesses willing to locate to a government ammunition production facility. The production 

capacity of these facilities is greater than current military requirements; however, this 

capacity may be needed in the future. Revenue from property rentals are used to pay for 

the operation, maintenance and environmental cleanup at the facilities.

NOTE 24. FIDUCIARY ACTIVITIES

Schedule of Fiduciary Activity Dollars in Millions

As of September 30 2012 2011

Fiduciary net assets, beginning of year $ 199.5 $ 178.9

Contributions 222.5 282.5

Investment earnings 15.2 18.0

Distributions to and on behalf of beneficiaries (278.5) (279.9)

Increase/(Decrease) in fiduciary net assets (40.8) 20.6

Fiduciary net assets, end of period $ 158.7 $ 199.5
Department of Defense Agency Financial Report for FY 2012

Financial Information

135

Schedule of Fiduciary Net Assets Dollars in Millions

As of September 30 2012 2011

Fiduciary Assets

Cash and cash equivalents $ 158.7 $ 199.5

Total Fiduciary Net Assets $ 158.7 $ 199.5

Fiduciary activities exist when the Department has collected, received, held, or made 

disposition of assets on behalf of an individual or non-Federal entity. Fiduciary assets are 

not recognized on the Balance Sheet.

Public Law 89-538 authorized the Department, through the Savings Deposit Program, to 

collect voluntary contributions from members of the Armed Forces serving in designated 

areas. These contributions and earned interest are deposited in the U.S. Treasury on behalf 

of the members.

NOTE 25. OTHER DISCLOSURES

Operating leases are leases that do not transfer all the benefits and risks of ownership of 

capital leases. Payments are charged as expenses over the lease term. Office space is the 

largest component of land and building leases. Other leases are primarily made up of 

commercial leases. Commercial leases are leases made by the Department with the general 

public. These would include leases with dealerships, car rental companies, or any other such 

entity that provides care leasing services. Future year cost projections use the Consumer 

Price Index.

NOTE 26. RESTATEMENTS

The Department restated its financial statements as of September 30, 2011, to correct 

errors in assets, gross costs, and net position identified during ongoing audit readiness 

efforts. 

The Department corrected a $1.0 billion understatement of General Property, Plant and 

Equipment to align the accounting records to the property accountability system and a 

$955.1 million overstatement of Other Assets (With the Public). This correction increased 

General Property, Plant and Equipment, Net and Cumulative Results of Operations on the 

Other Disclosures Dollars in Millions

2012 – Asset Category

As of September 30

Land and 

Buildings Equipment Other Total

Entity as Lessee – Operating Leases

Future Payments Due

Fiscal Year 2013 $ 551.3 $ 67.0 $ 16.3 $ 634.6

Fiscal Year 2014 551.6 67.9 16.3 635.8

Fiscal Year 2015 567.7 68.2 16.3 652.2

Fiscal Year 2016 570.2 68.3 16.5 655.0

Fiscal Year 2017 537.0 67.9 16.6 621.5

After 5 Years 956.1 2.4 16.9 975.4

Total Future Lease Payments Due $ 3,733.9 $ 341.7 $ 98.9 $ 4,174.5
Department of Defense Agency Financial Report for FY 2012

Financial Information

136

Balance Sheet; Gross Costs on the Statement of Net Cost; and Net Cost of Operations and 

Cumulative Results of Operations on the Statement of Changes in Net Position. The 

correction also decreased Other Assets (With the Public) and Unexpended Appropriations on 

the Balance Sheet; and Unexpended Appropriations on the Statement of Changes in Net 

Position. The following notes were restated: Note 2, Nonentity Assets; Note 6, Other Assets; 

Note 10, General Property, Plant and Equipment, Net; Note 18, General Disclosures Related 

to the Statement of Net Cost; Note 19, Disclosures Related to the Statement of Changes in 

Net Position; Note 20, Disclosures Related to the Statement of Budgetary Resources; and 

Note 21, Reconciliation of Net Cost of Operations to Budget.

Effect on FY 2012 Beginning Cumulative Results of Operations and Unexpended 

Appropriations:

FY 2012 Statement of Changes in Net Position Dollars in Billions

CUMULATIVE RESULTS OF OPERATIONS

Correction of Errors (+/-) $ 1.0

Beginning balance adjustments $ 1.0

UNEXPENDED APPROPRIATIONS

Correction of Errors $ (0.9)

Beginning balance adjustments $ (0.9)

Effect on Comparative Balances

FY 2011 Balance Sheet Dollars in Billions

General Property, Plant and Equipment, Net $ 1.0

Intragovernmental Other Assets $ (0.9)

Total Assets $ 0.1

Unexpended Appropriations – Other $ (0.9)

Cumulative Results of Operations – Other $ 1.0

Net Position $ 0.1

Total Liabilities and Net Position $ 0.1

FY 2011 Statement of Net Cost Dollars in Billions

Gross Costs $ 0.1

Net Cost of Operations $ 0.1
Department of Defense Agency Financial Report for FY 2012

Financial Information

137

FY 2011 Statement of Changes in Net Position Dollars in Billions

CUMULATIVE RESULTS OF OPERATIONS

Corrections of Errors (+/-) $ 1.1

Beginning balance adjustments $ 1.1

Other Financing Sources:

Net Cost of Operations $ 0.1

Net Change $ (0.1)

Cumulative Results of Operations $ 1.0

UNEXPENDED APPROPRIATIONS

Correction of Errors $ (0.9)

Beginning balance adjustments $ (0.9)

Unexpended Appropriations $ (0.9)

Net Position $ 0.1
Department of Defense Agency Financial Report for FY 2012

Financial Information

138

REQUIRED SUPPLEMENTARY STEWARDSHIP INFORMATION

Federal financial reporting requires DoD to report on its stewardship over certain resources 

that cannot be measured in traditional financial reports. These resources do not meet the 

criteria for assets and liabilities required to be reported in the financial statements, but are 

important to understand the operations and financial condition of DoD at the date of the 

financial statements and in subsequent periods.

The Department’s stewardship investments are comprised of, and are measured in terms of, 

expenses incurred for: (1) Non-Federal Physical Property (federally-financed, but not 

federally owned), and (2) federally-financed Research and Development (R&D). Information 

on additional reporting requirements for non-Federal Physical Property and R&D follows.

NON-FEDERAL PHYSICAL PROPERTY

The Non-Federal Physical Property investments support the purchase, construction, or major 

renovation of physical property owned by state and local governments. In addition, NonFederal Physical Property investments include federally-owned physical property transferred 

to state and local governments. The Department participates in cost-sharing agreements 

with non-Federal sponsors which are governed under numerous Water Resources 

Development Acts. The Department’s transferred assets include expenditures supporting the 

design, build, and construction services/management for the missions of commercial 

navigation, flood/storm damage reduction, hydropower, regulatory, environmental, 

recreation and water supply.

Non-Federal Physical Property

Department of Defense Consolidated – Non-Federal Physical Property

Yearly Investments in State and Local Governments

For Fiscal Years 2012 through 2008 Dollars in Millions

Categories 2012 2011 2010 2009 2008

Transferred Assets:

National Defense Mission Related $ 1,445.4 $ 2,304.5 $ 2,126.2 $ 1,224.7 $ 1,169.2

Funded Assets:

National Defense Mission Related $ 7.7 $ 12.0 $ 0.0 $ 26.7 $ 1 9.6

Total $ 1,453.1 $ 2,316.5 $ 2,126.2 $ 1,251.4 $ 1,188.8

INVESTMENTS IN RESEARCH AND DEVELOPMENT

Investment values included in this report are based on R&D expenditures. The R&D 

programs are classified in the following categories: Basic Research, Applied Research, and 

Development. The amounts reported in the Investments in R&D table show outlays from 

FY 2008 – FY 2012 for all DoD Components. Through efforts to improve the quality of 

reported data, the FY 2008 through FY2012 values have been updated to include 

investments reported by the Defense Health Program and the DoD Inspector General (the 

entity). These investment values were not reported in FY 2011. The definition for each 

type of R&D Category and Subcategories are explained below.

Basic Research is the systematic study to gain knowledge or understanding of the 

fundamental aspects of phenomena and of observable facts without specific applications, 

processes, or products in mind. Basic Research involves the gathering of a fuller knowledge 
Department of Defense Agency Financial Report for FY 2012

Financial Information

139

or understanding of the subject under study. Major outputs are scientific studies and 

research papers.

Applied Research is the systematic study to gain knowledge or understanding necessary for 

determining the means by which a recognized and specific need may be met. It is the 

practical application of such knowledge or understanding for the purpose of meeting a 

recognized need. This research points toward specific military needs with a view toward 

developing and evaluating the feasibility and practicability of proposed solutions and 

determining their parameters. Major outputs are scientific studies, investigations, research 

papers, hardware components, software codes, or limited construction of a weapon system 

component, to include non-system-specific development efforts. Development takes what 

has been discovered or learned from basic and applied research and uses it to establish 

technological feasibility, assessment of operability, and production capability. Development 

consists of the five stages defined in the Investments in R&D table.

Advanced Technology Development is the systematic use of the knowledge or 

understanding gained from research and directed toward proof of concept and feasibility 

rather than directed toward the development of hardware for service use. It employs 

demonstration activities intended to test a technology or method.

Advanced Component Development and Prototypes evaluates integrated technologies in an 

operating environment as realistic as possible to assess the performance or cost reduction 

potential of advanced technology. Programs in this phase are generally system specific. 

Major outputs of Advanced Component Development and Prototypes are hardware and 

software components and complete weapon systems ready for operational and 

developmental testing and field use.

System Development and Demonstration concludes the program or project and prepares it 

for production. It consists primarily of preproduction efforts, such as logistics and repair 

studies. Major outputs are weapons systems finalized for complete operational and 

developmental testing.

Research, Development, Test, and Evaluation Management Support bolsters installations 

and operations for general research and development use. This category includes costs 

associated with test ranges, military construction maintenance support for laboratories, 

operation and maintenance of test aircraft and ships, and studies and analyses furthering 

the Research and Development program.

Operational Systems Development finances projects, programs or upgrades in engineering 

and manufacturing development stages which have received approval for production, 

including production funds that have been budgeted in subsequent fiscal years.
Department of Defense Agency Financial Report for FY 2012

Financial Information

140

Investments in Research and Development (R&D)

Department of Defense Consolidated

Yearly Investments in State and Local Governments

For the Current and Four Preceding Fiscal Years Dollars in Millions

Categories 2012 2011 2010 2009 2008

Basic Research $ 1,645.3 $ 1,816.6 $ 1,805.5 $ 821.0 $ 1,346.4

Applied Research 5,819.3 6,848.3 5,758.4 2,604.6 4,260.9

Development

Advanced Technology Development 5,868.0 6,024.3 6,353.4 2,263.2 6,032.7

Advanced Component Development 

and Prototypes 13,005.0 13,964.2 14,304.6 12,148.3 15,410.6

System Development and 

Demonstration 11,926.3 13,882.0 15,156.7 21,501.9 18,052.9

Research, Development, Test and 

Evaluation Management Support 5,640.5 5,659.2 5,503.6 5,141.3 5,471.0

Operational Systems Development 23,274.6 23,861.3 23,986.2 42,450.6 20,246.7

Totals: $ 67,179.0 $ 72,055.9 $ 72,868.4 $ 86,930.9 $ 70,821.2
Department of Defense Agency Financial Report for FY 2012

Financial Information

141

REQUIRED SUPPLEMENTARY INFORMATION

REAL PROPERTY DEFERRED MAINTENANCE AND REPAIRS

This section includes the deferred maintenance and repairs information and Statement of 

Disaggregated Budgetary Resources.

The deferred maintenance and repairs amount is based on facility Q-ratings found in the 

Department’s real property inventory. Q-ratings represent work needed to bring a facility to 

a fully serviceable condition with no repair needs. The reported deferred maintenance is the 

difference between the facility Q-rating and the target Q-rating that represents the 

acceptable operating condition established by each Component within the Department. The 

percentage column reflects the percent of total plant replacement value for each category 

represented by deferred maintenance.

Facility Categories are as follows:

• Category 1: Buildings, Structures, and Utilities that are enduring and required to support 

an ongoing mission, including multi-use Heritage Assets.

Real Property Deferred Maintenance and Repairs

For Fiscal Year Ended September 30, 2012 Dollars in Millions

Property Type

Current Fiscal Year

1. Plant 

Replacement 

Value

2. Required Work 

(Deferred 

Maintenance & 

Repair)

3. Percentage

1. Category 1 $ 939,394 $ 103,708 11%

2. Category 2 $ 28,864 $ 5,870 20%

3. Category 3 $ 21,493 $ 1,567 7%
Department of Defense Agency Financial Report for FY 2012

Financial Information

142

• Category 2: Buildings, Structures, and Utilities that are excess to requirements or 

planned for replacement or disposal, including multi-use Heritage Assets.

• Category 3: Buildings, Structures, and Utilities that are Heritage Assets. 

Military Equipment Deferred Maintenance and repairs

Depot maintenance requirements for military equipment are developed during the annual 

budget process. The table below shows the deferred unfunded requirements for the depot 

maintenance program.

Military Equipment Deferred Maintenance and Repairs

For Fiscal Year Ended September 30, 2012

Major Categories Dollars in Millions

1. Aircraft $ 456.8

2. Automotive Equipment $ 84.2

3. Combat Vehicles $ 37.9

4. Construction Equipment $ 32.9

5. Electronics and Communications Systems $ 80.3

6. Missiles $ 257.7

7. Ships $ 131.0

8. Ordnance Weapons and Munitions $ 63.1

9. General Purpose Equipment $ 11.4

10. All Other Items Not Identified to above Categories $ 42.5

Total $ 1,197.8
Department of Defense Agency Financial Report for FY 2012

Financial Information

143

Statement of Disaggregated 

Budgetary Resources 2012

For the Years Ended 

September 30

Dollars in Millions

Military

Personnel Procurement

Research, 

Development, 

Test and 

Evaluation

Family Housing/ 

Military 

Construction

Military 

Retirement 

Benefits

Civil Works

Operations, 

Readiness & 

Support

2012 Combined 2011 Combined

Budgetary Resources

Unobligated balance, brought 

forward, October 1 $ 1,641.5 $ 75.579.6 $ 18,012.9 $ 15,817.3 $ 0.0 $ 8,528.5 $ 42,691.3 $ 162,271.1 $ 160,032.1

Unobligated balance brought 

forward, October 1, as adjusted 1,641.5 75.579.6 18,012.9 15,817.3 0.0 8,528.5 42,691.3 162,271.1 160,032.1

Recoveries of prior year unpaid 

obligations 14,009.1 14,351.9 3,461.6 3,120.5 0.0 93.5 30,497.3 65,533.9 56,015.4

Other changes in unobligated 

balance (907.9) (581.7) (907.0) (83.9) 0.0 (1.7) (10,469.9) (12,952.1) (11,205.6)

Unobligated balance from prior year 

budget authority, net 14,742.7 89,349.8 20,567.5 18,853.9 0.0 8,620.3 62,718.7 214,852.9 204,841.9

Appropriations (discretionary and 

mandatory) 152,975.9 114,505.5 68,523.5 10,627.7 61,231.6 7,641.8 376,672.8 792,178.8 829,461.3

Borrowing Authority (discretionary 

and mandatory) 0.0 0.0 0.0 0.0 0.0 0.0 0.0 0.0 0.0

Contract Authority (discretionary and 

mandatory) 0.0 0.0 0.0 0.0 0.0 0.0 80,486.2 80,486.2 75,760.9

Spending Authority from offsetting 

collections (discretionary and 

mandatory)

1,182.6 3,275.5 9,629.4 9,567.4 0.0, 10,699.0 82,888.5 117,242.4 121,426.6

Total Budgetary Resources $ 168,901.2 $ 207,130.8 $ 98,720.4 $ 39,049.0 $ 61,231.6 $ 26,961.1 $ 602,766.2 $ 1,204,760.3 $ 1,231,490.7

Status of Budgetary Resources:

Obligations Incurred 166,437.4 143,783.1 83,516.5 22,991.1 61,231.6 18,351.0 562,757.1 1,059,067.8 1,069,218.2

Unobligated balance, end of year:

Apportioned 616.5 59,276.9 13,570.7 15,230.8 0.0 7,412.0 19,589.2 115,696.1 137,148.4

Exempt from Apportionment 0.0 0.0 0.0 0.0 0.0 1,184.2 2,791.9 3,976.1 4,180.3

Unapportioned 1,847.3 4,070.8 1,633.2 827.1 0.0 13.9 17,628.0 26,020.3 20,943.8

Unobligated balance brought 

forward, end of year $ 2,463.8 $ 63,347.7 $ 15,203.9 $ 16,057.9 $ 0.0 $ 8,610.1 $ 40,009.1 $ 145,692.5 $ 162,272.5

Total Budgetary Resources $ 168,901.2 $ 207,130.8 $ 98,720.4 $ 39,049.0 $ 61,231.6 $ 26,961.1 $ 602,766.2 $ 1,204,760.3 $ 1,231,490.7
Department of Defense Agency Financial Report for FY 2012

Financial Information

144

Statement of Budgetary 

Resources 2012

For the Years Ended 

September 30

Dollars in Millions

Military

Personnel Procurement

Research, 

Development, 

Test and 

Evaluation

Family Housing/ 

Military 

Construction

Military 

Retirement 

Benefits

Civil Works

Operations, 

Readiness & 

Support

2012 Combined 2011 Combined

Change in Obligated Balance

Unpaid obligations, brought forward, 

October 1 (Gross) $ 7,648.2 $ 147,138.7 $ 43,453.6 $ 29,244.6 $ 868.2 $ 10,405.5 $ 216,167.4 $ 454,926.2 $ 458,620.6

Uncollected customer payments for 

Federal Sources, brought forward, 

October 1

(155.0) (4,264.6) (5,126.6) (11.811.6) 0.0 (3,097.7) (50,728.8) (75,184.3) (69,766.8)

Obligated balance start of year (net), 

before adjustments 7,493.2 142,874.1 38,327.0 17,433.0 868.2 7,307.8 165,438.6 379,741.9 388,853.8

Obligated balance, start of year (net), 

as adjusted 7,493.2 142,874.1 38,327.0 17,433.0 868.2 7,307.8 165,438.6 379,741.9 388,853.8

Obligations incurred 166,437.4 143,783.1 83,516.5 22,991.1 61,231.6 18,351.0 562,757.1 1,059,067.8 1,069,218.2

Outlays (gross) (148,100.8) (125,100.4) (75,796.2) (20,584.4) (57,456.6) (20,288.3) (532,563.2) (979,889.9) (1,016,898.9)

Change in uncollected customer 

payments from Federal Sources) 28.2 25.1 (593.8) (466.3) 0.0 921.0 (2,683.3) (2,769.1) (5,417.5)

Actual Transfers, unpaid obligations 

(net) 0.0 0.0 0.0 0.0 0.0 0.0 0.0 0.0 0.0

Recoveries of prior year unpaid 

obligations (14,009.1) (14,351.9) (3,461.5) (3,120.5) 0.0 (93.5) (30,497.4) (65,533.9) (56,015.1)

Obligated balance, end of year

Unpaid Obligations, end of year 

(gross) 11,975.7 151,469.5 47,712.4 28,530.8 4,643.2 8,374.7 215,863.9 468,570.2 454,924.8

Uncollected customer payments 

from Federal Sources, end of year (126.8) (4,239.5) (5,720.4) (12,277.9) 0.0 (2,176.7) (53,412.1) (77,953.4) (75,184.3)

Obligated balance, end or year 

(net) $ 11,848.9 $ 147,230.0 $ 41,992.0 $ 16,252.9 $ 4,643.2 $ 6,198.0 $ 162,451.8 $ 390,616.8 $ 379,740.5

Budget Authority and Outlays, Net:

Budget Authority, gross (discretionary 

and mandatory) $ 154,158.5 $ 117,781.0 $ 78,152.9 $ 20,195.1 $ 61,231.6 $ 18,340.8 $ 540,047.5 $ 989,907.4 $ 1,026,648.8

Actual offsetting collections 

(discretionary and mandatory ) (1,210.8) (3,300.6) (9,035.5) (9,101.1) 0.0 (11,953.7) (155,984.3) (190,586.0) (190,906.0)

Change in uncollected customer 

payments from Federal Sources 

(discretionary and mandatory)

28.2 25.1 (593.8) (466.3) 0.0 921.0 (2,683.3) (2,769.1) (5,417.5)

Anticipated offsetting collections 

(discretionary and mandatory) 0.0 0.0 0.0 0.0 0.0 0.0 0.0 0.0 0.0

Budget authority, net 

(discretionary and mandatory) $ 152,975.9 $ 114,505.5 $ 68,523.6 $ 10,627.7 $ 61,231.6 $ 7,308.1 $ 381,379.9 $ 796,552.3 $ 830,325.3
Department of Defense Agency Financial Report for FY 2012

Financial Information

145

Statement of Budgetary 

Resources 2012

For the Years Ended 

September 30

Dollars in Millions

Military

Personnel Procurement

Research, 

Development, 

Test and 

Evaluation

Family Housing/ 

Military 

Construction

Military 

Retirement 

Benefits

Civil Works

Operations, 

Readiness & 

Support

2012 Combined 2011 Combined

Outlays, gross (discretionary and 

mandatory) $ 148,100.8 $ 125,100.4 $ 75,796.2 $ 20,584.4 $ 57,456.6 $ 20,288.3 $ 532,563.2 $ 979,889.9 $ 1,016,898.9

Actual offsetting collections 

(discretionary and mandatory) (1,210.8) (3,300.6) (9,035.5) (9,101.1) 0.0 (11,953.7) (155,984.3) (190,586.0) (190,906.0)

Outlays, net (discretionary and 

mandatory) 146,890.0 121,799.8 66,760.7 11,483.3 57,456.6 8,334.6 376,578.9 789,303.9 825,992.9

Distributed offsetting receipts 0.0 0.0 0.0 0.0 (77,647.4) (552.6) (1,038.4) (79,238.4) (83,198.6)

Agency outlays, net (discretionary 

and mandatory) $ 146,890.0 $ 121,799.8 $ 66,760.7 $ 11,483.3 $ (20,190.8) $ (7,782.0 $ 375,540.5 $ 710,065.5 $ 742.794.3
Department of Defense Agency Financial Report for FY 2012

Financial Information

146

Combined Statement of 

Budgetary Resources Non Budgetary

For the Years ended September 30

Dollars in Millions

Other 2012 Combined 2011 Combined

Budgetary Resources

Unobligated balance, brought 

forward, October 1 $ 17.5 $ 17.5 $ 24.9

Unobligated balance brought 

forward, October 1, as adjusted $ 17.5 $ 17.5 $ 24.9

Recoveries of prior year unpaid 

obligations 0.0 0.0 0.0

Other changes in unobligated 

balance 0.0 0.0 0.0

Unobligated balance from prior 

year budget authority, net 17.5 17.5 24.9

Appropriations (discretionary and 

mandatory) 0.0 0.0 0.0

Borrowing Authority (discretionary 

and mandatory) 172.6 172.6 229.8

Contract Authority (discretionary 

and mandatory) 0.0 0.0 0.0

Spending Authority from offsetting 

collections (discretionary and 

mandatory)

62.6 62.6 88.3

Total Budgetary Resources $ 252.7 $ 252.7 $ 343.0

Status of Budgetary Resources:

Obligations Incurred $ 237.2 $ 237.2 $ 326.8

Unobligated balance, end of year:

Apportioned 1.6 1.6 0.1

Exempt from Apportionment 0.0 0.0 0.0

Unapportioned 13.9 13.9 16.1

Unobligated balance brought 

forward, end of year $ 15.5 $ 15.5 $ 16.2

Total Budgetary Resources $ 252.7 $ 252.7 $ 343.0
Department of Defense Agency Financial Report for FY 2012

Financial Information

147

Statement of Disaggregated 

Budgetary Resources Non Budgetary

For the Years ended September 30

Dollars in Millions

Other 2012 Combined 2011 Combined

Change in Obligated Balance

Unpaid obligations, brought 

forward, October 1 (Gross) $ 569.1 $ 569.1 $ 619.4

Uncollected customer payments for 

Federal Sources, brought forward, 

October 1 

(99.9) (99.9) (97.3)

Obligated balance start of year 

(net), before adjustments 469.2 469.2 522.1

Obligated balance, start of year 

(net), as adjusted 469.2 469.2 522.1

Obligations incurred 237.2 237.2 326.8

Outlays (gross) (264.5) (264.5) (375.3)

Change in uncollected customer 

payments from Federal Sources 16.4 16.4 (2.6)

Actual Transfers, unpaid 

obligations (net) 0.0 0.0 0.0

Recoveries of prior year unpaid 

obligations 0.0 0.0 0.0

Obligated balance, end of year

Unpaid Obligations, end of year 

(gross) 541.8 541.8 570.9

Uncollected customer payments 

from Federal Sources, end of 

year

(83.5) (83.5) (99.9)

Obligated balance, end or year 

(net) $ 458.3 $ 458.3 $ 471.0

Budget Authority and Outlays, Net:

Budget Authority, gross 

(discretionary and mandatory) 235.2 235.2 318.1

Actual offsetting collections 

(discretionary and Mandatory) (92.6) (92.6) (102.6)

Change in uncollected customer 

payments from Federal Sources 

(discretionary and mandatory)

16.4 16.4 (2.6)

Anticipated offsetting collections 

(discretionary and mandatory) 0.0 0.0 0.0

Budget authority, net 

(discretionary and mandatory) $ 159.0 $ 159.0 $ 212.9

Outlays, gross (discretionary and 

mandatory) 264.5 264.5 375.3

Actual offsetting collections 

(discretionary and mandatory) (92.6) (92.6) (102.6)

Outlays, net (discretionary and 

mandatory) 171.9 171.9 272.7

Distributed offsetting receipts 0.0 0.0 0.0

Agency outlays, net 

(discretionary and mandatory) $ 171.9 $ 171.9 $ 272.7
Department of Defense Agency Financial Report for FY 2012

Financial Information

148

This Page Left Blank Intentionally
Department of Defense Agency Financial Report for FY 2012

Appendix A

149

APPENDIX A: GLOSSARY OF ACRONYMS AND ABBREVIATIONS

Acronym Definition

AFR Agency Financial Report

ALP Afghan Local Police

ANA Afghan National Army

ANP Afghan National Police

ANSF Afghan National Security Forces

APB Acquisition Program Baseline

APR Annual Performance Report

ARMS Armament Retooling and Manufacturing Support Initiative

ARRA American Recovery and Reinvestment Act of 2009 

(Recovery Act)

ASD Assistant Secretary of Defense

BAM Business Activity Monitoring

BCL Business Capability Lifecycle

BMD Ballistic Missile Defense

BPR Business Process Reengineering

BRAC Base Realignment and Closure

CFO Chief Financial Officer

CIO Chief Information Officer

CLS Contractor Logistics Support

CMO Chief Management Officer

COR Contracting Officer Representative

DBS Defense Business Systems

DCMO Deputy Chief Management Officer

DFAS Defense Finance and Accounting Service

DLA Defense Logistics Agency

DMAG Deputy Management Action Group

DoD Department of Defense

DSB Defense Science Board

DSCA Defense Security Cooperation Agency

DTM Directive-type Memorandum

EOP Executive Office of the President

ERP Enterprise Resource Planning

FAR Federal Acquisition Regulations

FBWT Fund Balance With Treasury

FCRA Federal Credit Reform Act

FECA Federal Employee Compensation Act

FFMIA Federal Financial Management Improvement Act of 1996

FIAR Financial Improvement and Audit Readiness

FIP Financial Improvement Plan
Department of Defense Agency Financial Report for FY 2012

Appendix A

150

Acronym Definition

FM Financial Management

FMF Foreign Military Financing

FMFIA Federal Managers’ Financial Integrity Act of 1982

FMS Foreign Military Sales

FY Fiscal Year

GAO Government Accountability Office

HIDS Host-based Intrusion Detection System

HRF Homeland Response Force

IG Inspector General

IPERA Improper Payments Elimination and Recovery Act

IPIA Improper Payment Information Act of 2002

ISAF International Security Assistance Force

ISR Intelligence, Surveillance and Reconnaissance

IT Information Technology

JTF-CAPMED Joint Task Force - National Capital Region Medical 

MAIS Major Automated Information System

MDAP Major Defense Acquisition Program

MDRFA Military Debt Reduction Financing Account

MERHCF Medicare-Eligible Retiree Health Care Fund

MFF Multi-Functional Brigades

MHPI Military Housing Privatization Initiative

MHS Military Health System

MICP Managers’ Internal Control Program

MILSTRIP Military Standard Requisitioning and Issues Procedures

MRF Military Retirement Fund 

NATO North Atlantic Treaty Organization

NC3 Nuclear Command, Control and Communications

NDAA National Defense Authorization Act

NGA National Geospatial-Intelligence Agency

OCO Overseas Contingency Operations

OIG Office of the Inspector General

OM&S Operating Materiel and Supplies

OMB Office of Management and Budget

OND Operation New Dawn

OSC-I Office of Security Cooperation - Iraq

OSD Office of the Secretary of Defense

OUSD Office of the Under Secretary of Defense

OUSD(C) Office of the Under Secretary of Defense (Comptroller)

PBL Performance Based Logistics

PP&E Property, Plant, and Equipment

PTS Post Traumatic Stress 
Department of Defense Agency Financial Report for FY 2012

Appendix A

151

Acronym Definition

QDR Quadrennial Defense Review

R&D Research and Development

SBR Statement of Budgetary Resources

SCNP Statements of Changes in Net Position

SFFAS Statement of Federal Financial Accounting Standards

SIG Senior Integration Group

SNC Statement of Net Cost

START Strategic Arms Reduction Treaty

TAS Treasury Account Symbol

U.S. United States

USACE U.S. Amy Corps of Engineers

USAFRICOM United States African Command

USC United States Code

USCENTCOM United States Central Command

USD Under Secretary of Defense

USD(AT&L) Under Secretary of Defense for Acquisition, Technology and 

Logistics

USD(C)/CFO Under Secretary of Defense (Comptroller)/Chief Financial 

Officer

USEUCOM United States European Command

USGAAP U.S. Generally Accepted Accounting Principles

USMC United States Marine Corps

USNORTHCOM United States Northern Command

USPACOM United States Pacific Command

USSGL U.S. Standard General Ledger

USSOCOM United States Special Operations Command

USSOUTHCOM United States Southern Command

USSTRATCOM United States Strategic Command

USTRANSCOM United States Transportation Command

VA Department of Veterans Affairs

WCF Working Capital Fund
Department of Defense Agency Financial Report for FY 2012

Appendix A

152

This Page Left Blank Intentionally
Department of Defense Agency Financial Report for FY 2012

Appendix B

153

APPENDIX B: USEFUL WEBSITES

Link URL

American Recovery and 

Reinvestment Act http://www.recovery.gov

Arms Export Control Act of 1976 http://www.gpo.gov/fdsys/pkg/USCODE-2010-

title22/html/USCODE-2010-title22-chap39.htm

Base Realignment and Closure http://www.defense.gov/brac

Chief Financial Officers Act of 

1990 http://govinfo.library.unt.edu/npr/library/misc/cfo.html

Civilian Expeditionary Workforce 

Program http://www.cpms.osd.mil/expeditionary

Department of Defense http://www.defense.gov/

Defense Federal Acquisition 

Regulation Supplement

http://www.acq.osd.mil/dpap/dars/dfarspgi/current/in

dex.html

Defense Finance and Accounting 

Service http://www.dfas.mil

DoD Financial Management 

Regulation http://comptroller.defense.gov/fmr

DoD Modeling and Simulation http://www.dtic.mil/whs/directives/corres/pdf/500061

p.pdf

DoD Strategic Management Plan http://dcmo.defense.gov/publications/strategicmanagement-plan.html

Enterprise Transition Plan http://dcmo.defense.gov/publications/enterprisetransition-plan.html

Federal Credit Reform Act http://www.fms.treas.gov/ussgl/creditreform/fcratoc.h

tml

Federal Employees’ 

Compensation Act http://www.dol.gov/compliance/laws/comp-feca.htm

Federal Financial Management 

Improvement Act http://www.dol.gov/ocfo/media/regs/FFMIA.pdf

Federal Managers’ Financial 

Integrity Act http://whitehouse.gov/omb/financial_fmfia1982

Financial Improvement and Audit 

Readiness Plan Status Report http://comptroller.defense.gov/FIAR

Foreign Assistance Act of 1961

http://www.gpo.gov/fdsys/pkg/USCODE-2010-

title22/html/USCODE-2010-title22-chap32-

subchapII.htm

DoD Budget Request http://comptroller.defense.gov/budget.html

Government Management 

Reform Act of 1994

http://govinfo.library.unt.edu/npr/library/misc/s2170.h

tml

GAO Report: High-Risk Series, 

An Update http://www.gao.gov/new.items/d11278.pdf

Joint Chiefs of Staff http://www.jcs.mil

Managers’ Internal Control 

Program http://comptroller.defense.gov/micp.html
Department of Defense Agency Financial Report for FY 2012

Appendix B

154

Link URL

National Defense Authorization 

Act for FY 1996

http://thomas.loc.gov/cgibin/bdquery/z?d104:SN0112

4:@@@L&summ2=m&TOM:/bss/d104query.html%7C

National Guard http://www.nationalguard.mil/

National Military Strategy http://www.jcs.mil//content/files/2011-

02/020811084800_2011_NMS_-_08_FEB_2011.pdf

National Security Act of 1947 http://research.archives.gov/description/299856

National Security Strategy http://www.whitehouse.gov/sites/default/files/rss_vie

wer/national_security_strategy.pdf

New START Treaty http://www.state.gov/t/avc/newstart/index.htm

Office of Management and 

Budget Circulars (OMB)

http://www.whitehouse.gov/omb/financial_offm_circul

ars

Office of the Under Secretary of 

Defense (Comptroller) http://comptroller.defense.gov/

Quadrennial Defense Review http://www.defense.gov/qdr

Security Assistance Management 

Manual http://www.dsca.osd.mil/samm/ESAMM/C00/0.02.htm

Sustaining U.S. Global 

Leadership: Priorities for 21st

Century Defense

http://www.defense.gov/news/Defense_Strategic_Guid

ance.pdf

Statements of Federal Financial 

Accounting Standards and 

Interpretations

http://fasab.gov/accounting-standards/authoritativesource-of-gaap/

Treasury Financial Manual http://www.fms.treas.gov/tfm/index.html

U.S. Africa Command http://www.africom.mil

U.S. Air Force http://www.af.mil

U.S. Army http://www.army.mil

U.S. Central Command http://www.centcom.mil

U.S. Code http://uscode.house.gov/

U.S. European Command http://www.eucom.mil

U.S. Marine Corps http://www.marines.mil

U.S. Navy http://www.navy.mil

U.S. Northern Command http://www.northcom.mil

U.S. Pacific Command http://www.pacom.mil

U.S. Southern Command http://www.southcom.mil

U.S. Special Operations 

Command http://www.socom.mil

U.S. Strategic Command http://www.stratcom.mil

U.S. Transportation Command http://www.transcom.mil
ADDENDUM A

DEPARTMENT OF DEFENSE

AGENCY FINANCIAL REPORT

FISCAL YEAR 2012
This Page Left Blank Intentionally
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-1

ADDENDUM A, OTHER ACCOMPANYING INFORMATION

Other Accompanying Information provides additional details that support the Fiscal 

Year (FY) 2012 Department of Defense (DoD) Agency Financial Report (AFR). This 

addendum includes the following sections:

• Inspector General Summary of Management and Performance Challenges for FY 2012

• Managers’ Internal Control Program 

• Improper Payment and Payment Recapture Programs 

INSPECTOR GENERAL SUMMARY OF MANAGEMENT AND 

PERFORMANCE CHALLENGES FOR FY 2012

The Reports Consolidation Act of 2000 requires that the AFR include a statement, prepared 

by the Department’s Inspector General (IG) that summarizes what the IG considers to be 

the most serious management and performance challenges facing the Department, along 

with a brief assessment of the Department’s progress made in addressing those challenges. 

The DoD IG identified the following seven management and performance challenges facing 

the Department in FY 2012:

1. Financial Management

2. Acquisition Processes and Contract Management

3. Joint Warfighting and Readiness

4. Information Assurance, Security, and Privacy

5. Health Care

6. Equipping and Training Iraq and Afghan Security Forces

7. The Nuclear Enterprise

The following tables summarize the seven challenges, the IG’s assessment of the 

Department’s progress in addressing these challenges, and the Department’s management 

response.
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-2

1. IG-Identified Challenge: Financial Management

1-1A. Achieving Financial Statement Audit 

Readiness IG Summary of Challenge

The Department financial management challenges adversely affect its ability to provide 

reliable, timely, and useful financial and managerial data needed to support operating, 

budgeting, and policy decisions. Gaps in the financial framework impact the accuracy, 

reliability and timeliness of budgetary and accounting data and financial reporting, 

thereby reducing the effectiveness of decision making by leaders at all levels. A key 

effort to addressing the Department’s financial management challenges is its ability to 

produce auditable financial statements and achieve an unqualified opinion on those 

financial statements. Achieving auditable financial statements has proven to be a 

longstanding and daunting task and the success of the DoD financial improvement and 

audit readiness effort is dependent upon the Department being able to address the 

following key items:

• Successful resolution of previously identified material internal control weaknesses to 

ensure that internal controls are properly designed, implemented, and working 

effectively.

• Successful monitoring and resolution of new material internal control weaknesses 

identified as part of ongoing readiness efforts.

• Sustained improvement in internal controls and systems to provide consistent and 

repeatable results regarding financial data used in decision making and reporting.

• Effective development and implementation of the financial improvement effort by 

monitoring DoD progress in achieving milestones; developing comprehensive 

improvement initiatives across DoD functional areas; and holding managers 

accountable for the successful and timely implementation of those efforts.

Congress requires the Department ensure that the DoD financial statements are 

validated as audit ready by September 30, 2017. The most significant challenge for the 

Department will be in meeting that date. Further, Public Law 111-383, Section 881, 

requires the Department to establish interim milestones to achieve audit readiness of its 

financial statements by September 30, 2017. These interim milestones for Military 

Departments and Defense Components call for the achievement of audit readiness for 

each major element of the Statements of Budgetary Resources (SBR), such as civilian 

pay, military pay, supply orders, contracts, and the entity’s Funds Balance with the 

Treasury. The Department must aggressively pursue the development and 

implementation of comprehensive improvement initiatives and monitor progress 

according to interim milestones. The Department may need to revise these initiatives 

and milestones as additional deficiencies and corrective actions are identified as a result 

of DoD’s iterative Financial Improvement and Audit Readiness (FIAR) process. 

In October 2011, the Secretary of Defense directed significant changes in the 

Department’s audit goals, including calling for audit readiness of the SBR in 2014. 

Additionally, Public Law 112-81, Section 1003, requires that the Department have a plan 

that includes interim objectives and a schedule of milestones for each military 

department and for the defense agencies to support the goal to validate the SBR by not 

later than September 30, 2014. Meeting the Secretary’s accelerated 2014 milestone for 

auditability of the SBR will be a challenge for the Department. The Department must 

continue to develop and implement a comprehensive plan that identifies the interim 

objectives and schedule of milestones to achieve audit readiness of the SBR for the 
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-3

working capital and general funds. Also, the interim milestones must address the 

existence and completeness of each major category of DoD assets, which includes 

military equipment, real property, inventory, and operating material and supplies. 

Additionally, Section 881 requires the Department examine the costs and benefits of 

alternative approaches to valuing its assets, develop remediation plans when interim 

milestones cannot be met, and identify incentives to achieve auditability by 

September 30, 2017.

1-1B. Achieving Financial Statement Audit 

Readiness IG Assessment of Progress

Although the Department is far from reaching an unqualified opinion on its consolidated 

financial statements, the Department has demonstrated improvements. Clearly, DoD 

senior leadership has placed an increased emphasis on and attention to addressing 

challenges in achieving audit readiness of its financial statements. We believe this 

increased attention and emphasis are essential to the Department meeting its own 

internal milestones as well as the 2017 audit readiness mandate. 

A significant measure of DoD’s ongoing progress in the area of financial management is 

the ability to obtain an unqualified opinion on its financial statements. Despite the 

pervasive and longstanding Department financial management issues, the U.S. Army 

Corps of Engineers and various Defense agencies, such as the Defense Commissary 

Agency, Defense Contract Audit Agency, and Military Retirement Fund, have received 

unqualified audit opinions. While much more work is necessary, it is encouraging that 

the Department is making progress in meeting its strategic goals, such as in 

August 2011, when the Army, Navy, and Air Force achieved unqualified opinions from 

Independent Public Accounting firms on Services Appropriations Received audit 

readiness assertions. The Department must sustain its achievements as well as 

advancing in the remaining significant areas. The DoD IG continues to identify and cite 

the same 13 material internal control weaknesses in its audit opinion on DoD’s 

consolidated financial statements. These pervasive and longstanding financial 

management issues directly affect DoD’s ability to obtain an unqualified opinion on its 

financial statements. These weaknesses affect the safeguarding of assets, proper use of 

funds, and impair the prevention and identification of fraud, waste, and abuse

The Department continues to make progress towards meeting the 2014 audit readiness 

goal of the SBR; however, it is still uncertain whether the Department will meet the 

2014 goal. The Department continues to learn and improve from the DoD IG audits of 

the SBR for the U.S. Marine Corps (USMC), the first Military Component to undergo such 

an audit. The USMC encountered many challenges during this first type of audit, which 

resulted in disclaimers of opinion in FY 2010 and FY 2011. Although the USMC SBR 

received disclaimers, the USMC, the Navy, and the Department are using this 

experience to correct the weaknesses as well as prepare the other Military Components 

for their eventual SBR audit. The May 2012 FIAR Plan Status Report only addresses 

audit readiness of the SBR for the general funds. As the Comptroller has indicated, two 

Military Services will have to accelerate their efforts to achieve audit readiness of their 

SBR by 2014. For one Service, that acceleration requires a new approach. The 

Department will also have to accelerate efforts to achieve audit readiness for the

Defense Agencies. Department efforts and meaningful progress in FY 2013 for the SBR 

audit readiness goal will be critical and should be a high visibility area. 
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-4

1-1C. Achieving Financial Statement 

Audit Readiness Department Response

The Department generally agrees with the IG’s assessment of DoD’s progress in 

achieving audit readiness. Over the last year, significant progress has been made by 

Military Departments, Defense Agencies, and other Defense organizations in support of 

audit readiness. At the beginning of FY 2012, Secretary Panetta directed the Department 

to accelerate several of the FIAR Plan goals with greater emphasis on the overall effort. 

Specifically, the Secretary directed the Department to:

• Achieve audit readiness of the SBR by the end of FY 2014.

• Increase emphasis on accountability of assets.

• Execute a full review of the Department’s financial controls over the next two years 

and establish interim goals against which to assess progress.

• Ensure mandatory training for audit and other key financial efforts and establish, by 

the end of calendar year 2012, a pilot certification program for financial managers –

similar to the one now in place for acquisition managers.

• Appropriately resource efforts to meet these goals.

• Meet the legal requirements to achieve full audit readiness for all DoD financial 

statements by 2017.

Achieving the 2014 SBR audit readiness goal will be challenging, but with the 

Secretary’s involvement, the Department’s ability to achieve this goal has increased 

significantly. The Secretary’s commitment to and personal involvement in auditability 

has elevated audit readiness to an “all hands,” DoD-wide effort. The impact can be seen 

in a variety of ways:

• Warfighters, from flag officers to enlisted personnel, are more aware, engaged, and 

committed to audit readiness.

• Appropriate senior executives across the Department, including those outside the 

financial community, have FIAR goals in their performance plans and are being held 

accountable.

• Military Departments, Defense Agencies, and other Defense organizations have 

refined, modified or developed Financial Improvement Plans (FIPs) that include 

interim milestones to accomplish SBR audit readiness consistent with the Secretary’s 

direction for 2014. Progress is monitored and routinely reported in the FIAR 

governance process.

• Component FIPs better conform to DoD FIAR Guidance and provide more detail 

regarding discovery and corrective actions. The FIPs are reviewed monthly by the 

Office of the Under Secretary of Defense (Comptroller), and the quality is routinely 

reported in the FIAR governance process.

• Acquisition Decision Memorandums, issued by business information technology (IT) 

milestone decision authorities, now consistently contain FIAR goals and 

requirements.

• Component commands and subordinate organizations are more actively involved.

• Adequate funds for audit readiness activities have been maintained.

• Participation in FIAR training courses has significantly increased.
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-5

Even with the Secretary’s commitment and involvement, the significant challenges to 

eliminating material weaknesses, strengthening internal controls, modernizing business 

and financial systems, and producing auditable financial statements remain. However, 

the Department is now better positioned to make meaningful progress, sustain 

improvements, maintain a strong control environment, and achieve auditability. In fact, 

progress has been made since the last AFR, as demonstrated by the following successful 

audits. 

• Defense Information Systems Agency (DISA) received an unqualified opinion on its 

FY 2011 Working Capital Fund financial statements.

• TRICARE Management Activity – Contract Resource management received an 

unqualified audit opinion on its FY 2011 financial statements.

• Medicare-Eligible Retiree Health Care Fund received a qualified audit opinion on its 

FY 2011 financial statements.

• Navy received an unqualified audit opinion on its audit readiness assertion for 

existence and completeness of its ships and submarines, Trident missiles, and 

satellites.

• Navy received an unqualified audit opinion on its audit readiness assertion for the 

E-2D Advanced Hawkeye aircraft acquisition program.

• Air Force received an unqualified audit opinion on its audit readiness assertion for

existence and completeness of aircraft, cruise missiles, and aerial targets/drones.

Information on the DoD FIAR Plan can be found in the semi-annual FIAR Plan Status 

Report.

1-2A. Modernizing Financial Systems 

(Enterprise Resource Planning) IG Summary of Challenge

In an attempt to standardize and develop an effective financial management process 

throughout the Department, DoD embarked on various efforts to implement new 

financial management systems and associated business processes. We believe that 

properly planned and integrated systems, with strong internal controls, are critical to 

provide useful, timely, and complete financial management data and to achieve 

auditability. However, timely and effective implementation of the Enterprise Resource 

Planning (ERP) systems is also critical for the Department to achieve its financial 

improvement and audit readiness goals. We believe the Department’s progress in

implementing ERPs, especially in FY 2013, is a critical challenge, and any 

implementation delays or systems that do not meet the intended objectives could 

jeopardize the Department’s ability to meet its auditability goals.

1-2B. Modernizing Financial Systems 

(Enterprise Resource Planning) IG Summary of Progress

The Department plans to spend more than $15 billion to further develop and implement 

ERP systems. These ERP systems have experienced cost increases and schedule delays 

ranging up to 13 years. Because of these schedule delays, the Department will continue 

using outdated legacy systems and diminish the estimated savings associated with 

transforming business operations through business system modernization. Schedule 

delays and poorly developed and implemented ERP systems also increase the risks that 

the SBR will not be auditable by September 30, 2014, and the goal of full financial 

statement audit readiness by September 30, 2017.
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-6

Further, without fully deployed ERPs, the Department may not be able to produce 

reliable financial data and auditable financial statements without resorting to heroic 

efforts, such as data calls or manual workarounds, and may not be able to provide 

consistent and reliable financial and reporting data on a recurring basis. For example, 

DoD reported in the May 2012 FIAR Plan Status Report that the Air Force ERP systems 

will not be fully deployed by 2014. As a result, the Air Force will rely on manual controls 

and legacy system enhancements in order to meet the goal of SBR audit readiness by 

September 30, 2014. The Department also reported that the accelerated goal for the 

SBR presents other challenges to the Air Force, such as, the time and resources required 

to conduct testing will increase because manual controls are generally less reliable and 

require more testing than system controls. The Department also reported that the 

difficulty of collecting supporting documents processed in multiple systems and 

reconciling data as it moves from one system to another is a challenge for the Air Force.

The Department has not reengineered established business processes to the extent 

necessary; oftentimes, it has customized commercial ERP systems to accommodate 

existing business practices. This leads to the need for system interfaces and weakens 

controls built into the ERP system. The Department reported that ERP systems were 

designed to replace numerous subsidiary systems, reduce the number of interfaces, and 

standardize and eliminate redundant data entry, while providing an environment for 

end-to-end business processes and serving as the foundation for sustainable audit 

readiness. However, the numerous interfaces between the ERP and the existing systems 

may be overwhelming and currently may not be adequately defined. Each interface 

presents a risk that the system will not function as designed and prevents linking all 

transactions in an end-to-end business process. The Department needs to ensure ERP 

system development addresses required business processes and functions. 

Without the effective and timely development and implementation of ERP systems, and 

appropriate senior level governance, the Department will continue to struggle to 

improve its processes to ensure accurate, timely, and meaningful financial management 

information for the users, both internally and externally, and to achieve long-term 

sustainability of the financial management improvements.

1-2C. Modernizing Financial Systems 

(Enterprise Resource Planning) Department Response

The Department is committed to supporting improvements to financial processes 

through the implementation of ERP systems. In support of these efforts, the Department 

has been working diligently to improve business processes and develop its ERPs, 

improving oversight of the development of the ERPs and implementation of formal 

business process reviews in support of auditability.

While it is true that legacy systems will continue to be employed during the 

development and full deployments of the ERPs, the implementations that have already 

occurred throughout the Department have resulted in the ability to phase out dozens of 

legacy systems. Several of the Department’s ERPs have been or will be implemented to 

support the 2017 auditability goal. However, where we are dependent on legacy 

systems, the Component’s FIPS have incorporated actions necessary to ensure that 

accurate, reliable financial information is reported. Modernizing the Department’s 

business systems is a key aspect of our overall effort to achieve and sustain auditability. 

The Department plans to achieve the audit goals with a combination of both target and 

legacy systems. While the Department is taking pro-active steps to align individual ERP 

programs with auditability outcomes, we are also focused on delivering
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-7

audit ready processes and controls that will remain outside the ERP systems. This will 

allow us to develop a sustainable business environment that can be cost-effectively 

audited. 

The ERP programs, by their very nature, are designed to handle transactions in a 

defined end-to-end process, enforce process and execution standardization among 

implementing organizations, manage consolidated business data in a single repository 

that allows centralized access control, and facilitate the flow of information both within 

an organization and with external stakeholders. These design principles within the ERP 

directly enable capabilities essential to auditability, such as traceability of all 

transactions from source to statement; the ability to recreate a transaction;

documented, repeatable processes and procedures; demonstrable compliance with laws, 

regulations and standards; and a control environment that is sufficient to reduce risk to 

an acceptable level. 

Essentially, ERPs are acquired with industry best practices “to-be” processes embedded 

within them. Each of the Department’s ERP programs went through significant up front 

blueprinting and gap analysis to determine which configuration or customization was 

necessary for the system to work within the business environment in which it was to be 

fielded. The Department has focused on properly enforcing compliance with the target 

financial management environment, built on a backbone of the core ERP systems, 

aligned with the Business Enterprise Architecture’s end-to-end processes. In concert 

with the new Investment Review Board process currently being implemented, as 

required by the FY 2012 NDAA, these advances will ensure the retirement of legacy 

systems and the reduction of interfaces and necessary customization as required by the 

NDAA Business Process Review (BPR) requirement.

The Department’s leadership is fully committed to improving ERP implementation and 

providing proper oversight of its development. Following the passage of the FY 2010 

NDAA, the Department instituted a BPR assessment process updated to comply with 

new requirements of NDAA FY 2012. A combination of ERP implementation and 

associated BPR will help ensure the Department achieves its audit objectives.

1-3A. Improper Payments IG Summary of Challenge

Improper payments have been a longstanding problem within the Department, often the 

result of unreliable data and/or lack of adequate internal controls which create an 

environment where fraud is more likely. As a result, the Department lacks assurance 

that the billions of dollars in payments it disburses annually are made correctly. Simply 

stated, the Department does not always know that it is paying the right person, the 

correct amount, at the right point in time. 

The Department’s inadequate financial systems and controls impede in making proper 

payments. In addition, the pace of operations and volume of Department spending 

creates additional risks for improper payments as well as affects the Department’s 

ability to detect and recover improper payments. Transactions and processes (business 

and financial processes, controls, and systems) are neither standard nor sound in all 

cases. The High Dollar Improper Payment Report was inaccurate and incomplete 

because the Department did not develop a sound methodology or perform adequate 

oversight for collecting and reporting comprehensive data.

The Department has challenges with the completeness and accuracy of DoD’s improper 

payment reviews and the information reported. In the FY 2011 DoD AFR, the 

Department’s Under Secretary of Defense (Comptroller)/Chief Financial Officer 
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-8

(USD(C)/CFO)) made significant disclosures about the limited completeness and 

accuracy of DoD efforts to identify and report on improper payments, including: 

• The Department did not statistically sample Defense Finance and Accounting Service 

(DFAS) commercial payments for its FY 2011 reporting.

• Transactions and processes (business and financial processes, controls, and 

systems) were neither standard nor sound in all cases.

• The SBR is not auditable and as a result, the USD(C)/CFO cannot reconcile outlays to 

the quarterly or annual gross outlays reported in the SBR to ensure that all required 

payments for reporting purposes are captured.

These areas require improvement before the Department will be able to provide 

complete and accurate information on its estimated amount of improper payments.

The DoD IG has reported previously about the Department’s “pay and chase” practice, 

where contractors are paid the billed invoice amounts before the Department 

determines what the correct billing amount should have been. This practice is especially 

concerning when used to support operations in Southwest Asia. The DoD IG and others 

have reported on multiple occasions where invoices were paid for work outside the 

scope of the contract or without adequate support. This type of approach not only 

increases the risk of improper payments but also increases the risk that the Department 

will never be able to detect and recover the improper payments. Specifically, over time 

the condition of contract files and availability of personnel diminishes. The ability to 

detect and collect on improper payments within aging contract files may diminish over 

time. The Defense Contract Audit Agency (DCAA) is a key component to identify 

improper payments in Department contracting. However, there is an emerging concern 

that the backlog of audits is growing and improper payments are going undetected 

because the DCAA cannot adequately respond to the growing demand for its services.

1-3B. Improper Payments IG Summary of Progress

While the Department made strides to improve the identification and reporting of 

improper payments and took many corrective actions to implement recommendations 

made by the DoD IG, more work is needed to improve controls over payments 

processed throughout the Department. We commend the Department on aggressively 

pursuing recovery of identified improper payments, but unless the DoD continues to 

improve its methodology to review all its disbursements, it will understate its estimate 

of overpayments and will likely miss opportunities to collect additional improper 

payments.

After initial resistance to the IG assertion that the Department’s methods used to 

estimate high dollar overpayments resulted in under-reporting the amount of improper 

payments, the Department recognized it needs to broaden its scope of review for 

identifying potential improper payments. The USD(C)/CFO asserted that DFAS will begin 

statistical sampling of commercial payments in FY 2012. The ability of DCAA to provide 

audit oversight for contract closeouts is critical to the Department’s improper payments 

efforts. Leadership must maintain awareness on DCAA’s ability to provide this critical 

service. 

1-3C. Improper Payments Department Response

The Department concurs with the DoD IG recognition of DoD’s improvements in 

identifying, reporting, and recovering improper payments and in implementing 
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-9

corrective actions. The Department is committed to complying with all laws and 

regulations established to reduce improper payments. As reported in DoD IG Report

No. D-2012-065, the Department is compliant with the requirements of the Improper 

Payments Elimination and Recovery Act (IPERA). Beginning in FY 2012, the Department 

instituted statistical sampling for commercial payments disbursed by DFAS.

Since the Department first reported on improper payments in the FY 2004 Performance 

and Accountability Report, improper payment rates have declined. The Office of 

Management and Budget (OMB) reported the government-wide FY 2011 error rate for 

improper payments at 5.49 percent, which is substantially higher than each of DoD’s 

programs1. Further, OMB has not designated any of DoD’s programs to be a high error 

program, as shown on the PaymentAccuracy.gov web site.

The Department does not agree with the IG’s statement that deficiencies in the 

Department’s initial High Dollar Improper Payment Report, as reported in DoD IG Report 

No. D-2011-050, present a significant management challenge. The cited report was 

based on information from Quarter 3, FY 2010 – more than two years ago, and all 

13 open recommendations have been successfully closed. 

The Department does not have a “pay and chase” practice, as cited above by the 

DoD IG, where contractors are paid before the Department determines the correct 

billing. In Audit Report No. D-2011-050, the DoD IG used the phrase, ‘pay and chase’ 

when referring to a DFAS review of travel pay among different systems. The DCAA 

performs risk-based voucher reviews to proactively keep contractor billings aligned with 

final amounts and rates, not ‘pay and chase,’ and it is an important part of the 

Department’s audit readiness efforts. The DCAA is diligently working to reduce its 

current audit inventory and is making progress. 

2. IG-Identified Challenge: Acquisition Processes and Contract 

Management

2-1A. Enhancing the Acquisition Workforce IG Summary of Challenge

The Department continues to struggle with its efforts to rebuild an acquisition workforce 

that is sufficient in size and adequately trained and equipped to oversee DoD 

acquisitions. Even though the Defense acquisition workforce has grown over the last few 

years, the Department still faces significant challenges in order to sustain a successful 

and well trained Defense acquisition workforce. These challenges include: 17 percent of 

the acquisition workforce is eligible for full retirement today; 19 percent are eligible 

within 5 years; and personnel losses spiked up 3 percent from FY 2010 to FY 2011. The 

Department needs to continue to provide developmental opportunities to the Defense 

acquisition workforce to have personnel who can successfully manage complex 

acquisition programs in the Department. Regardless of the looming decline in the 

Defense budget, the vital role the acquisition workforce plays in providing the 

warfighters with new capabilities will remain. Previous Defense budget cuts decimated 

the capability of the acquisition workforce; a mistake the Department can ill afford to 

repeat.

 1 The Fiscal Year 2011 DoD Agency Financial Report showed the overall Department error rate at 0.18 percent; 

however, DFAS commercial payments included in this figure were an actual amount, not a statistical estimate.
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-10

2-1B. Enhancing the Acquisition Workforce IG Assessment of Progress

The Department senior leadership continues to recognize the importance of fielding a 

capable acquisition workforce to effectively manage and oversee DoD acquisition and 

contracting. To successfully accomplish the acquisition mission, DoD is placing greater

emphasis on developing a higher-quality workforce that has the right competencies and 

skill sets at the right place at the right time. 

The Department has filled 6,400 new acquisition positions since 2008 and as of the 

second quarter 2012, the total acquisition workforce is over 151,000 personnel. The 

Defense Acquisition Workforce Development Fund budget estimate of $274.2 million in 

FY 2013 further demonstrates DoD’s sustained commitment to increase the end strength 

and quality of the acquisition workforce; however, current budget constraints raise 

questions as to whether the department will be able to sustain this projected growth and 

support related initiatives. Sustained commitment and management attention is 

essential to ensure the improvements to the acquisition workforce are not lost or 

needlessly diminished.

The Under Secretary of Defense for Acquisition, Technology and Logistics (USD(AT&L)) 

emphasized strengthening the acquisition workforce as a priority in his October 7, 2011 

initial guidance memorandum. The USD(AT&L) stated that since the levels of the 

acquisition workforce have grown over the last few years, they will increasingly turn 

their attention to improving the capability of the workforce they have.

The Department continues to use the Defense Acquisition Strategic Workforce Plan, 

April 2010, which outlines additional strategies the Department is employing to support 

an acquisition workforce that has the capacity and ability to appropriately manage and 

oversee acquisitions. They are closely partnering with the Defense Acquisition University 

and offering several continuous learning and classroom courses. The Defense Acquisition 

University incorporated better buying power into all of their learning assets, specifically 

creating a Better Buying Power Gateway on the Defense acquisition portal to serve as a 

central point of access to the latest information on the Better Buying Power initiatives.

2-1C. Enhancing the Acquisition Workforce Department Response

The Department concurs with the IG's assessment.

2-2A. Weapon System Acquisition IG Summary of Challenge

The Department remains challenged in its management of major acquisition programs. 

The number of Major Defense Acquisition Programs (MDAPs) has decreased, from 111 in 

FY 2011 to 89 in FY 2012. While the performance of no two acquisition programs is the 

same and a good number of them operate within their cost and schedule constraints, 

there are still too many programs that are experiencing significant cost growth and 

delay in delivering capabilities. The Department needs to continue to look for a better 

balance between its limited resources and the capabilities needed to be successful in 

current conflicts and to prepare for possible future conflict. As budgets come under 

increasing scrutiny, including the threat of sequestration in 2013, the Department will 

be challenged to evaluate the merits of all programs as to their usefulness and the need 

for further program terminations to remain within budget constraints.
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-11

2-2B. Weapon System Acquisition IG Assessment of Progress

Through leadership at the highest levels, the Department has demonstrated its 

commitment to addressing shortcomings identified in the management of weapon 

system acquisitions. The Department continues to reprioritize and rebalance its 

investments in weapon systems and has made strides towards improving efficiency. 

On September 14, 2010, the USD(AT&L) issued a directive geared at obtaining better 

buying power through greater efficiencies and productivity in defense spending. The 

Department continues to emphasize the importance of achieving better buying power 

and has been implementing this initiative to identify efficiencies, increase affordability 

and determine what goods and services should cost.

The USD(AT&L), as part of his Better Buying Power initiative to buy more for less 

money, established a new position focused on defense pricing. Specifically, with the 

establishing of this position, the Department will concentrate on the affordability of the 

goods and services it purchases, looking beyond program cost estimates and 

determining what a program should cost. All ongoing programs are required to present 

should cost estimates at each milestone decision point, which will be used as a basis for 

contract negotiations and determining contract incentives.

Audits continue to identify oversight and pricing problems that show the Department’s 

need to prudently evaluate contractors in the fast-paced environment of war. The 

Department is beginning to apply extra scrutiny to weapon systems that are behind 

schedule and over cost as it continues the process of making the hard decisions about 

what is and is not affordable. In recent times, senior leadership has demonstrated sound 

stewardship by eliminating major acquisition programs that were underperforming, over 

budget, of questionable continuing investment.

2-2C. Weapon System Acquisition Department Response

The Department concurs with the IG's assessment.

2-3A. Contract Management IG Summary of Challenge

The Department continues to experience inefficiencies and wasteful use of funds in its 

contracting efforts. The Department’s continuing contracting challenges include 

obtaining adequate competition in contracts, defining contract requirements, overseeing 

contract performance, obtaining fair and reasonable prices, and maintaining contract 

documentation for contract payments.

The Department relies heavily on contractors to provide acquisition management and 

contract support functions, which oftentimes includes acquisition planning, requirement 

determinations, contract award, performance review, bid analysis, cost assessment, and 

contract monitoring functions. The Department’s increased use of contractors as 

acquisition support highlights DoD’s shortcomings. The Department spends more than 

$200 billion annually on services, which amounts to more than 50 percent of the 

Department’s contract spending.

The Department faces several challenges when it comes to contract oversight and 

administration. Our audits continue to identify that without proper oversight, the 

Department cannot be certain that contractors are performing in accordance with 

contract requirements, cannot support payments of award or incentive fees, cannot 

support the certification of invoices for services performed, and cannot ensure that 
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-12

services are performed, thus leaving the Department vulnerable to increased fraud, 

waste, abuse and misuse of taxpayer monies.

The Department continues to face challenges in obtaining fair and reasonable prices for 

parts. Audits first started identifying problems with price-based acquisition and 

commercial pricing back in the late 1990's, and it was not until 2008 that legislative 

changes allowed contracting officers to request information on labor costs, material 

costs, and overhead rates for commercial items. 

More recently, the Department has moved to new performance-based logistics (PBL) or 

contractor logistics support (CLS) arrangements that have added a new challenge to 

obtaining fair and reasonable prices for parts, since the Services are now going back to 

the weapons systems contractors instead of other available sources to procure the 

parts. Normally, the Services would procure the parts from the Defense Logistics Agency 

which in turn would procure the parts from the original equipment manufacturer, not the 

weapons systems contractors. Paying excessive prices for parts procured from the 

weapons systems contractors that did not manufacture the items was reported back in 

the 1980's and resulted in the spare parts breakout initiative. Unfortunately, future 

budget constraints made breakout and cost/price analysis groups targets for workforce 

reductions. The Department also faces challenges in effectively using existing 

Government inventories of spare parts before procuring the same parts from private 

contractors through these PBL or CLS arrangements.

2-3B. Contract Management IG Assessment of Progress

The Department continues to make efforts to strengthen contracting and has issued 

policy, procedures, and guidance addressing current contracting challenges. The 

Department began the Better Buying Power Initiative in 2010 and continues to 

implement this initiative to improve the way the Department acquires goods and 

services. In April 2011, the previous USD(AT&L) amplified the focus of the better buying 

power memorandum to maximize competition in situations where only one offer is 

received in a procurement utilizing competitive procedures. In his October 2011 initial 

guidance memorandum, the USD(AT&L) emphasized his commitment to improving 

efficiency through the Better Buying Power initiative, which he stated they will continue 

to refine and build upon to reduce costs and provide the highest possible value to the 

warfighter. The Department has also emphasized “affordability” in review of acquisition 

efforts and using peer review to improve quality of contracting processes across the 

Department.

The USD(AT&L) required each Military Department and Defense Component to establish 

a senior manager for the acquisition of services, who would be responsible for the 

planning and execution of service contracts. The Department has also organized the 

procurement of services into six categories in order to make decisions, share lessons 

learned, and institutionalize strategic sourcing.

In response to audits relating to PBL and CLS strategies, the USD(AT&L) for Logistics 

and Materiel Readiness issued guidance that created a standard practice of using 

existing on-hand and due-in government inventory. The guidance also stated that in 

these arrangements, stocking objectives should be adjusted accordingly when using 

commercial sources. Further, senior leadership directed that components should perform 

cost and price analysis on a sample of spare parts before exercising options.
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-13

The Department continues its work to improve contingency contracting. Some initiatives 

include:

• Implementing corrective actions on findings from the Commission on Wartime 

Contracting.

• Standardizing Contracting Officer Representative (COR) qualifications.

• Providing tools such as the DoD Contingency COR and Contingency Contracting 

Officer Handbook.

• Creating a 340-person reach-back center to award complex contracts and support 

contract closeout.

2-3C. Contract Management Department Response

The Department agrees with the IG’s summary of challenges and assessment of 

progress and continues to work aggressively to resolve the long-standing material 

weaknesses in contract management. The Department continues to implement 

initiatives designed to improve contract management. These key initiatives include: 

• Continued use of “peer reviews” to improve the quality of contracting processes 

across the Department and facilitate cross-sharing of best practices and lessons 

learned.

• The Director of Defense Pricing issued a memorandum on August 27, 2012, entitled 

“Taxonomy for the Acquisition of Services and Supplies & Equipment”. Based on a 

review of the existing taxonomy and supported by the Senior Service Managers, the 

Department established a Logistics Management Services Portfolio Group. The 

revised taxonomy supports the Department’s effort in fostering communication and 

strategic decisions.

• On August 29, 2012, the Defense Federal Acquisition Regulations Supplement 

(DFARS) Procedures, Guidance, and Instruction 237.102-77, Automated 

Requirements Roadmap Tool, was changed to add a link to the tool that enables 

requiring activities to develop and organize Performance Work Statements and 

Quality Assurance Surveillance Plans using templates.

• On June 29, 2012, the Defense Procurement and Acquisition Policy (DPAP)

Directorate issued the final DFARS rule under the Better Buying Power initiative to 

promote more effective competition. This DFARS rule requires contracting officers to 

maximize competition when only one offer is received in competitive procurements. 

The DPAP Directorate has established a metric to monitor effective competition and 

is now reporting the data at quarterly competition advocates meetings.

• The Director of DPAP issued a memorandum on July 11, 2012, entitled “Increasing 

Opportunities for Small Business Set-asides under the Simplified Acquisition 

Thresholds,” that reminds contracting officers of statutory requirements to set aside 

contracts for small businesses which play a vital role in contributing to the defense 

industrial base.

• The Director of DPAP issued a memorandum on July 26, 2012, entitled “Maximizing 

Small Business Utilization on Multiple Award Contracts.” This memorandum reminds 

contracting activities to commit to using set-aside procedures, where appropriate,

for all prospective new multiple award contracts with small businesses; to identify 

existing multiple award contracts with small businesses where orders may be 

appropriate; and to commit to using set asides. 
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-14

• Published the Department of Defense Contracting Officer Representative (COR) 

Handbook on March 22, 2012. This handbook addresses key aspects of contract 

quality surveillance and the roles and responsibilities of the Contracting Officer, the 

Contracting Officer Representative (COR), and the requiring activity/COR 

management. It is intended to be a comprehensive resource for the Contracting 

Officer, COR management, and the first-time or the experienced COR. 

• Published the 2nd Edition of the Defense Contingency Contracting Officer 

Representative Handbook on July 11, 2012, for use by CORs who are supporting 

contingency operations with basic tools and knowledge. 

• Published the 4th Edition of the Defense Contracting Handbook on July 11, 2012. This 

pocket-sized handbook provides essential information, tools, and training for DoD 

Contingency Contracting Officers to meet the challenges they may face, regardless 

of the mission or environment.

3. IG-Identified Challenge: Joint Warfighting and Readiness

3-1A. Joint Warfighting and Readiness IG Summary of Challenge

The Department will face many challenges in the near future in joint warfighting and 

readiness. Among them are a decreasing budget, a planned drawdown of forces from 

Afghanistan, the need to reset equipment and personnel across the Services, a return to 

full-spectrum training, and an enhanced focus on the Pacific theater. But the desired 

end-state remains the same: provide the right force, the right personnel, and the right 

equipment and supplies in the right place, at the right time, and in the right quantity, 

across the full range of military operations. A decrease in DoD’s budget will be felt 

across the Department, especially in areas like training and exercises. The Services and 

the Combatant Commands need to ensure training and exercises conducted are realistic, 

providing personnel the skills they will need to respond to threats wherever they occur 

in the future. 

The planned drawdown of forces from Afghanistan will challenge the Department in 

many areas, simultaneously. The forces will have to be reintegrated into the total force 

and reset will have to occur; not just to equipment, but also personnel and units. The 

Services have announced plans to restructure themselves for future conflicts. The Army 

has announced plans to reduce its forces in Europe while the Air Force has identified a 

number of units for realignments. The Navy has stated that they plan to move more 

ships to the Pacific theater and the Marines continue to plan for a drawdown in Okinawa 

and relocating forces to Guam. The reintegration of forces comes with a continued need 

to take care of the service members and their families. 

Those same units that will be undergoing changes in personnel strength, and possibly 

locations, will also need to have their equipment requirements addressed. Equipment 

the units will need to retain will need to be repaired; equipment the units are not 

retaining will need to be replaced with newer items of equipment. All of these challenges 

will require management visibility and vigilance to ensure the Department has what it 

needs, but also identifies excess, so it can be accounted for properly. The enhanced 

focus on the Pacific will also challenge the Department as it reaffirms existing 

relationships in the region and looks to establish new ones.
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-15

3-1B. Joint Warfighting and Readiness IG Assessment of Progress

The Department is making progress to address the multitude of situations with 

drawdown in Afghanistan, resetting equipment, ensuring the long-term viability of the 

All-Volunteer force, but must also be ready to address new situations that will rise with 

the expected reduction in available resources and the rebalancing of the force. The 

National Security Strategy released in January 2012 placed increased emphasis on the 

Pacific theater. This will present challenges to all of the components of the Department

as they shift their focus to the Pacific. The armed forces will have to train to fight 

conventional and unconventional scenarios, and they will be challenged to do this with 

diminishing resources while maintaining their readiness status. The Department will 

have to provide additional oversight to ensure that the equipment reset process is 

managed so that only unusable equipment is disposed and new equipment is fielded to 

the intended users. The Department will also have to provide the necessary levels of 

oversight to ensure that forces returning from Afghanistan, and their families, continue 

to receive the support they need.

As the drawdown continues in Afghanistan, the Department must ensure the reserve 

components have the equipment and training necessary to ensure readiness and the 

ability to meet their various missions. The ongoing efforts to relocate service members 

to Guam and other locations around the globe will enable the armed forces to better 

shape and focus their force structure in a way that will provide greater flexibility in 

responding to threats. The realignment of forces from Okinawa, Japan to Guam still 

faces formidable challenges which have impacted projected costs and schedules to the 

planned effort.

3-1C. Joint Warfighting and Readiness Department Response

Despite our consistently high operations tempo, the Department remains committed to 

ensuring deployed forces around the globe are trained, equipped, and ready to perform 

their assigned missions. Deploying capable and ready forces for current operations 

continues to impact the non-deployed forces’ ability to prepare for full spectrum 

operations. Non-deployed forces are focusing their available training time to prepare for 

their next mission in support of Operation Enduring Freedom, hedging against execution 

of other potential contingencies. 

The withdrawal of forces from Iraq, combined with Presidential directives to reduce 

deployed numbers in Afghanistan, has reduced the stress on forces in the near term; 

however, the expected fiscal constraints looming on the horizon that may result in tough 

decisions on materiel, manpower, and infrastructure could negate the positive aspects 

expected from the reductions in operational stress. Additionally, even with the reduction 

of ground forces in the Central Command area of responsibility, it is anticipated the 

demand for Naval and Air Forces will continue unabated in the near term. 

The Department is continually developing and refining comprehensive plans for both 

resetting and rebalancing the total force, which includes all reserve component forces, in 

the most effective and efficient manner possible. We recognize the most important part 

of maintaining joint warfighting capability and readiness is caring for the all-volunteer 

force. Finding the proper balance between maintaining readiness, force structure, 

modernization, fiscal realities, and future threats remains the highest priority of the 

Department’s leadership.
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-16

4. IG-Identified Challenge: Information Assurance, Security, and 

Privacy

4-1A. Cyber Security IG Summary of Challenge

Cyber security is the technology, processes, and practices designed to protect networks, 

computers, programs, and data from attack, damage, or unauthorized access. As 

identified in the Department’s strategy for operating in cyberspace, the continuing 

growth of networked systems, devices, and platforms means that cyberspace is an 

integral part of the capabilities the Department relies upon to complete its mission. The 

DoD networks are under constant attack from cyber security threats launched from the 

internet or from malicious software embedded in e-mail attachments, removable media, 

or embedded in the hardware DoD procures. Every connected device is susceptible to 

cyber vulnerabilities. According to recent reports from the Department of Homeland 

Security, reported computer security incidents for Federal agencies have increased from 

5,503 in FY 2006 to 43,889 in 2011, an increase of approximately 700 percent over 

6 years. As stated in the Department’s cyberspace strategy, foreign nations are working 

to exploit DoD unclassified and classified networks, and some have already acquired the 

capacity to disrupt parts of DoD’s information infrastructure. The Department faces 

significant challenges in three areas of potential adversarial activity: theft or exploitation 

of data; disruption or denial of access or service that affects the availability of networks, 

information, or network-enabled resources; and destructive action including corruption, 

manipulation, or direct activity that threatens to destroy or degrade networks or 

connected systems.

4-1B. Cyber Security IG Assessment of Progress

It has been approximately two years since the Secretary of Defense directed the 

establishment of the U.S. Cyber Command to plan, coordinate, integrate, synchronize, 

and conduct activities to lead the day-to-day defense and protection of DoD information 

networks. Additionally, the Army, Navy, and Air Force have also established their own 

cyber operations commands. In addition, the Department has made progress in 

implementing its host-based intrusion detection system (HIDS), which is installed at the 

individual workstation/server level (host) and monitors systems for network based 

attacks and host-specific events. Phased implementation and evaluation of the HostBased Security System, which includes DoD’s primary HIDS, is mostly complete and 

adjustments are being made. The addition of HIDS to DoD systems contributes to DoD’s 

defense-in-depth strategy, which also is comprised of network and wireless intrusion 

detection systems.

While the Department has made progress in combating cyber attacks and breaches, it 

still faces a challenge in recruiting and hiring cyber security personnel. In testimony on 

March 20, 2012 to the House Committee on Armed Services, Subcommittee on 

Emerging Threats and Capabilities, the Commander, U.S. Cyber Command,

acknowledged that U.S. Cyber Command was critically short of the skilled people 

needed to manage networks and protect U.S. interests in cyberspace. According to a 

recent Government Accountability Office (GAO) report, the Department reported a 

shortage of 9,000 cyber security personnel from a total of 97,000 total positions. The 

Commander, U.S. Cyber Command, stated that U.S. Cyber Command is reviewing 

recruitment and incentive programs to build and retain the best cyber defenders. Cyber 

security personnel are in high demand inside the Government and in private industry.
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-17

The Department must continue finding ways to recruit and retain the cyber personnel 

necessary to defend DoD’s networks and the sensitive data contained within.

4-1C. Cyber Security Department Response

The Department continues to strengthen cyber security and address the threat posed by 

network attacks. The establishment of U.S. Cyber Command and the supporting Service 

Component Commanders has greatly increased the Department’s ability to plan, 

coordinate, integrate, synchronize, and conduct activities to lead the day-to-day defense 

and protection of DoD information networks. Implementing a Department-wide 

enterprise Host-based Security System (HBSS), which includes a Host-based Intrusion 

Prevention (HIPS) module chosen in place of a host-based intrusion detection system, to 

extend active protection to the desktop level has been a key component of our defensein-depth strategy as we take steps to effectively isolate the department's official-use 

networks from the Internet while maintaining connectivity. This has been undertaken in 

phases, as we first focused on Secret network implementation and then unclassified 

networks. This implementation has been directed through U.S. Cyber command tasking 

and fragmentary orders. 

Implementation of the HBSS HIPS module has been particularly challenging, as 

individual Components have had to adapt their HIPS implementation to work with the 

existing legacy information systems running on their networks. Some of these legacy 

systems are still vital for warfighting support. The U.S. Cyber Command and the 

supporting Component Commanders continue to focus on implementation, with DISA’s 

assistance in providing program office and field support to ensure future versions of 

HBSS and HIPS software are modified, as necessary, to enable more rapid 

implementation. 

In regard to the Department’s challenges to recruit and retain cyber personnel, the U.S. 

Cyber Command is aggressively working through the manning process to fulfill 

established requirements in a time of shrinking budgets. The 97,000 cyber security 

positions reported by the IG are based on the 2010 Information Assurance (IA) 

Workforce Annual Report. We concur that 9,000 positions were not filled across the 

Department; however, the 2011 report identified 79,691 cyber security positions, of 

which 93 percent were filled, and 74 percent of those positions were filled with 

personnel with a current cyber security certification in compliance with the 

DoD 8570.01-M, “Information Assurance Workforce Improvement Program.” Additionally 

in 2011, 84 percent of all of the personnel in an IA position had a baseline IA 

certification. The gap between billets/positions and the number of them filled depend on 

a number of variables, to include the following:

• Lack of funding for the position.

• Training pipeline – lack of school seats my cause a shortage of personnel. 

• Using personnel qualified for the position to man other requirements often known as 

Temporary Duty Assignment (often they are sent to Afghanistan or other operational 

environments to fill “temporary billets”).

• Recruiting and retention programs can cause a lack of personnel availability. 

However, it does take time to work though the manpower process once a 

billet/position is identified – to budget, recruit, train, and assign a qualified person to 

a new position. 
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-18

4-2A. Information Technology (IT) 

Acquisition System IG Summary of Challenge

One of the focus areas of the DoD Chief Information Officer’s (CIO’s) 10-Point Plan for 

IT Modernization is to strengthen IT investments. Section 804 of the NDAA for FY 2010 

required the Secretary of Defense to develop and implement a new acquisition process 

for information systems. The process was to be based on recommendations from the 

March 2009 report of the Defense Science Board (DSB) Task Force on Department of 

Defense Policies and Procedures for the Acquisition of Information Technology. This 

report concluded that “the conventional DoD acquisition process is too long and too 

cumbersome to fit the needs of the many systems that require continuous changes and 

upgrades...” The DoD CIO’s 10-Point Plan will include structuring IT programs, via 

smaller, frequent deliveries, implement an enterprise approach for the procurement of 

common IT hardware and software, obtain transparency of IT investments with a full 

DoD IT investment portfolio, and review major IT investments for performance, funding 

execution, and enterprise alignment.

4-2B. IT Acquisition System IG Assessment of Progress

The Department has recognized that it needs to improve the outcomes of its

acquisitions, deliver faster capability, and save billions through cost efficiencies. On June 

23, 2011, the USD(AT&L) issued a Directive-Type Memorandum on Acquisition Policy for 

Defense Business Systems, which sets forth timeline requirements for automated 

information systems. The memorandum states that when Major Automated Information 

Systems employ the incremental acquisition approach, all functional capabilities must be 

achievable within five years of when the funds are first obligated. Additionally, the 

memorandum provides similar requirements for all other Automated Information 

Systems. While this memorandum sets more ambitious timelines to acquire automated 

information systems, the Department must continue to push forward with new IT 

acquisition process in order to ensure success for its mission and the individual 

warfighters.

4-2C. IT Acquisition System Department Response

The Department is committed to the implementation of IT Acquisition Reform and 

continues to achieve key accomplishments in the overall timeliness and effectiveness of 

the IT acquisition process. The USD(AT&L) issued acquisition policy in Directive Type 

Memorandum (DTM) 11-009, “Acquisition Policy for Defense Business Systems,” dated 

June 23, 2011, and change 1, dated December 9, 2011. This DTM requires the use of 

the Business Capability Lifecycle (BCL) model as the acquisition process for Defense 

Business Systems (DBS), assigns responsibilities, and provides procedures for meeting 

BCL and DBS requirements. The BCL provides a tailored acquisition process with 

alternative requirements development processes for Defense Business Systems, a major 

step forward in implementing more flexible and streamlined processes. 

The BCL is the overarching framework for the planning, design, acquisition, deployment, 

operations, maintenance, and modernization of DBS, in accordance with Title 10 U.S.C., 

Section 2222(f). This policy will be incorporated in the next update to DoD 

Instruction 5000.02, “Operation of the Defense Acquisition System.” Additionally, the 

Department updated Business Case guidance in May 2012 to enhance business case 

content. The DTM 11-009 defines a business case as:
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-19

“A summary of essential information necessary to enable effective 

management decisions resulting from the rigorous analysis and associated 

documentation produced by the Functional Sponsor and the [Program 

Manager]. The Business Case clearly defines and articulates the business 

problem, the desired outcomes, and the holistic plan for delivering the 

capability. As more knowledge is acquired progressing through the 

lifecycle, the Business case is updated for ongoing decision making.”

Simply stated, the Business Case is one of the key program documents reviewed at an 

acquisition milestone for Major Automated Information System programs. The 

Department currently is working to incorporate BCL policy guidance into the Defense 

Acquisition University’s Defense Acquisition Guide. Additionally, the Department is 

collaboratively exploring opportunities to further enhance DBS acquisition processes. An 

example of this effort is the Deputy Chief Management Officer (DCMO) working with 

Department-level Test and Engineering organizations to explore ways to improve DBS 

testing. 

On October 6, 2011, the Deputy Secretary of Defense established the Deputy’s 

Management Action Group (DMAG) to be his mechanism for executing a common 

management approach across the Departmental topics and processes for which he is 

responsible. The Deputy Secretary effectively merged a number of senior leadership 

bodies, including the Defense Business Systems Management Committee discussed in 

the 2011 response with the DMAG, to create a single body of senior leaders to consider 

the Department’s wide range of management and business topics. The Department's 

senior leaders ensure the successful execution of the Strategic Management Plan and 

Annual Performance Plan, oversee the defense business systems investment 

management process, and monitor and take corrective action in the Department's 

efforts to improve its defense business operations. This new framework consolidates 

governance for the Department and creates increased efficiency and effectiveness in the 

Department’s management processes.

5. IG-Identified Challenge: Health Care

5-1A. Medical Readiness IG Summary of Challenge

In addition to providing health care for Active Duty personnel, managing the overall 

health of 9.7 million eligible beneficiaries is a continuing challenge for the Military Health 

System (MHS). Identifying unhealthy behaviors and providing appropriate interventions 

across the population is a challenge. By reducing obesity and tobacco usage, for 

example, the long-term health implications of diabetes and chronic obstructive 

pulmonary disease can be reduced significantly. Preventable conditions such as these 

are expensive and long term in nature, and could degrade medical readiness of military 

members.

5-1B. Medical Readiness IG Assessment of Progress

The MHS management identified the family medical readiness strategic imperative, but 

the applicable performance measure is in the concept phase. The need to improve the 

planning for medical needs of family members was discussed in our report on the 

planning of Guam dental care for Active Duty family members. Specifically, the Navy did 

not adequately identify and assess the risks associated with not expanding the specialty 

care in Guam although the beneficiary population was projected to increase 

substantially.
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-20

The MHS is implementing the “medical home” concept throughout the direct care 

system. With the medical home, the patient will have more direct access to a medical

team that is equipped to recognize potentially unhealthy behaviors and has the ability to 

intervene early. In addition, management needs to ensure nonmedical alternatives such 

as recreational and athletic facilities are in adequate condition and available to military 

community as well as cessation programs for unhealthy addictive behaviors such as 

cigarette smoking and alcohol use. The MHS fully supports the National Prevention 

Strategy to support better health behaviors and overall fitness. Although the MHS goal 

was not attained, cigarette use among Active Duty forces decreased from FY 2010 to 

FY 2011. The MHS has actively committed to supporting the National Partnership for 

Patients initiative with the Department of Health and Human Services to improve care, 

transition, and prevention of harm during treatment. The two goals of this partnership 

are “keeping patients from getting injured or sicker” and “helping patients heal without 

complication.”

5-1C. Medical Readiness Department Response

The Department concurs with the IG’s assessment. Through its initiative process, the 

MHS has chartered a new population health working group to specifically address the 

challenges of providing nonmedical alternatives for changing unhealthy behaviors, such 

as those leading to obesity and tobacco use. Additionally, the workgroup is tasked with 

the development of an Annual Health Assessment in the form of an intelligent 

questionnaire integrated into the patient workflow using existing technologies (e.g., 

Armed Forces Health Longitudinal Technology Application workflows, secure messaging). 

The health assessment will also draw from available clinical data and will provide 

quantitative and qualitative data about the wellness state of our beneficiaries. 

Additionally, the health assessment will support a personal prevention plan, providing 

specific feedback to the beneficiary to assist in altering unhealthy behaviors and provide 

an objective measure of the effectiveness of both the nonmedical and medical programs 

related to the wellness and health of our beneficiary population. The working group also 

is tasked with developing and monitoring pilot programs to address obesity and tobacco 

cessation through the expansion of wellness programs delivered on our bases, in 

facilities such as the recreation centers, and virtually through coaching programs 

delivered wherever they are required. Through the study of these pilot programs, 

combined with objective data from the health assessment, we will be able to tailor the 

most effective solution possible across the entire military health system.

5-2A. Cost Containment IG Summary of Challenge

The MHS must provide quality care for approximately 9.7 million eligible beneficiaries 

within fiscal constraints while facing increased user demands, legislative imperatives, 

and inflation, which makes cost control difficult in both the public and private sectors. 

Over the past decade, health care costs have grown substantially, and MHS costs have 

been no exception. The DoD budget for health care costs was approximately $53 billion 

in FY 2012, an increase of approximately 74 percent since FY 2005. The MHS costs have 

more than doubled, from $19 billion in FY 2001 to the Department’s request of 

$48.7 billion for FY 2013. With these costs increases in mind, the Department proposed 

to implement a modest increase to enrollment fees while also making small adjustments 

to retail and mail order pharmacy co-pays. Another part of the challenge in containing 

health care costs is combating fraud. Health care fraud is among the top five categories 

of criminal investigations of the DoD IG’s Defense Criminal Investigative Service, 

representing 12.5 percent of the 1,862 open cases at the beginning of FY 2012. 
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-21

Increasing health care benefits also provides additional pressure to manage and contain 

costs.

5-2B. Cost Containment IG Assessment of Progress

The Department’s efforts in controlling health care costs will continue to be a challenge 

as early indications are that DoD beneficiary fee increases are not likely to be fully 

approved. The MHS is focusing on many areas to manage per capita health care costs. 

Three managed care support contracts are in effect; however, award protests resulted in 

staggered implementation of the new generation TRICARE contracts. The contracts 

provide incentives for customer satisfaction and include the managed-care support 

contractors as partners in support of medical readiness. The Department continues to 

examine how the MHS purchases health care from the private sector. The guiding 

principle of the study group is that high-quality; patient-centered care is also costefficient care.

The Department has identified areas that assist in managing costs, to include fraud 

management, and pharmaceuticals. Implementing the Quadruple Aim Concept should 

simultaneously improve quality and reduce costs by focusing on the elimination of 

unnecessary care, tests, and procedures, and by focusing on delivering health care in 

the most appropriate setting. Additionally, the MHS identified optimization of the 

pharmacy practices and implementation of the patient-centered medical home as 

strategic initiatives, both of which are aimed at increasing the quality of health care 

services while reducing the cost of providing high quality care.

5-2C. Cost Containment Department Response

The Department concurs with the IG's assessment.

5-3A. Rehabilitation and Transition Care IG Summary of Challenge

The continued strengthening of comprehensive and integrated health care – from 

accession through active service, to rehabilitation, and when necessary, the transition to 

the Department of Veterans Affairs (VA) – is a major challenge for the MHS. In 

particular, the Department will need to remain focused for future years with providing 

adequate rehabilitation and transition care for wounded warriors associated with 

Southwest Asia and other such conflicts.

Key areas requiring management attention also include rehabilitation and transition care 

for those affected with Traumatic Brain Injury, Post Traumatic Stress Disorder, and 

those in need of prosthetic services. 

Although a number of objectives have been identified by the Department and the VA 

and programs have been initiated, the quality and oversight of these programs must be 

tightly managed. The Department should continue to strive to make the medical care 

and benefits transition program a streamlined, transparent, and timely process as 

wounded warriors move from the DoD system to the VA system.

5-3B. Rehabilitation and Transition Care IG Assessment of Progress

During this past year, the DoD IG has noted the need to provide timely access to 

specialty care, improvements in various training programs and plans, as well as 

improving medication management. While challenges remain, the DoD IG has identified 

notable initiatives within the Department for supporting the comprehensive care, 
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-22

healing, and transition of wounded warriors. Some specific initiatives were recovery 

team forums to develop individualized courses of action to address each wounded 

warrior’s needs. In addition, another notable initiative addressed reducing the potential 

for exploitation of warriors, therefore avoiding negative consequences to morale, and 

the overall health and welfare of the warriors. Also, wounded warrior care centers were 

developing meaningful programs of constructive activities to assist with warriors’ 

transition. These notable initiatives should continue Department-wide. 

5-3C. Rehabilitation and Transition 

Care Department Response

The Department concurs with the IG's assessment.

5-4A. Optimizing Health Care Governance IG Summary of Challenge

Ensuring that the MHS is organized in the most effective and cost-efficient manner will 

continue to be a challenge. Transformation occurred in the MHS over the past years, 

including the consolidation of medical facilities and functions in the National Capital 

Region mandated by the 2005 Base Realignment and Closure (BRAC) process. The BRAC 

also provided the Department with the opportunity to evaluate changes in the MHS 

governance. In addition to improving the readiness and cost efficiency associated with 

realigning base structure, a primary objective of the BRAC process was to examine and 

implement opportunities for greater joint activity among the Military Departments. 

Considering increased joint activity during recapitalization of aging physical 

infrastructure will continue to be a challenge.

5-4B. Optimizing Health Care Governance IG Assessment of Progress

The Department established governance reforms in March 2012 to explore opportunities

to realize savings in the MHS through the adoption of common clinical and business 

processes and the consolidation of shared services. The TRICARE Management Activity 

will transition into the Defense Health Agency, a Market Manager will be appointed in 

each multi-Service market areas, and the Joint Task Force National Capital Region 

Medical (JTF CAPMED) will transition to a subordinate organization under the Defense 

Health Agency. The Department will continue to develop and execute the single 

authority JTF CAPMED and cross-Services San Antonio Military Health System 

governance models to provide greater insight when considering future governance 

transformation. Evaluating the variety of governance models may provide innovative 

solutions that can be used across the MHS.

The BRAC process addressed part of the aging infrastructure, but to fully address the 

challenge, better standardized data on the condition of facilities is needed. The MHS has 

begun the multiyear transition and acquisition process of improving capability and 

access to care in two major and several minor markets. For example, the new Walter 

Reed National Military Medical Center at Bethesda, merging the now-closed Walter Reed 

Army Medical Center and the Bethesda National Naval Medical Center, opened in 

November 2011. In addition, the Tri-Service Medical Education and Training Campus 

should improve the quality and consistency of training for all enlisted personnel, 

contributing to a culture of jointness and interoperability and shared purpose.

Several infrastructure issues are addressed through implementation of the American 

Recovery and Reinvestment Act (ARRA) of 2009. We completed our review of planning
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-23

for Phase I of the new hospital being built at Fort Hood and the replacement hospital 

project at Camp Pendleton. Planning for the facilities was adequate and met the ARRA’s 

goals of transparency and accountability.

5-4C. Optimizing Health Care 

Governance Department Response

The Department concurs with the IG’s assessment.

6. IG-Identified Challenge: Equipping and Training Iraq and Afghan 

Security Forces

6-1A. Iraq Security Forces IG Summary of Challenge

A major national security goal of the U.S. is the establishment of a sovereign, stable, 

and self-reliant Iraq that contributes to the peace and security of the region and with 

which the U.S. can forge a long-term strategic partnership. Supporting the development 

of a professional Iraq Security Force, capable of providing for its internal and external 

defense, is essential to achieving these U.S. objectives.

Fundamental to establishing and nurturing this long-term security partnership is the role 

of the Office of Security Cooperation – Iraq (OSC-I), which was initially established in 

June 2011, expanded in October 2011, and subsequently transitioned to Chief of Mission 

and Department of State authority in December 2011. The OSC-I, operating under Chief 

of Mission authority but administered by DoD personnel, is charged with performing vital 

bilateral security cooperation and security assistance functions. Comprised of DoD 

military, civilian, and contractor personnel, the OSC-I represents a cornerstone 

capability for building an enduring foundation for a long-term security relationship with 

the Government of Iraq. 

To facilitate continued support for developing the Iraq Security Forces, the Department 

transitioned most remaining essential training, equipping, and mentoring activities from 

United States Forces-Iraq to the OSC-I. Robust security cooperation and assistance 

programs, including very significant Foreign Military Sales of U.S. defense technology, 

are being developed and may be seen as an early indicator of the potential for building a 

strong, enduring U.S.-Iraq strategic partnership over the longer term.

6-1B. Iraq Security Forces IG Assessment of Progress

While the OSC-I successfully transitioned from the Department of Defense to the 

Department of State authority by the end of 2011, the U.S. and Iraq governments did 

not conclude certain agreements that were envisioned by the command as necessary to 

enable OSC-I ability to become fully functional within Iraq’s dynamic post-2011 

operating environment. Senior OSC-I officials indicate that the absence of a post-2011 

Security Agreement or Status of Forces Agreement was affecting aspects of their 

operations. Key areas cited by these officials as being impacted included land use 

agreements, force protection, passport/visa requirements, air and ground movement, 

and FMS site stand-up. The precise impact of these command concerns with respect to 

achieving short- and long-term OSC-I goals is unclear. However, having formal, followon Security and Status of Forces agreements was perceived to have potential value in 

clarifying and stabilizing Iraqi government support for day-to-day OSC-I operations and 

would benefit longer-term relationship and partnership building. It is imperative, 
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-24

therefore, that the political and legal framework and authorities necessary be 

established in a timely manner so that the new OSC-I and its personnel can be in a 

strong position to operate effectively, safely, and with the necessary legal protections.

6-1C. Iraq Security Forces Department Response

The Department acknowledges the IG’s challenge.

6-2A. Afghan National Security Forces IG Summary of Challenge

Between now and the end of 2014, U.S. policy and related DoD military strategy in the 

Afghanistan-Pakistan region will be implemented by high-intensity, complex operations 

that emphasize:

• Providing continued training, equipping, partnering and mentoring to enable the 

ANSF to continue to assume the leading security operations role.

• Providing continued training, equipping, partnering and mentoring to professionalize 

the Afghan National Security Forces (ANSF), ensuring “quality, not just quantity.”

• Withdrawing 23,000 U.S. combat forces from Afghanistan in 2012. 

• Conducting a phased drawdown of U.S. combat forces in 2013 and 2014, and

• Continuing to enable the ANSF to assume and sustainably maintain lead 

responsibility for the security of the Afghan people and its government as 

International Security Assistance Force (ISAF) withdraws.

The Department must continue its efforts to develop the capability of the Afghan 

Ministries of Defense and Interior to administratively and logistically sustain the ANSF. 

These efforts include the capacity to plan, program, budget, and execute the fiscal 

resources provided by the international community, along with revenue generated by its 

own government. In addition, there are still certain ANSF combat service support 

functional capabilities that NATO and U.S. Forces will need to develop for the ANSF to be 

able to reach its necessary security capability.

The extremist force elements based in western Pakistan continue to pose a security 

threat to the stability of Afghanistan; therefore, the Department will need to continue 

developing the capacity of the Pakistan Security Forces to maintain internal security and 

eliminate extremist Taliban and Al-Qa’ida forces in the Northwest Frontier safe haven.

A significant challenge will be conducting the phased drawdown of U.S. and Coalition 

military forces and civilians while physically transporting personnel and equipment out of 

Afghanistan. The equipment will either have to be airlifted, or flow by land through 

Pakistan to the Port of Karachi for out-bound transportation by ship or by truck, rail and 

water links via the Northern Distribution Network in Central Asia.

6-2B. Afghan National Security Forces IG Assessment of Progress

The size of the Afghan National Army (ANA) and Afghan National Police (ANP) have 

grown at a very significant rate over the past two years, and the ISAF command is at or 

near the end of the expansion of the ANSF to 352,000 personnel. The focus of the train 

and equip effort has changed from growth to initiatives focused on the sustainment and 

professionalization of the force, with a priority on development of the officer and noncommissioned corps in the ANA and ANP. The partnering of US and Coalition units and 
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-25

training teams has enabled ANA units to accelerate improvement in their operational 

capability.

The success of the counterinsurgency campaign being conducted against the Taliban and 

extremist anti-government elements depends on how well the ANSF provides protection 

for the Afghan people and gains their trust, along with the effectiveness of governance. 

The responsibility to protect the Afghan people falls most directly on the ANP, which 

operates as the direct interface with the population in provinces and districts around the 

country. Of note in this area is the success of the Afghan Local Police initiative, 

supported by both ISAF and the Afghan Ministry of Interior (MoI), to develop, train, and 

equip part-time policemen at the village level to provide security in largely rural areas 

where the presence of the ANSF is insufficiently strong to prevent armed insurgent 

infiltration and activities. As of April 2012, the Afghan Local Police (ALP) strength was 

approximately 12,900 and on track to reach the goal of 30,000 at 99 MoI-approved sites 

across Afghanistan by the end of 2014. However, while the ALP works well when closely 

monitored by U.S. Special Forces, there is, as of yet, no well-defined plan to transfer 

control and supervision of the ALP to effective Afghan oversight. Without such a plan, as 

U.S. forces reduce, the risk that the ALP will dissolve or become abusive militia will 

increase.

The NATO Training Mission – Afghanistan/Combined Security Transition Command –

Afghanistan (NTM-A/CSTC-A) has assisted the Ministry of Defense (MoD) and MoI to 

achieve considerable progress in increasing its institutional training capacity for 

specialized skills and leadership development, while continuing to improve training 

quality, reduce attrition, and improve recruitment.

In addition, U.S. and Coalition forces have implemented an extensive literacy and 

numeracy program for army and police personnel. Along with pay reform, this has also 

improved morale as well as personnel effectiveness. This program will become even 

more essential as security forces continue to enter into more specialized and technical 

training programs requiring a higher level of comprehension.

Although challenges remain, most notably in the development of a functional and 

sustainable ANSF logistics/maintenance capability, the transfer of security and 

governance responsibilities to Afghan lead in provinces and districts across Afghanistan 

continues in accordance with established ISAF and Afghan government plans.

6-2C Afghan National Security Forces Department Response

A key strategic focus remains on training, equipping, and partnering with the ANSF to 

enable the transition of lead security responsibility to the Government of Afghanistan. As 

the ANSF is reaching its end-strength of 352,000, redeployments of U.S. combat forces 

have begun and the transition to ANSF-led security is well underway. Despite the 

progress of the ANSF, challenges remain, and the focus has shifted to closing remaining 

ANSF capability gaps by 2015. Training and advising will be critical to the irreversibility 

of the ANSF lead for nationwide security, and the rolling conversion to Security Force 

Assistance (SFA) has already begun. Assembling sufficient quantities of SFA teams will 

be vital to the campaign as we reduce our force numbers, close and transfer bases, and 

prepare for 2015 and beyond.
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-26

7. IG-Identified Challenge: The Nuclear Enterprise

7-1A. Prior Decline of Focus on the Nuclear 

Enterprise IG Summary of the Challenge

For the past several years, numerous government and non-government organizational 

reports detailed an environment where the nuclear enterprise in the Department had 

experienced a marked but gradual decline in focus upon the nuclear enterprise. That 

decline was characterized by nuclear forces being subordinated to non-nuclear forces in 

military organizations and not receiving sufficient staffing and funding to perform the 

nuclear mission according to past standards. Since the last Management Challenge 

report, fourteen reports were issued that commented on the current state of the nuclear 

enterprise. 

During the past fiscal year, the IG issued a classified report detailing the current security 

environment of the nuclear enterprise. Although the specific findings and 

recommendations of that report are classified, the report identified continuing 

weaknesses in security vulnerability analysis and security alert response times. The 

organizations referenced in the report responded positively to a majority of the findings 

and recommendations. The IG also issued a restricted report to determine the actions 

taken to implement the recommendations made in six DoD and Service specific reports 

regarding the DoD nuclear enterprise. A majority of the recommendations in those six 

reports have been closed.

7-1B. Prior Decline of Focus on the Nuclear 

Enterprise IG Assessment of Progress

DoD Focus on Sustainment Assessment. In the wake of the Minot and Taiwan incidents, 

numerous reports were issued by DoD and private consulting organizations concerning 

the current state of the nuclear enterprise, reasons for the decline of the nuclear 

enterprise, and recommendations to improve that enterprise.

During FY 2012, the DoD IG reviewed follow-up progress on a 2002 report on Physical 

Security of Nuclear Weapons Located in the Continental United States. The U.S. Air 

Force has made significant progress in implementing corrective actions to correct the 

deficiencies identified in those reports. The DoD IG is currently reviewing the 

Cryptographic Modernization program for critical nuclear command and control 

networks.

The following reports were issued either by the DoD IG, the Nuclear Command and 

Control System (NCCS) Support Staff, the DSB, or the GAO since the issuance of the 

FY 2011 Management Challenges report. 

• Report to Congress Pursuant to Public Law 110-417, Duncan Hunter National 

Defense Authorization Act for Fiscal Year 2009, January 2012; “Department of 

Defense Review of the Findings and Recommendations Applicable to the Department 

of Defense Made in the Reports of the Commission to Assess the Threat to the 

United States from Electromagnetic Pulse Attack”

• Biennial Assessment and Report on the Delivery Platforms for Nuclear Weapons and 

the NCCS, National Defense Authorization Act of 2012, Section 1041, January 2012

• Report of the Safety, Security, Reliability, Sustainability, Performance, Military 

Effectiveness of the Trident II (D5) Strategic Weapon System Delivery Platform 

(National Defense Authorization Act of 2012, Section 1051), December 2011
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-27

• Nuclear Command and Control System Support Staff Assessment report on 

“NSPD-28 Requirement for Secure and Survivable Head of State Communications 

With Other Nations,” September 2011

• Nuclear Command and Control System Support Staff Assessment report on “The 

Prime Nuclear Airlift Force,” January 2012

Nuclear Command and Control System Support Staff Assessment report on 

“Assurance of Security and Reliability of Nuclear Command, Control, and 

Communications (NC3) Equipment Using Commercial Off the Shelf Software, 

Hardware, and Firmware,” March 2012

• Fiscal Year 2012 Annual Update to the Report Specified in Section 1251 of the 

National Defense Authorization Act for Fiscal Year 2010, February 16, 2011

• Fiscal Year 2011 Joint Surety Report, April 2012

• Joint Surety 2011 Report on the “Nuclear Weapons Stockpile Assessment”

• US Nuclear Physical Security Collaboration, December 15, 2011

• Interim Report of the Defense Science Board (DSB) Task Force on the Survivability 

of Systems and Assets to Electromagnetic Pulse (EMP) and other Nuclear Weapon 

Effects (NWE), August 2011

• Government Accountability Office Report, GAO-12-512T “ Further Actions Needed by 

U.S. Agencies to Secure Vulnerable Nuclear and Radiological Materials,” 

March 14, 2012

• Government Accountability Office, GAO-12-468, “Strategies and Challenges in 

Sustaining Critical Skills in Federal and Contractor Workforces,” April 26, 2012 

• Government Accountability Office, GAO-12-577R “Evaluation of Report on Feasibility 

of Increasing Air Transportation of Nuclear Weapons, Components, and Materials,” 

May 4, 2012

Joint Chiefs of Staff. During FY 2012, the Chairman, Joint Chiefs of Staff (CJCS),

reported that they have accomplished the following goals:

• The Joint Staff Deputy Directorate for Command, Control, and Nuclear Operations (J36) continued to focus on oversight and implementation of command and control of 

nuclear forces and investment in the National Military Command System command 

centers. This was accomplished with improvements in guidance, training, and 

inspections.

• In support of these focus areas, J-36 briefed and trained members of the Joint Chiefs 

of Staff and Secretary of Defense successors to ensure nuclear command and control 

familiarity within the Department. Annual exercises that focus on nuclear policy and 

strategic deterrence presented opportunities for senior officials to learn about this 

unique environment and to contribute their expertise to develop realistic scenarios.

In concert with the Defense Threat Reduction Agency (DTRA), J-36 performed 

operational and technical assessments of the nuclear enterprise. These assessments 

are formal reports staffed annually or as directed to support and clarify the 

Chairman’s obligations to the Secretary of Defense and the President. They also 

provide an end-to-end look at the systems and procedural “health” of the enterprise 

while giving the Chairman measurable and executable decision tools for command 

and control of the nuclear mission set. Additionally, CJCS-directed Staff Assessment 

Visits ensured command center compliance with established Emergency Action 
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-28

Procedures of the CJCS (EAP-CJCS). Assessment teams visited every Combatant 

Command Center over the course of the year. These visits focused on procedures, 

training, and execution within the Commander’s battle staff.

J-36 worked with the Force Structure, Resources, and Assessment Directorate (J-8), 

the Air Force, and the DoD CIO to ensure the long-term viability of technical 

capabilities within the nuclear command and control system. 

Department of the Air Force. The Air Force reported that they have accomplished the 

following goals since the FY 2011 Management Challenges Report: 

• The Air Force established goals, objectives, and metrics within the 2012 Air Force 

Strategic Plan to assess the nuclear enterprise. The metrics create a comprehensive 

picture of Air Force efforts to achieve specific goals across the nuclear enterprise 

over the next several years. In addition, these metrics provided source data for the 

Air Force Enterprise Senior Leader Dashboard and allow for the necessary oversight 

through measurable and objective measures.

• The Air Force successfully completed the transfer of Continental United States 

Munitions Squadrons from Air Force Materiel Command to Air Force Global Strike 

Command on February 29, 2012. 

• The Air Force developed an Air Force Nuclear Command, Control, and 

Communications (NC3) Integration Plan. Key components of this plan include: 

(1) establishment of a NC3 Community of Interest, a body of NC3 stakeholders 

across five Headquarters Air Force Directorates and seven Major Commands 

(MAJCOMs), charged with identifying Air Force NC3 shortfalls and coordinating 

solutions; (2) establishment of a baseline NC3 architecture, led by the Air Force 

Global Strike Command as the NC3 Chief Architect; and (3) identification of NC3 

capability gaps, leading to MAJCOM prioritized investment.

• The Air Force developed and conducted the first of two in a series of deterrencefocused war games to address operational–level challenges in a multi-polar and 

proliferated nuclear world. Insights from the war games provided depth to additional 

joint tabletop exercises, enhanced engagements with key allies and partners, and 

contributed to deterrence-focused military advice to the Joint Chiefs of Staff. 

• The Air Force built a “Human Capital Plan” for the nuclear enterprise consisting of 

several initiatives to develop personnel with nuclear expertise and ensure the right 

people with the right skills are assigned to critical positions. The Air Force 

established an Intercontinental Ballistic Missile (ICBM) weapons school track, 

creating a corps of personnel with in-depth knowledge and proficiency in ICBM 

operations. The AF introduced a series of courses to educate Airmen of all grades on 

nuclear deterrence operations.

• To strengthen positive inventory control of Nuclear Weapons Related Material 

(NWRM), the Air Force performed an engineering analysis to ensure 100 percent

identification of all NWRM components. A robust screening process was developed, 

utilizing a “score card” evaluation method to standardize and streamline the 

procedures. The process enabled engineers to refine the list, removing 125 items 

that did not meet the criteria and adding 15 which did. This effort improved 

oversight of NWRM by ensuring manpower and resources were focused on items 

actually requiring these extensive control measures. 

• The Air Force has undertaken an effort to revise, clarify, and consolidate guidance 

for the nuclear enterprise, including drafting a nuclear series of Air Force 

instructions. There is a plan in place to write or revise over 75 nuclear publications 
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-29

which will properly align all nuclear enterprise policies and instructions.

The Air Force initiated a comprehensive review of the Air Force nuclear enterprise to 

assess the progress in completing identified objectives to reinvigorate and 

strengthen the enterprise and to formulate new objectives for continuous 

improvement. 

Department of the Navy. The Navy reported that they have accomplished the 

following goals since the FY 2011 Management Challenges Report: 

• The Navy completed the first-ever Navy Nuclear Weapons Comprehensive Biennial 

Self-Assessment. This assessment represents a significant first step in establishing a 

culture of continuous improvement and critical self assessment across the Navy’s 

nuclear weapons enterprise. 

• The Navy assessed all Echelon 1 and 2 fleet and shore commands with nuclear 

weapons responsibilities – a total of 23 organizations. This report and its findings 

were endorsed by the Chief of Naval Operations and the Secretary of the Navy.

7-1C. Prior Decline of Focus on the 

Nuclear Enterprise Department Response

The Department’s summary-level response to the IG’s challenges and assessment of the 

Department’s progress in nuclear enterprise is reported in paragraph 7-2C of this 

section. 

7-2A. Keys to Improvements in the DoD 

Nuclear Enterprise IG Summary of Challenge

As previous Management Challenge reports have stated, the Department needs to 

sustain its focus on the nuclear enterprise, even in the face of probable funding 

reductions. The following elements are key to this sustainment:

• Continue to foster an environment that emphasizes the nuclear mission and 

promotes a reliable, safe, secure, and credible nuclear deterrent. The nuclear 

deterrent is essential to national security and must remain a high DoD priority.

• Continue reviews and studies of all critical elements of the nuclear enterprise to 

identify key deficiencies and methods for improvement.

• Monitor corrective action plans made as a result of previous reviews and studies that 

correct the deficiencies and provide adequate funding and leadership to ensure 

implementation.

• Ensure adequate funding and resources to effectively implement action plans

• Implement the corrective actions and conduct follow-up reviews to ensure that the 

action plans are correcting the deficiencies.

7-2B. Keys to Improvements in the DoD 

Nuclear Enterprise IG Assessment of Progress

The DoD CIO’s National and Nuclear Command Capabilities Executive Management 

Board serves as an advocate, with some enforcement capabilities, to ensure issues are 

brought to leadership’s attention. Organizations having nuclear command and control 

responsibilities are represented at the meetings, which include the appropriate 
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-30

representatives from other departments and agencies involved with the nuclear 

enterprise.

Continuous monitoring and evaluation of the nuclear enterprise by senior leadership 

helps sustain the progress. The Air Force Comprehensive Assessment of Nuclear 

Sustainment is finishing its fourth phase (AFCANS IV). The U.S. Strategic Command’s 

2010 Crystal Fortress Report, current studies directed by the DMAG, and the Navy’s selfassessment, mentioned earlier, are all examples of engaged leadership.

The oversight of the Air Force nuclear enterprise by Air Force Global Strike Command 

and the Assistant Chief of Staff Strategic Deterrence and Nuclear Integration, U.S. Air 

Force (AF/A10), continues to be the most effective guarantor of continuing progress in 

the reliability and safety of the nuclear enterprise. The Air Force Global Strike 

Command, in particular, provides a more focused and active oversight of nuclear 

capable bombers and ICBMs than the Major Commands those forces were previously 

assigned to.

The Navy continues their use of the Nuclear Weapons Oversight Council, which develops 

Navy nuclear weapons policy for the Ballistic Missile Submarine fleet. The assessment 

work of the Navy Nuclear Weapons Comprehensive Biennial Self-Assessments may 

provide a mechanism in future years for evaluating the health of the Navy’s nuclear 

weapons program.

The Administration proposed $11.6 billion in new budget authority for the National 

Nuclear Security Administration for FY 2013, a 1.7 percent decrease over the FY 2012 

request. The budget request includes $7.6 billion for Weapons Activities, including the 

B61 Life Extension Program. Also, with the approval of the New Strategic Arms 

Reduction Treaty, the reduction of total warheads will increase the importance of the 

B61 Life Extension Program.

Continuing Concerns. The re-vitalization of the nuclear enterprise in recent years has 

been facilitated by increased funding levels for personnel staffing and training, systems 

and equipment acquisitions, and materiel maintenance. Continued advancements in 

these sectors cannot be sustained without sufficient financial commitment. Supply chain 

management issues, particularly involving the initial source of critical spare parts, could 

also be an issue of relevance in current and future fiscal years.

Additionally, the nature of deterrence involves a cadre of properly trained personnel in a 

constant state of readiness. This cadre is often out of the public eye. Potential 

reductions in funding for these activities can only result in a diminished state of 

readiness and increases the likelihood for an incident similar to what happened in the 

Minot and Taiwan incidents. During FY 2011 and 2012, the DoD IG classified audits’ 

problems were noted in funding levels for sustainment activities. Recommendations 

were made to the appropriate service authority for corrective action. 

Properly utilizing the limited existing nuclear expertise and growing more expertise 

continues to be a concern, especially within the Air Force. Expertise in the nuclear 

missile crew career field and potentially other career fields may take 5-7 years to 

reconstitute. In the meantime, actions to hire civilians with the needed nuclear expertise 

are being impacted by cuts in civilian personnel slots. At the same time, due to the 

increased emphasis on the nuclear enterprise, the demand for nuclear experience has 

grown: the Defense Threat Reduction Agency, Air Force Inspection Agency, the Air Staff, 

Air Force Nuclear Weapon Center, U.S. Strategic Command, and the Joint Staff all have 

a need for some of the limited existing nuclear expertise.
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-31

Finally, a lack of centralized management of nuclear command and control 

modernization and configuration hinders effectiveness. Some systems lack a program 

office, some nuclear command and control networks depend on funding from multiple 

commands within a service or multiple services. Synchronization between these 

separate organizations with separate priorities must coordinate on a plan to ensure 

programs remains on track. A single authoritative office with responsibility for 

configuration control would help alleviate this difficulty.

7-2C. Keys to Improvements in the 

DoD Nuclear Enterprise Department Response

The Department continues to make significant progress in improving the nuclear 

enterprise. Specifically, new strategic plans and self-assessments, such as the 2012 Air 

Force Strategic Plan and the Navy’s first-ever Navy Nuclear Weapons Comprehensive 

Biennial Self-Assessment, are providing measurable oversight. While much work 

remains, including valuable recommendations provided by oversight reports and 

independent assessments, the Department continues to work with other Federal 

agencies, such as the Department of State and the Department of Energy, to provide 

responsible but innovative solutions through sustainment and modernization programs 

while still maintaining efficacy of the regimen put in place. The robust efforts of the 

Department and its interagency partners support a safe, secure, and effective nuclear 

deterrent. 
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-32

MANAGERS’ INTERNAL CONTROL PROGRAM

The OUSD(Comptroller) leads DoD’s Federal Managers’ Financial Integrity Act (FMFIA) 

program, summarized in the Management Discussion and Analysis (MD&A) section of this 

report, designated as the Managers’ Internal Control Program (MICP). Managers throughout 

the Department are accountable for ensuring effective internal controls in their areas of 

responsibility. All Components are required to conduct a robust programmatic approach to 

establish and assess internal controls for all mission-essential operations. Components that 

are identified in the FIAR guidance are required to include assurances related to financial 

reporting and financial systems in their programs. 

STATEMENT OF ASSURANCE OVER FINANCIAL REPORTING, OPERATIONS 

AND FINANCIAL SYSTEMS PROCESS:

The revised OMB Circular A-123 requires an annual Statement of Assurance that provides 

management’s assurances on the effectiveness of internal controls of overall operations, 

financial reporting, and financial systems. The Department’s 33 Component Heads are 

required to report their respective Component Statement of Assurance to the Secretary of 

Defense. The Components include the 3 Military Departments, 9 Combatant Commands, the 

Joint Staff, the Office of Secretary of Defense, the DoD Office of Inspector General, and 

18 Department Agencies. Following the submission of the Components’ Statements of 

Assurance, the Secretary of Defense produces an overall Department Statement of 

Assurance that reports the Department’s pervasive material weaknesses. Prior to creating 

an annual Statement of Assurance, each Component flowcharts its key business processes 

that impact financial reporting and operations, identifies and assesses risk within the 

processes, identifies and tests internal controls, establishes controls found to be deficient, 

and reports on the results of these assessments and tests. The Department asserts that all 

Components with the exception of one, as prescribed by DoD’s regulatory guidelines, have 

reported their individual statements of assurance over internal controls to the Secretary of 

Defense. More information concerning DoD’s process for developing the Statement of 

Assurance is available at Office of the Under Secretary of Defense (Comptroller). 

TYPES OF MATERIAL WEAKNESSES 

The Department’s management uses the following criteria to classify conditions as material 

weaknesses:

• Merits the attention of the Executive Office of the President and the relevant 

Congressional oversight committees.

• Impairs fulfillment of essential operations or mission.

• Significantly weakens established safeguards against waste, loss, unauthorized use or 

appropriation of funds, property, other assets, or conflicts of interest.

• Constitutes substantial noncompliance with laws and regulations, or

• Nonconformance with government-wide, financial management system requirements.
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-33

Management-identified weaknesses are determined by assessing internal controls, as 

required by the FMFIA, the Federal Financial Management Improvement Act (FFMIA), and 

OMB Circular No. A-123, and fall into one of the following three categories: 

1. FMFIA Section 2, Financial Reporting Material Weaknesses (see Table 1a).

2. FMFIA Section 2, Operations Material Weaknesses (see Table 1b). 

3. FMFIA Section 4, Financial System Nonconformance Weaknesses (see Table 1c). 

FEDERAL MANAGERS’ FINANCIAL INTEGRITY ACT (FMFIA)

1. FMFIA Section 2, Financial Reporting Material Weaknesses. Under the oversight of 

the DoD Financial Improvement Audit Readiness (FIAR) Governance Board, discussed in the 

Department’s FIAR Plan Status Report, DoD’s assessment of its financial reporting identified 

the areas of material weakness listed in Table 1a. The table includes a column, entitled “Ref 

Table 2,” that crosswalks the manager-identified areas of material weakness to similar areas 

of weakness identified by the DoD IG in Table 2. 

Table 1a lists the DoD’s manager-identified 18 categories of material weaknesses in the 

Department’s Internal Control over Financial Reporting. There were no new weaknesses 

identified in FY 2012. 
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-34

Table 1a. Effectiveness of Internal Control over Financial Reporting (FMFIA Section 2)

Statement of Assurance: No assurance 

End-to-End 

Process

Areas of Material 

Weakness

Ref

Table 2

Beginning

Balance New Resolved Reassessed EndingBalance

Budget-to-Report

Appropriations Received 1 1

Fund Balance with 

Treasury (FBWT) 10 1 1

Financial Reporting 

Compilation 2, 7, & 8 1 1

Intragovernmental 

Eliminations 5 1 1

Hire-to-Retire

Health Care Liabilities 1 1

Civilian Pay 1 1

Military Pay 1 1

Order-to-Cash Accounts Receivable 13 1 1

Procure-to-Pay

Contracts 1 1 1

MILSTRIP Orders 1 1 1

Reimbursable Work 

Orders - Grantor 1 1 1

Transportation of 

People 1 1 1

Acquire-to-Retire

Military Equipment 

Assets 11 1 1

General Purpose 

Equipment 4 & 11 1 1

Real Property Assets 11 1 1

Environmental Liabilities 3 1 1

Plan-to-Stock

Inventory 12 1 1

Operating Materials & 

Supplies 6 1 1

Total Financial 

Reporting Material 

Weaknesses

18 18
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-35

Table 1a-1 provides the description and corrective action plan for each material weakness 

related to internal control over financial reporting.

Table 1a-1. FY 2012 Internal Control over Financial Reporting Material Weaknesses 

Material Weaknesses Year 

Identified

DoD 

Components Corrective Actions

Target 

Correction 

Year

1 Appropriations 

Received: The 

Defense Agencies’

processes do not 

effectively account 

for budgetary 

authority 

transactions and 

balances.

FY 2011 Defense 

Agencies

Components are 

implementing controls 

over the apportionment 

and allotment of funds by 

identifying the entire 

transaction population 

and reconciling the 

financial statement 

amount to the general 

ledger, to the detailed 

transactions, and to 

supporting authorizing 

documents (e.g., public 

law, OMB 

apportionments, funding 

authorization 

documents). Components 

are also working with 

sub-allotees to document 

and reconcile funds 

distributed to them.

FY 2013

2 Fund Balance with 

Treasury (FBWT): 

The Department 

cannot reconcile

transactions posted 

to the FBWT general 

ledger accounts 

with transactions 

reported and posted 

to the Department 

of the Treasury’s 

FBWT accounts and 

ensure adequate 

support for FBWT 

transactions. 

FY 2005 Army; Navy; 

DLA; DIA; 

NSA; SMA; 

USSOCOM; 

DTRA

Components are working 

toward integrating 

general ledger systems 

with feeder systems to 

maintain transactionlevel supporting 

documentation for 

disbursements and 

collections. The 

Components also are 

developing the processes 

and controls to reconcile 

transaction-level 

differences between DoD 

and the Department of 

Treasury accounts in a 

timely, efficient manner.

FY 2015

3 Financial Reporting 

Compilation: The 

Department cannot 

prepare accurate 

financial statements 

supported by 

general ledger 

balances and 

adequately 

documented and 

FY 2007 Army, DLA, 

TRANSCOM

The Department 

continues to improve 

business processes and 

controls through the 

implementation of 

enterprise resource 

planning (ERP) systems 

that produce accurate, 

timely and auditable 

financial reports. In 

FY 2015
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-36

Table 1a-1. FY 2012 Internal Control over Financial Reporting Material Weaknesses 

Material Weaknesses Year 

Identified

DoD 

Components Corrective Actions

Target 

Correction 

Year

supported journal 

entries. 

addition, the Department 

is implementing the 

Standard Financial 

Information Structure in 

systems of original entry 

and carried through the 

chain of systems. DFAS 

and Components are 

identifying root causes 

for abnormal balances 

and taking steps to 

change business 

processes to correct the 

problems. Components 

and DFAS are working to 

implement routine 

general ledger tie point 

analyses and 

reconciliations and 

analyzing general ledger 

posting logic to reduce 

the number of 

unsupported journal 

entries.

4 Intragovernmental 

Eliminations: The 

Department is 

unable to collect, 

exchange, and 

reconcile buyer and 

seller 

intragovernmental 

transactions, 

resulting in 

unsupported 

adjustments.

FY 2008 DepartmentwideThe Department is

collaborating with the 

Department of the

Treasury, OMB, and 

Federal partners to 

develop and implement a 

government-wide 

solution to capture the 

transaction-level detail 

needed to reconcile 

intragovernmental 

transaction activity. It is 

also developing standard 

business processes and 

data to capture trading 

partner information at 

the transaction level and 

support eliminations, as 

well as implementing 

replacement systems and 

a standard financial 

information structure 

which will incorporate the 

necessary elements to 

enable the Department to 

correctly report, 

reconcile, and eliminate 

intragovernmental 

balances. 

FY 2015
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-37

Table 1a-1. FY 2012 Internal Control over Financial Reporting Material Weaknesses 

Material Weaknesses Year 

Identified

DoD 

Components Corrective Actions

Target 

Correction 

Year

5 Health Care 

Liabilities: The 

current military 

health system 

financial processes 

cannot collect 

sufficient 

transaction-level 

cost and 

performance 

information for 

procedures 

performed in 

military treatment 

facilities.

FY 2003 MERHCF; SMA Medical Components are 

implementing procedures 

to improve coding and 

financial reconciliations

for military treatment 

facilities’ operations as 

well as developing and 

implementing a 

methodology to 

reimburse military 

treatment facilities on a 

per capita basis. This

methodology will be 

similar to arrangements 

with managed-care 

providers. 

Implementation of SMA 

ERPs will improve overall 

financial reporting.

FY 2017

6 Civilian Pay: The 

Department cannot 

effectively account 

for transactions and 

balances in the 

civilian pay process.

FY 2011 DepartmentwideComponents are 

addressing the reliability 

and existence of 

supporting 

documentation retained 

within the applicable 

payroll, personnel and 

time and attendance 

systems. They also are 

identifying, assessing, 

and testing IT general 

and application controls. 

In addition, Components 

are also defining and 

prioritizing sub-processes 

into assessable units and 

evaluating the sufficiency 

of the current 

SSAE 16/SAS 70 efforts.

FY 2014

7 Military Pay: The 

Department cannot 

effectively account 

for transactions and 

balances in the 

military pay 

process.

FY 2011 DepartmentwideComponents are 

developing processes to 

reconcile supporting 

documents to the general 

ledger on a repeatable 

basis in order to audit 

around the numerous 

micro- applications used 

to transfer data from the 

Defense Joint Military Pay 

System to the general 

ledgers. 

FY 2014
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-38

Table 1a-1. FY 2012 Internal Control over Financial Reporting Material Weaknesses 

Material Weaknesses Year 

Identified

DoD 

Components Corrective Actions

Target 

Correction 

Year

8 Accounts 

Receivable: The 

Department cannot 

accurately record, 

report, collect, and 

reconcile 

intragovernmental 

accounts receivable 

and accounts 

receivable due from 

the public. 

FY 2003 Army; Air 

Force; DLA; 

SMA

Components are 

continuing to implement 

ERP systems to improve 

collections, age 

receivables, and minimize 

manual processes. They 

also are implementing 

the Standard Financial 

Information Structure in 

systems of original entry. 

This will improve the TriAnnual Review process 

(DoD FMR 7000.14-R, 

Volume 3, Chapter 8) and 

overall order-to-cash 

process, and improve 

reconciliations between 

entitlement systems and 

accounting systems, 

including identification of 

aging accounts. 

FY 2015

9 Contracts: The 

Department cannot 

effectively account 

for transactions and 

balances supporting 

the contracts 

procure-to-pay 

process.

FY 2003 DepartmentwideComponents are 

developing processes to 

improve timely 

deobligation of funds 

upon contract delivery or 

completion, perform 

regular reviews of 

obligation estimates, and 

require the use of data 

currently distributed from 

contract writing systems 

to support timely and 

accurately recording of 

obligations/deobligations 

of funds. They also are 

assessing the use and 

compliance by accounting 

systems of accounts 

payable data, ensuring 

payables and obligation 

estimates are recorded 

upon acceptance of goods 

or services and that 

accounting systems track 

obligations and 

disbursements by 

contract and line item.

FY 2014
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-39

Table 1a-1. FY 2012 Internal Control over Financial Reporting Material Weaknesses 

Material Weaknesses Year 

Identified

DoD 

Components Corrective Actions

Target 

Correction 

Year

10 (MILSTRIP Orders): 

The Department 

cannot effectively 

account for 

transactions and 

balances in the 

Military Standard 

Requisitioning and 

Issues Procedures 

(MILSTRIP) Orders 

procure-to-pay 

process. 

FY 2011 DepartmentwideComponents are 

documenting processes 

and key controls and 

identifying and testing 

key controls in the 

requisition and issue of 

material, as well as 

testing the interfacing 

data between the 

logistics receipt 

processing systems and 

the financial systems. 

Components also are 

verifying the timely 

recording of accounts 

payable to ensure the 

payment does not occur 

prior to physical receipt 

of material and validating 

that returns are 

authorized and, if 

appropriate, a financial 

transaction is recorded.

FY 2014

11 Reimbursable Work 

Orders (Grantor):

The Department

cannot effectively 

account for 

transactions and 

balances supporting 

the Reimbursable 

Work Orders –

Grantor procure-topay process. 

FY 2011 DepartmentwideComponents are 

identifying and testing 

key controls related to 

the process, to include 

orders accepted; 

expenses; receivables 

and collections; recorded 

manually or automated; 

and those organizational 

roles or systems 

performing these 

transactions. 

FY 2014

12 Transportation of 

People: The 

Department cannot

effectively account 

for transactions and 

balances supporting 

the transportation 

of people. 

FY 2011 DepartmentwideComponents are 

developing plans to 

address ‘segregation of 

duties’ internal control 

issues within the 

transaction system due to 

overlapping permissionlevel assignments, as 

well as demonstrating 

effective information 

technology general and 

application controls.

FY 2014
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-40

Table 1a-1. FY 2012 Internal Control over Financial Reporting Material Weaknesses 

Material Weaknesses Year 

Identified

DoD 

Components Corrective Actions

Target 

Correction 

Year

13 Military Equipment 

Assets: The 

Department's 

financial systems do 

not support 

capturing and 

recording the 

quantity and 

historical cost of 

military equipment 

in compliance with 

Federal accounting 

standards.

FY 2003 Army; Navy; 

MDA ; 

USSOCOM

Components are following 

a strategy to first validate 

the existence and 

completeness of mission 

critical asset records in 

logistics and accounting 

systems. They also are 

developing a 

methodology to report 

property values, 

determine the 

appropriate property 

classifications, prepare

for site visits to perform 

inventory counts, and 

implement property 

accountability policies 

and procedures. 

FY 2017

14 General Purpose 

Equipment: The 

Department’s 

practices do not 

meet Federal 

accounting 

standards for 

financial reporting 

of general personal 

property, 

specifically in the 

quantity and value 

of general 

equipment.

FY 2006 Army; Air 

Force; Navy; 

DLA; DIA; 

NGA; 

USSOCOM; 

NSA; MDA 

Components are

validating the existence 

and completeness of 

general purpose 

equipment before moving 

forward to record the 

valuation of such 

equipment and 

identifying property in 

the possession of 

contractors and ensuring

information in the 

property management 

systems is accurately 

reported.

FY 2017

15 Real Property 

Assets: The 

Department cannot 

provide assurance 

that real property 

asset quantities and 

values reported in 

the financial reports 

are accurate.

FY 2003 Army; Navy; 

DLA; WHS; 

NGA; 

USSOCOM; 

DIA

Components have 

implemented real 

property inventory 

requirements data 

standards. In addition, 

Components are 

implementing sustainable 

real property 

accountability and 

construction in progress 

(CIP) business processes 

and management 

controls; reconciling real 

property records to 

ensure assets exist and 

records are complete; 

and assessing the 

effectiveness of 

management controls. 

FY 2017
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-41

Table 1a-1. FY 2012 Internal Control over Financial Reporting Material Weaknesses 

Material Weaknesses Year 

Identified

DoD 

Components Corrective Actions

Target 

Correction 

Year

Additionally, the 

Components will 

periodically evaluate the 

quality of real property 

data by making 

comparisons with 

physical assets and 

annual reconciliation. All 

stated steps will be 

validated by OSD(I&E) to 

ensure completeness of 

measures effectiveness. 

16 Environmental 

Liabilities: The 

Department cannot

provide assurance 

that clean-up costs 

for all of its 

ongoing, closed, 

and disposal 

operations are 

identified, 

consistently 

estimated, and 

appropriately 

reported. 

FY 2001 Army; Air 

Force; USACE

Components are

implementing systems, 

processes, and controls 

to ensure the accuracy of 

site-level liability data to 

report environmental 

liabilities; updating 

guidance and training 

base-level environmental 

personnel on processes 

and cost to complete 

estimating practices; 

and standardizing cost 

estimating supporting 

documentation practices.

FY 2015

17 Inventory: The 

Department cannot

accurately account 

for the quantity and 

value of inventory 

reported in its 

financial 

statements. 

FY 2005 Army; Navy; 

Air Force; DLA

Components are 

developing physical 

inventory processes, 

including the 

reconciliation of 

quantities of inventory 

with data recorded in the 

accounting systems.

FY 2016

18 Operating Material 

& Supplies (OM&S): 

The Department 

cannot accurately 

account for the 

quantity and value 

of operating 

material and 

supplies.

FY 2005 Army; Navy; 

Air Force; 

USSOCOM

Components are 

implementing ERPs that 

will track OM&S 

purchases and issuances 

at a transaction level to 

address this weakness as 

well enhancing physical 

inventory processes to 

ensure accurate 

reporting.

FY 2017
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-42

2. FMFIA Section 2, Operational Material Weaknesses. The Components use an entitywide, risk-based, self-assessment approach to establish and assess internal controls for 

mission-essential operations. Table 1b lists the material weaknesses disclosed from these 

annual assessments. The Department aligns its reported material weaknesses into 

17 categories, as outlined in the Department of Defense Instruction (DoDI) 

Number 5010.40, “Managers Internal Control Program Procedures”, dated July 29, 2010.

Table 1b. Effectiveness of Internal Control over Operations (FMFIA Section 2)

Statement of Assurance: Qualified

Area of Material Weakness Beginning 

Balance New Resolved Reassessed Ending Balance

1 Acquisition 1 1

2

Communications, 

Intelligence and/or 

Security

4 4

3 Comptroller and/or 

Resource Management 2 2

4 Contract Administration 1 1 2

5 Force Readiness 2 2

6

Personnel and/or 

Organizational 

Management

3 1 12 3

7 Property Management 1 1

8 Supply Operations 1 1

Total Operational Material 

Weaknesses 15 2 1 16

Table 1b-1 provides the description and corrective action plan for each material weakness 

related to internal control over operations in Table 1b.

Table 1b-1. FY 2012 Internal Control over Operations Material Weaknesses

Material Weaknesses Year 

Identified

DoD 

Components Corrective Actions

Target 

Correction 

Year

1 Acquisition 

The Department 

lacks processes to 

maximize the return 

on weapon system 

investments. In 

addition, the 

Department must 

find ways to deliver 

more capability to 

the warfighter at a 

lower cost.

FY 2011 DepartmentwideThe Department is 

developing an analytical 

approach to prioritize 

capability needs, 

empowering portfolio 

managers to prioritize 

needs, make decisions, and 

allocate resources. This 

enables programs and 

individuals to be held 

accountable for policy 

implementation within

milestone and funding 

Reassessed

annually 

based on 

incremental

improvements

 2 Partially resolved resulting in reclassification to Reportable Condition
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-43

Table 1b-1. FY 2012 Internal Control over Operations Material Weaknesses

Material Weaknesses Year 

Identified

DoD 

Components Corrective Actions

Target 

Correction 

Year

decisions through the use of 

reporting metrics.

2 Communications, 

Intelligence and/or 

Security

a Controls related to 

safeguarding 

Personally 

Identifiable 

Information (PII) are 

ineffective. Metrics 

demonstrate a need 

to strengthen the 

existing controls or 

develop new 

safeguarding 

policies. 

FY 2011 Navy The Navy plans to 

implement the use of 

individual unique 

identification numbers. In 

addition, the Navy will 

continue to monitor 

statistical data to evaluate 

whether high-risk breaches 

continue to decline. 

FY 2013

b Processes are not in 

place to ensure that 

military, civilian, and 

contractor personnel 

with Information 

Assurance (IA) 

duties have the 

proper certification 

in their computer 

network area of 

responsibility.

FY 2011 Air Force The Air Force is developing 

and installing a training and 

certification system to track 

IA personnel certifications. 

FY 20133

c Weaknesses exist in 

the Department’s 

management and 

assurance of the 

reliability and 

security of the 

information 

technology 

infrastructures.

FY 2006 Navy; 

USAFRICOM

The Navy is developing and 

implementing instructions 

and policies for tracking 

equipment accounts 

supporting Navy contracts 

and a uniform equipment 

request and loan tracking 

system for managing and 

tracking information.

USAFRICOM plans to assess 

its consolidated enterprise 

and to develop additional 

requirements; engineer, 

implement, operate, and 

maintain a joint enterprise 

network; and provide 

additional capabilities for 

the tactical local area 

network.

FY 20133

 3 Target correction date was reported as FY 2012 in the FY 2011 Statement of Assurance. In FY 2012, the target 

correction date was reevaluated and extended to a future date
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-44

Table 1b-1. FY 2012 Internal Control over Operations Material Weaknesses

Material Weaknesses Year 

Identified

DoD 

Components Corrective Actions

Target 

Correction 

Year

d Internal assessments 

have identified 

weaknesses in the 

Department’s cyber 

security controls, 

potentially increasing 

vulnerability of DoD 

systems.

FY 2011 OSD; 

USAFRICOM

The Department will 

continue ongoing actions to 

address weaknesses in the 

complex network of 

systems referred to as the 

DoD Information Network 

Systems. The Department 

is updating identified 

security controls to current 

industry standards. The 

DoD also is enhancing the 

system certification and 

accreditation process to 

incorporate risk 

management throughout 

the systems lifecycle. This 

includes implementing a 

continuous risk monitoring 

program that will identify 

weak security controls and 

assess corrections. The 

Joint Information 

Environment, scheduled for 

completion in FY 2018, is 

creating a shared 

infrastructure and single 

security architecture that 

gives better visibility of 

network activity at points of 

vulnerability. In FY 2013, 

DoD will continue to 

implement insider threat 

protection such as Public 

Key Infrastructure and data 

access monitoring.

FY 20133

3 Comptroller and/or 

Resource 

Management

a The Department’s 

current business 

processes, systems, 

and internal controls 

do not provide 

reliable, accurate 

and verifiable 

financial statements. 

Further, the financial 

management 

workforce needs to 

be well-trained to 

FY 2011 DepartmentwideThe Department is 

implementing established 

guidance that will enable 

Components to improve 

their processes, systems 

and controls. The biannual 

FIAR Plan Status Report 

outlines the Department’s 

and Components’ progress 

and future plans for 

implementing ERPs and 

improving standard 

FY 2017

 3 Target correction date was reported as FY 2012 in the FY 2011 Statement of Assurance. In FY 2012, the target 

correction date was reevaluated and extended to a future date
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-45

Table 1b-1. FY 2012 Internal Control over Operations Material Weaknesses

Material Weaknesses Year 

Identified

DoD 

Components Corrective Actions

Target 

Correction 

Year

ensure the 

Department’s 

programs and 

payments comply 

with financial 

management laws 

and regulations.

operating procedures and 

controls related to 

producing financial 

statements by FY 2017.

b Weaknesses within 

the funds control 

processes result in 

the inability to 

adequately track 

funds consistent with 

regulations, policies, 

existing laws, and 

use fund execution 

information to 

support budget 

requests. The lack of 

adequate funds 

control has led to 

several Anti 

Deficiency Act 

violations.

FY 2011 OSD; 

USSOCOM

The Department is 

enhancing systems for 

tracking funds in addition to

publishing guidance and 

scheduling training for 

personnel related to funding 

activities. The Department 

requires Components to 

review and evaluate 

training records to ensure 

personnel certifying and 

handling funds have 

financial management and 

fiscal law training.

FY 20134

4 Contract 

Administration

a The Department’s 

lack of well-defined 

requirements, the 

use of ill-suited 

business 

arrangements, and 

the inadequate 

number of trained 

acquisition and 

contract oversight 

personnel contribute 

to unmet 

expectations and 

place the 

Department at risk 

of potentially paying 

more than 

necessary.

FY 2006 DepartmentwideThe Department is revising 

guidance on contracting 

operations, which includes 

oversight, responsibilities, 

policy, and defining roles, 

as well as assessing the 

effectiveness of efforts to 

improve competition, 

contracting arrangements, 

and incentives. The 

Department intends to fully 

integrate operational 

contract support through 

education and predeployment training in 

addition to establishing 

improved processes and 

procedures. 

Reassessed 

annually 

based on 

incremental 

improvements

b Clearing the backlog 

of contracts to be 

closed out continues 

to be a challenge for 

FY 2012 DCMA DCMA and Defense Contract 

Audit Agency (DCAA) have 

been partnering and 

evaluating an option that 

FY 2014

 4 Target correction date was reported as FY 2012 in the FY 2011 Statement of Assurance. In FY 2012, the target 

correction date was reevaluated and changed to an earlier date due to a component correcting its material 

weakness
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-46

Table 1b-1. FY 2012 Internal Control over Operations Material Weaknesses

Material Weaknesses Year 

Identified

DoD 

Components Corrective Actions

Target 

Correction 

Year

the Department. The 

number of over-aged 

contracts increased 

28% in 

FY 2012 (from 

approximately 

28,000 in FY 2011 to 

36,000 in FY 2012) 

and this number is 

expected to continue 

to rise. Over 75% of 

the current overaged contracts are 

due to the lack of 

indirect rates. This 

causes unspent 

contract funds to be 

returned to the 

Department of the 

Treasury if not used 

by the end of the 

fiscal year. 

would allow for a review of 

a sample of proposals 

within acceptable risk 

allowances; this will provide 

DCMA contracting officers 

the ability to settle indirect 

rates and close out 

overaged contracts. 

Additionally, DCMA and 

DCAA are working 

collaboratively in 

developing and 

implementing training, 

creating a standardized 

format for more effective 

and efficient dissemination 

of information. 

5 Force Readiness

a The Air Force has 

failed to effectively 

implement a 

weapons-of-massdestruction 

emergency response 

program, which 

includes plans, 

policy, and reporting 

requirements, in 

addition to the 

management of 

equipment funds and 

inventory levels. 

FY 2011 Air Force The Air Force is developing 

a weapons-of-massdestruction emergency 

response program, which 

includes training personnel 

and ordering necessary 

equipment to ensure 

appropriate inventory levels 

and standardized policies 

for reporting emergencies 

exist.

FY 20135

b Air and Space 

Expeditionary Force 

Unit Type Code 

Reporting Tool (ART) 

reporting did not 

accurately reflect Air 

Force readiness. 

Specifically, Air Force 

officials did not 

accurately report 

Unit Type Code 

FY 2010 Air Force Rewrite AFI 10-401 

procedures to expand the 

waiver process and perform 

validations.

FY 20135

 5 Target correction date was reported as FY 2012 in the FY 2011 Statement of Assurance. In FY 2012, the target 

correction date was reevaluated and extended to a future date
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-47

Table 1b-1. FY 2012 Internal Control over Operations Material Weaknesses

Material Weaknesses Year 

Identified

DoD 

Components Corrective Actions

Target 

Correction 

Year

(UTC) readiness 

assessments at 12 of 

14 wings reviewed. 

On average for 

calendar year 2008, 

commanders either 

did not report, or did 

not report in a timely 

manner, readiness 

assessments for 

12% of 129,000 

UTCs in ART. 

Additionally, Air 

Force officials did not 

process 24% of 

116 tasking reclamas 

and 48% of tasking 

waivers in a timely 

manner.

6 Personnel and/or 

Organizational 

Management

a Audits have found 

that DCAA personnel 

lacked sufficient 

professional 

judgment and quality 

to properly plan, 

execute and report 

findings due to 

improper personnel 

qualifications and 

organizational 

mismanagement.

FY 2009 DCAA DCAA has developed and 

implemented policies and 

procedures to ensure 

auditors receive sufficient 

training. DCAA plans to 

institute peer reviews, in 

order to confirm the 

progress made towards 

improving audit quality. 

FY 20135

b The lack of quality 

assurance training 

for the acquisition 

workforce, along 

with the increasing 

complexity of 

products purchased, 

inhibits the agency’s 

ability to conduct 

necessary and 

critical reviews of 

contract 

documentation. 

DCMA projects that 

approximately 50% 

of its 8,000+ 

FY 2010 DCMA DCMA is developing and 

implementing a formalized 

education, training, and 

certification program for all 

levels of employees. 

FY 2014

 5

Target correction date was reported as FY 2012 in the FY 2011 Statement of Assurance. In FY 2012, the target 

correction date was reevaluated and extended to a future date
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-48

Table 1b-1. FY 2012 Internal Control over Operations Material Weaknesses

Material Weaknesses Year 

Identified

DoD 

Components Corrective Actions

Target 

Correction 

Year

workforce will have 

less than 5 years’ 

experience within 

the next 5 years. 

c OSD has identified 

28 Mission Critical 

Occupations and two 

Mission Critical 

Function Groups with 

potential skillset 

gaps that may 

impact the ability to 

meet mission 

objectives

FY 2006 DepartmentwideDoD has implemented a 

process to identify 

occupations and function 

groups with skill gaps and 

to develop corrective action 

plans to remediate 

identified gaps. The process 

includes conducting internal 

and external environmental 

scans of political actions, 

legal policies, needed 

workforce skills, 

organizational goals and 

constraints, impacts to the 

workforce, and strategic 

roles in accomplishing the 

mission and executing 

strategy. The scan 

determines current 

workforce supply, evaluates 

future demand for filling 

current and new positions, 

analyzes recruitment and 

retention of data, develops 

forecasts using data 

provided by Functional 

Community Managers, and 

conducts skill gap analyses 

to identify strategies for

skill gap closure.

FY 2015

7 Property 

Management

The Department has 

not properly trained 

staff or enabled 

sufficient tools to 

address the 

accountability 

requirements in 

place to adequately 

oversee and execute 

personal property 

transactions.

FY 2011 DepartmentwideThe Department is 

establishing procedures and 

training personnel on 

property management 

policies. 

The Components will 

establish accountable 

records that will identify 

property, to include

Government Furnished 

Property. 

FY 20166

 6 Target correction date was reported as “reassessed annually based on incremental improvements” in the FY 2011 

Statement of Assurance. In FY 2012, the target correction date was reevaluated and changed to FY 2016
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-49

Table 1b-1. FY 2012 Internal Control over Operations Material Weaknesses

Material Weaknesses Year 

Identified

DoD 

Components Corrective Actions

Target 

Correction 

Year

OUSD (AT&L) will validate 

accountable property 

records and supporting 

documentation through 

existence and completeness 

testing.

8 Supply Operations

The Department 

lacks management 

of supply inventories 

and responsiveness 

to warfighters’ 

requirements.

FY 2011 DepartmentwideThe Department is 

improving Supply Change 

Management operations 

through better demand 

forecasting, asset visibility, 

and distribution processes 

including: 

developing and 

implementing a 

comprehensive inventory 

management plan, 

expanding automated 

process to worldwide 

inventory and linkages to 

distribution, and executing 

materiel distribution 

through stock positioning.

Reassessed

annually 

based on 

incremental 

improvements
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-50

3. FMFIA Section 4, Financial System Nonconformance Weaknesses: The 

Department requires financial system conformance with federal requirements and reports. 

The Department reported one weakness that includes a wide range of pervasive problems 

related to financial systems. Table 1c shows the resulting weakness.

Table 1c. Conformance with Financial Management System Requirements (FMFIA Section 4)

Statement of Assurance: Systems do not conform to financial management system requirements

Non-Conformances Ref

Table 2

Beginning

Balance New Resolved Reassessed EndingBalance

1. Financial Management 

Systems 9 1 1

Total System Conformance 

Material Weaknesses 9 1 1

Table 1c-1 provides the description and corrective action plan for the material weakness 

related to internal control over financial systems.

TABLE 1c-1. FY 2012 Internal Control over Financial Systems Material Weakness

Material Weaknesses Year 

Identified

DoD 

Components Corrective Actions

Target 

Correction 

Year

1 Financial 

Management 

Systems: The 

Department’s 

financial systems 

were originally 

developed to meet 

the requirements of 

budgetary 

accounting and do 

not provide the 

capability to record 

costs and assets in 

compliance with 

current accounting 

standards. 

Improvements to the 

current systems 

environment are 

complicated by the 

use of and reliance 

upon many mixed 

systems that are not 

well integrated.

FY 2001 DepartmentwideMost DoD Components 

have embarked on an 

effort to implement a 

compliant, end-to-end 

financial management 

system, anchored by 

ERPs that provide the 

core financial system as 

well as replacing many of 

the mixed (feeder) 

systems. 

FY 2017
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-51

SUMMARY OF FINANCIAL STATEMENT AUDIT 

The following Table 2 lists the DoD IG’s identified 13 areas of material weakness in the

Department’s financial statement reporting. 

Table 2. Summary of Financial Statement Audit

Audit Opinion: Disclaimer

Restatement: Yes

Areas of Material Weakness Beginning

Balance New Resolved Consolidated EndingBalance

1 Accounts Payable 1 1

2 Accounting Entries 1 1

3 Environmental Liabilities 1 1

4 Government Property in Possession of 

Contractors 1 1

5 Intragovernmental Eliminations 1 1

6 Operating Materials and Supplies 1 1

7 Reconciliation of Net Cost of 

Operations to Budget 1 1

8 Statement of Net Cost 1 1

9 Financial Management Systems 1 1

10 Fund Balance with Treasury 1 1

11 General Property, Plant & Equipment 1 1

12 Inventory 1 1

13 Accounts Receivable 1 1

Total Material Weaknesses 13 13

FEDERAL FINANCIAL MANAGEMENT IMPROVEMENT ACT 

The DoD IG and the audit agencies within the Military Services have reported on DoD’s 

noncompliance with FFMIA. The DoD’s noncompliance is due to its reliance upon legacy 

financial management systems by the various Components. These legacy financial systems, 

for the most part, do not comply with the wide range of requirements for systems 

compliance, in accordance with FFMIA and therefore do not provide the necessary level of 

assurance that the core financial system data or the mixed systems information can be 

traced to source transactional documentation. Table 3 reflects DoD’s compliance with 

FFMIA. 

Table 3. Compliance with Federal Financial Management Improvement Act

Agency Auditor

Overall Substantial Compliance No No

1. System Requirements No No

2. Accounting Standards No No

3. U.S. Standard General Ledger at Transaction Level No No
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-52

IMPROPER PAYMENT AND PAYMENT RECAPTURE PROGRAMS 

OVERVIEW 

This section reports on the Department’s compliance with The Improper Payments 

Information Act (IPIA) of 2002, as amended by the Improper Payments Elimination and 

Recovery Act of 2010 (IPERA), that require agencies to report information on improper 

payments to the President and Congress in the annual Agency Financial Report (AFR) and 

the Departments payment recapture programs.

Beginning in FY 2006, OMB determined that all DoD payments are susceptible to the risk of 

error based on the large volume of transactions and high dollar amounts of annual 

disbursements. Since that time, the Department has reported on the following payment 

categories: 

(1) Military Health Benefits

(2) Military Retirement

(3) Military Pay

(4) Civilian Pay

(5) Travel Pay

(6) Commercial Pay

In the FY 2007 AFR, the U.S. Army Corps of Engineers (USACE) began reporting travel 

improper payments, and in the FY 2009 AFR, began reporting commercial pay improper 

payments. 

The DFAS, USACE, and TMA are the primary disbursing components within the Department. 

A few additional DoD disbursement operations also report annually:

• Army-Europe – reports travel improper payments

• Army-Korea – reports travel improper payments

• Department of the Navy reports Civilian Mariner (payroll) improper payments

The following tables, which are required by OMB Circular No. A-136, are included at the end 

of this section: 

• Improper Payment Reduction Outlook (Table 4)

• Payment Recapture Audit Reporting (Table 5)

• Payment Recapture Audit Targets (Table 6)

• Aging of Outstanding Overpayment (Table 7)

• Disposition of Recaptured Funds (Table 8)

• Overpayments Recaptured Outside of Payment Recapture Audits (Table 9)

Risk Assessment

Because OMB determined that all DoD payments are risk susceptible, the Department

maintains a more conservative position than required by IPERA and considers all payment 
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-53

categories as high risk, annually testing and reporting improper payments in all six 

categories. The DFAS also monitors changes in programs associated with OMB-mandated 

criteria (e.g., a large increase in annual outlays, regulatory changes, newly-established 

programs, etc.) to track troubling trends and implement corrective measures, as necessary. 

Numerous pre-payment and post-payment controls further minimize improper payments as 

well as improve estimates and identify corrective actions. 

The USACE assessments for travel and commercial payments address the effectiveness of 

internal controls, such as pre-payment reviews, to prevent improper payments as well as 

system weaknesses identified internally or by outside audit activities. The USACE Financial

Management System (CEFMS) provides internal system standards that adhere to U.S. 

Generally Accepted Accounting Principles as well as process controls, providing the process 

safeguards to monitor and ensure that pre-payment examination requirements are met. The 

USACE also monitors changes in programs to track trends and implement corrective actions, 

as necessary. 

The TMA contracts with an external independent contractor (EIC) to provide an 

independent, impartial review of reimbursement methodologies and claims processing 

procedures used by TRICARE’s purchased care contractors. The EIC’s responsibility is to 

identify improper payments as a result of contractors’ noncompliance with TRICARE 

payment/reimbursement policies, regulations, and contract requirements. The EIC manually 

reviews medical, Active Duty dental and pharmacy claims documentation and re-adjudicates 

processed claims submitted by the purchased care contractors to detect errors. Postpayment claims reviews are conducted on a recurring quarterly, semi-annual, and annual 

basis as contractually defined in the EIC and purchased care contracts. The TMA program 

managers also complete an annual risk assessment based on the evaluation of the quarterly 

and semi-annual claim reviews performed by the EIC or based on other reviews. 

Statistical Sampling Process

The three primary Defense disbursing components (DFAS, TMA, and USACE) all use 

statistically valid, random sampling methods designed to meet or exceed OMB’s 

requirements of a 90 percent confidence interval, plus or minus 2.5 percent, for estimating 

and projecting the Department’s annual improper payments for each of the six programs 

identified in the Overview section. The smaller disbursing components (e.g., Army-Korea 

travel payments, or USACE travel pay) normally perform 100 percent post-payment reviews 

or a full review of payments above a certain dollar threshold with random sampling for 

lower-dollar payments. The TMA uses stratified random sampling for certain health claim 

categories.

Military Health Benefits. There are two types of payment samples: one for denied claims 

and one for non-denied claims (claims that were paid). In this way, TMA can be sure that 

claims were either paid or denied correctly. The TMA uses a stratified random sample 

process to select medical, pharmacy or dental claims for review.

Military Pay. The Department randomly samples accounts for the Active Duty (Army, 

Navy, Air Force, and Marine Corps) and Reserve Components (Army Reserve, Army National 

Guard, Navy Reserve, Air Force Reserve, Air National Guard, and Marine Corps Reserve) on 

a monthly basis. The DFAS selects the accounts for each Component to review and produce 
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-54

annual estimates of improper payments. 

Civilian Pay. The DFAS randomly samples Civilian Pay accounts from each of the 

Components (Army, Air Force, Navy/Marine Corps, and Defense Agencies) on a monthly 

basis. The DFAS processes the largest portion of DoD’s civilian payments; however, both 

the Navy and Army independently process civilian payments for civilian mariners and local 

national payrolls in foreign countries. These amounts are reported by Components and 

included in the total Civilian Pay payments for the Department. 

DFAS Commercial Pay. In FY 2012, DFAS implemented statistically valid, random 

sampling for commercial payments by site and system for payments that DFAS computes.

Approximately 2,000 invoices were reviewed monthly across the DFAS sites.

Disbursements in the Navy Enterprise Resource Planning (NERP) System that are computed

by the Navy are reviewed by the Navy; however, its sampling and review plan was not in 

place early enough in FY 2012 to report improper payments in this year’s AFR. The NERP 

disbursement universe for FY 2012 was approximately $1.4 billion.

Military Retirement and Annuitant Benefit Payments.

The monthly random sampling universe of military retirement payments includes both the 

retired and annuitant pay accounts. The FY 2012 scope of the pay reviews for retired and 

annuitant pay was expanded to include drilling reserve retiree offsets, Survivor Benefit 

Plans, transfers to/from the Temporary Disability Retired List to the Permanent List, and 

Veterans Affairs offsets. Special reviews continue for Combat Related Special Compensation, 

Concurrent Receipt of Disability Payment, daily payroll accounts, and other targeted areas.

Travel Pay. The DFAS reports the largest portion of the Department’s travel payments 

made by both the Defense Travel System (DTS) and Windows Integrated Automated Travel 

System (WinIATS) for the Department 

of the Army and select Defense 

Agencies. The DFAS randomly samples

travel vouchers from each system on a 

monthly basis. The Department’s total 

travel payments include travel 

payments computed, paid, and reported 

independently by the Military Services 

and other Defense agencies. Table 4, 

included at the end of this section, 

represents the combined results of the 

review of DFAS-disbursed travel 

payments as well as non-DFASdisbursed travel payments for ArmyEurope, Army-Korea, Air Force, and 

Navy. Both Temporary Duty Travel 

(TDY) and Permanent Change of Station 

(PCS) travel vouchers are included in 

the post-payment reviews. 

Figure A-1. Improper Payment Rate –

Military Health Benefits

B10-37

0.42%

0.24% 0.15%

2.00% 2.00% 2.00%

0.00%

0.50%

1.00%

1.50%

2.00%

2.50%

3.00%

FY 2010 FY 2011 FY 2012 FY 2013

Target

FY 2014

Target

FY 2015

Target

FY 2012 Target 2.00%

Note: TMA reports 12 months in arrears; i.e., the 

figures listed for FY 2012 are from FY 2011.
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-55

Root Causes of Error and Corrective Actions

Military Health Benefits. As shown in Figure A-1, the Department projects 0.15 percent in 

FY 2012 Military Health Benefits improper payments. The Department’s purchased care 

contracts have had payment performance standards for processing military health benefit 

claims in place for many years. Specifically, if improper payments exceed 2 percent of total 

dollars paid out during the contract period, the contractor is subject to monetary penalties. 

Annual audits of payments made by managed-care support contracts are conducted. 

Overpayments discovered are projected to the review universe, and managed-care support 

contractors are liable for the total unallowed healthcare amounts paid. 

The purchased care contracts have a performance standard of 98 percent accuracy, so the 

contractor is incentivized to keep payment error rates as low as possible to increase 

contract awards. Actual error rates, however, have been consistently less than 1⁄2 of 

1 percent. This contract design, combined with numerous pre-payment and post-payment

controls, effectively minimizes improper payments for purchased care contracts and ensures 

the Government’s risk for improper payments in the military health benefits program is 

minimized. 

Root Causes. The primary reasons for payment errors in the Military Health Benefits 

program are: 

• Incorrect pricing of medical procedures and equipment, 30 percent 

• Cost-share/deductible miscalculations, 17 percent

• Other Health Insurance/government pay miscalculations, 13 percent

• All other causes combined,

40 percent.

Corrective Actions: TRICARE's thirdparty contractors are monetarily 

incentivized to reduce and eliminate 

improper payments through contractual 

performance standards. The fewer 

improper payments the contractors 

make, the less money is deducted from 

their contractual reimbursements.

Military Pay. As shown in Figure A-2, 

the Department projects 0.24 percent in 

Military Pay improper payments based 

on reviews, estimates, and forecasts for 

October 2011 through September 2012. 

The decrease from FY 2011 is attributed 

to a change in DoD regulations 

(DoD Instruction (DODI) 1327.06)) that 

authorized Reservists the opportunity to 

carry forward accumulated leave from one period of Active Duty service to another, which 

had been the primary cause of underpayments in FY 2011. 

Figure A-2. Improper Payment Rate –

Military Pay

0.61%

0.49%

0.24% 0.24% 0.24% 0.24%

0.00%

0.20%

0.40%

0.60%

0.80%

FY 2010 FY 2011 FY 2012 FY 2013

Target

FY 2014

Target

FY 2015

Target B10-38

FY 2012 Target 0.48%
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-56

Overpayments comprised 88 percent of the Military Pay improper payments, with less than 

0.3 percent of the errors found through random reviews. These overpayments were 

reported as a result of separation debts (“out-of-service” debts, established after a member 

has left the service) and through collections reported by the Military Services. 

Root Causes. The primary reasons for improper payments (mostly overpayments) identified 

through all procedures (random reviews, out of service debts, and collections) result from 

administrative and documentation errors:

• Basic Allowance for Housing (38 percent) resulting from incorrect reporting of the 

entitlement.

• Base pay for Active Duty and incorrect Active Duty pay for Reservists (16 percent) 

resulting from incorrect reporting of the entitlement.

• Hostile fire/imminent danger pay (10 percent) resulting from incorrect reporting of the 

entitlement.

• Family separation allowance, Active and Reserve, (7 percent) resulting from incorrect 

reporting of the entitlement.

• Miscellaneous categories, including results from underpayments, account for 29 percent 

of all improper payments. (Miscellaneous categories are comprised of over 25 different 

entitlements.)

Nearly 100 percent of overpayments for Military Pay either were recovered or have an 

action in place to recover the overpayment. Collections for overpayments from current

service members amounted to 61 percent of total recoveries with additional amounts 

identified through review of out of service debts (debts established and recovered after 

separation). 

Corrective Actions. The Department, 

primarily through DFAS, continues to 

work with the Military Services to advise 

them of the results of payment reviews 

and the associated reasons for the 

errors. Of specific interest, DFAS 

provides the Military Service financial 

managers with monthly reports on the 

results of random reviews, reasons for 

and dollar value of errors, and year-todate trends.

Civilian Pay. As shown in Figure A-3, 

the Department projects 0.14 percent

improper payments in Civilian gross pay, 

primarily overpayments, for FY 2012.

Nearly 100 percent of the overpayments 

were identified through review of the 

accounts receivable due from current 

civilian employees. Because the 

Figure A-3. Improper Payment Rate –

Civilian Pay

0.27%

0.16% 0.14% 0.14% 0.14% 0.14%

0.00%

0.05%

0.10%

0.15%

0.20%

0.25%

0.30%

0.35%

FY 2010 FY 2011 FY 2012 FY 2013

Target

FY 2014

Target

FY 2015

Target B10-39

FY 2012 Target 0.16%
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-57

employees remain employed with the Department, there is an action in place to recover the 

overpayment, generally through payroll offset.

Root Causes. The Civilian Pay improper payments are primarily caused by untimely or 

inaccurate entry of information into the pay systems. 

• Time and attendance, 45 percent

• Overseas and other allowances, 32 percent

• Late personnel actions, 23 percent

Because most government payroll systems base their time and attendance submissions on 

anticipated versus actual hours worked, the Department must correct overpayments and 

underpayments in a subsequent pay period. 

Collections of overpayments in the overseas Civilian Pay accounts often are attributed to 

repayment of overseas pay allowances that continued after the individual returned to the 

United States. These improper payments often result from initial inaccurate personnel 

actions generated by human resources offices. Corrections subsequently are generated by 

human resource offices and transmitted to the civilian payroll system. These corrections 

result in re-computing pay and allowances and creating a collection (Accounts Receivable) 

action to offset the overpayment. The initial improper payments are discovered through 

various sources, such as agency reviews, bi-weekly exception reports, and employee or 

supervisor notification. 

Corrective Actions. The Department, primarily through DFAS, continues to advise 

Components of the results of payment reviews and the associated reasons for errors that 

result in improper payments to civilian 

employees. The DFAS advises

Components on best business practices 

to prevent future improper payments

and participates at various conferences 

to instruct personnel on how to correctly 

submit information, such as changes to 

entitlements and to travel vouchers.

Military Retirement. Based on FY 2012

reviews, DFAS projects approximately 

0.02 percent in improper payments for 

the total outlays in the Military 

Retirement program (refer to 

Figure A-4), with almost the entire 

amount related to payments made to 

deceased retirees and annuitants. The 

primary reason for the decrease from 

0.14 percent in FY 2010 to 0.02 percent 

in FY 2012 is due to DFAS reestablishing a formal post-pay review section for Retired and Annuitant Pay, insourcing the 

function from a private sector contractor. This action enabled DFAS to expand reviews and

Figure A-4. Improper Payment Rate –

Military Retirement

0.14%

0.04%

0.02%

0.04% 0.04% 0.04%

0.00%

0.02%

0.04%

0.06%

0.08%

0.10%

0.12%

0.14%

0.16%

FY 2010 FY 2011 FY 2012 FY 2013

Target

FY 2014

Target

FY 2015

Target B10-40

FY 2012 Target 0.04%
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-58

identify processes needing additional attention or correction. The added reviews, coupled 

with ongoing review of deceased retiree and annuitant accounts, has allowed DFAS to 

provide a more comprehensive and concise accounting of outlays in military retirement.

Root Causes. Eligibility for military retired pay ends on the retiree’s date of death. Prompt 

reporting of a deceased retiree's death can help avoid delay and possible financial hardship 

to surviving beneficiaries, family members or executors, who are required to return any 

unearned payments of the decedent's military retired pay. The delay in notifying the payroll 

activity of the death of a Military Retiree results in unavoidable overpayments to deceased 

retirees. Our review of confirmed overpayments to deceased retirees in FY 2012 disclosed 

that the Department recovered approximately 96 percent of the overpayments within 

60 days, demonstrating the effectiveness of controls within the retired pay system once the 

Department is notified of a retiree’s death.

Corrective Actions. The Department’s control processes to prevent, identify, and reduce 

overpayments to deceased retirees and annuitants include:

• Validating existence of retiree and/or annuitant, if living outside the United States; 

• Annual certification of existence for all annuitants

• Periodic random certifications for retirees over a certain age;

• Validating Military Retiree existence if payments are returned and/or if account was 

suspended for several months due to bad check/correspondence address.

Early detection and data mining efforts, along with partnerships with other Federal and state 

entities, also are used. The Department takes a proactive approach to ensure the accuracy 

of Military retiree payments, routinely comparing retired and annuitant payroll master file 

databases with the Social Security Administration’s death master file and periodically 

comparing records with the Office of Personnel Management’s deceased files, Department of 

Veterans Affairs’ database, and with 

individual states with sizable retiree and 

annuitant populations (e.g., Texas, 

California, and Florida). Payments for 

Military retirees identified as deceased 

are suspended pending validation of 

death or validation of continued 

eligibility. The Department's expanded 

definition of acceptable source 

documents for notice of death has 

allowed DFAS to initiate earlier 

reclamation actions, thereby increasing 

faster recovery of funds paid after date 

of death.

DFAS Travel Pay. The FY 2012 

projected improper payment rate of 

5.0 percent, shown in Figure A-5, 

includes random reviews of DTS trip 

records for the Military Services and 

Figure A-5. Improper Payment Rate –

DFAS Travel Pay

1.91%

3.28%

5.00%

3.26% 3.25% 3.24%

0.00%

0.50%

1.00%

1.50%

2.00%

2.50%

3.00%

3.50%

4.00%

4.50%

5.00%

5.50%

FY 2010 FY 2011 FY 2012 FY 2013

Target

FY 2014

Target

FY 2015

Target B10-41

FY 2012 Target 3.27%
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-59

WinIATS TDY and PCS for both civilian and military vouchers computed and disbursed by 

DFAS. (Travel disbursements made outside of DTS are also included in Table 4 footnotes.)

The DFAS Travel Pay improper payment rate increased from FY 2010 primarily due to

(1) improvements in the DFAS post-pay review process, and (2) a WinIATS processing error 

for Military PCS vouchers that truncated social security numbers. The latter are considered 

“technical” improper payment errors, because travel reimbursements are not to be made 

without a complete social security number. The cause of the WinIATS errors is under 

review. 

Errors in the traveler’s request for reimbursement and Approving Official (AO) lack of proper 

review and approval of such requests resulted in nearly all of the errors detected during the 

random reviews of travel payments. 

DTS Root Causes. The primary reasons for DTS improper payments include:

• Per Diem (40 percent): The Department paid lodging incorrectly, reimbursed the 

traveler lodging expenses not validated by receipts, and/or paid meals at an incorrect 

rate.

• Reimbursable Expense (35 percent): The Department incorrectly paid airfare, non-travel 

related expenses, and/or rental car expenses.

• Missing Documentation (25 percent): The Department reimbursed lodging, airfare or 

rental car expenses without a receipt.

DTS Corrective Actions. On a quarterly basis, DFAS provides the Defense Travel 

Management Office and DoD Components with error trend reports. The DFAS post-payment 

review personnel give presentations at various DTS training sessions and brief senior 

service executives on these post-payment review statistics, trends, and input errors. In 

addition, any improper payments identified are forwarded to the appropriate Debt 

Management Monitor for establishment of debt and recovery of overpayments.

WinIATS Root Causes. The primary reasons for WinIATS improper payments:

• Improperly completed travel voucher (82 percent): Claim paid with incomplete 

information to include missing Approving Official (AO) signature or social security 

number (SSN) on DD Form 1351-2. 

• Per Diem (11 percent): Per Diem/Meals & Incidental Expenses and Lodging paid at the 

incorrect rate, not at all, or when unauthorized.

• Reimbursable Expense (4 percent): Airfare, household goods storage, and lodging tax 

paid incorrectly or not at all.

• Other miscellaneous (3 percent.)

WinIATS Corrective Actions. The DFAS has established an extensive set of preventative and 

monitoring actions to prevent improper payments, including: 

• Post-payment reviewers meet monthly with travel pay operations personnel to discuss 

findings and preventative measures.
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-60

• Travel Pay examiner training programs, based on post-payment review findings and 

recommendations, have been implemented.

• Pre-payment validations and cross checks have been implemented to ensure the traveler 

was not previously reimbursed for the same trip, therefore avoiding a duplicate 

payment.

• WinIATS fielded a system update containing edits for the listing of invalid social security 

numbers (SSN), provided by the Social Security Administration, to mitigate invalid 

SSNs.

USACE Travel Pay. As shown in 

Figure A-6, USACE projects 0.06 percent

of improper payments in Travel Pay. The 

USACE continues to educate travelers 

and travel Approving Officials (AO)

through required training, as well as 

refresher training for seasoned travelers 

and approving officials. Additionally, all 

AOs are required to complete Fiscal Law 

training and the refresher course, as 

required, to maintain their certification 

eligibility 

The USACE Finance Center (UFC) also 

performs a 100 percent audit of all airline 

credits issued against traveler’s 

individually billed travel card accounts to 

ensure airline credits, issued as a result 

of flight changes, are properly recouped.

Root Causes. Travel pay errors generally 

occur for two reasons:

• Travelers make mistakes when completing their travel vouchers; and/or

• AOs fail to properly review travel vouchers before approval.

Corrective Action. When improper payments are identified, the UFC notifies the parties 

involved with the payments to determine the circumstances surrounding the error and to 

assist them in identifying business process improvements to prevent future recurrences.

DFAS Commercial Pay. In order to be fully compliant with IPERA, in FY 2012 DFAS began 

statistically sampling the contract and vendor pay systems to further ensure proper 

identification and recovery of improper payments and to publish a statistically valid 

improper payment estimate for Commercial Pay. The random review included DFAS 

computed payments entitled in the MOCAS contract payment system, the DFAS legacy 

commercial pay systems, and the Service Component ERPs. Fiscal Year 2012 is the first 

year that DFAS will report improper payments identified in the ERP systems. 

As shown in Figure A-7, based on statistical sampling methods the FY 2012 estimated 

improper payment rate is 0.02 percent for total commercial payments; the dollar amount is 

Figure A-6. Improper Payment Rate –

USACE Travel Pay

0.00%

1.00%

0.04% 0.045% 0.045% 0.045%

0.00%

0.50%

1.00%

1.50%

FY 2010 FY 2011 FY 2012 FY 2013

Target

FY 2014

Target

FY 2015

Target B10-42

FY 2012 Target 1.00%
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-61

$100.1 million. In past years, DFAS 

reported actual improper payments in 

Commercial Pay and did not use a 

statistically valid estimation process. The 

actual Commercial Pay improper 

payments are $318.3 million, versus the 

estimated $100.1 million in improper 

payments derived from statistical 

sampling methods. 

The main reason for the difference 

between the FY 2012 actual amount of 

$318.3 million in improper payments and 

the $100.1 million in improper payments 

derived from statistical sampling is due 

to the sample design. The statistical 

sampling was based on the number of 

invoices processed, in compliance with

OMB guidance, but the sample was not 

stratified by invoice amount; therefore, a 

$10 million invoice has the same chance 

of being sampled as a $100 invoice. Also, vendors are required by law to return 

overpayments, and large overpayments are always noticed more quickly than immaterial 

overpayments.

The DFAS identifies and prevents improper payments in DoD’s five largest commercial 

payment systems through use of the pre-payment Business Activity Monitoring (BAM) tool, 

initially deployed in August 2008. These systems, which account for 91 percent of all DoD 

commercial payment dollars, include MOCAS, CAPS-Windows, IAPS, One Pay, and EBS. 

These types of preventative program activities consistently prove to be the most cost 

effective. 

The DFAS identifies and monitors the root cause for all improper payments by researching 

supporting documentation and assigning a code that identifies the type of improper 

payment. In addition, improper payments detected by BAM in the pre-payment environment 

are reviewed and analyzed along with development of new integrity checks. Corrective 

action plans are developed through collaboration and monitored through DFAS post pay 

reviews and DFAS Site operational reviews. Developed project plans include testing and 

tracking of each individual Site plan.

Root Causes. The majority of errors in commercial pay improper payments are caused by 

input errors into the payment systems. 

Corrective Actions. The ongoing corrective actions include:

• BAM refinements that reduce payments to the wrong vendor, which is the cause for 

approximately 3.2 percent of overall commercial pay improper payments.

• Continued analysis of DoD’s legacy system Wide Area Work Flow rejections will increase 

electronic commerce and minimize manual intervention. 

Figure A-7. Improper Payment Rate –

DFAS Commercial Pay

0.02% 0.02% 0.02% 0.02%

0.00%

0.02%

0.04%

0.06%

0.08%

FY 2012* FY 2013

Target

FY 2014

Target

FY 2015

Target

B10-43

FY 2012 Target 0.06%

*Note: statistical sampling began in FY 2012
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-62

• Continued work with Contracting Officers to simplify contract terms and eliminate the 

need for manual calculations.

The Department is very pleased with the continuing success of its pre-payment review using 

BAM. Since its initial roll out in August 2008, more than $4.5 billion in improper payments 

have been prevented. The ongoing payment error analyses allow for the continual

enhancement of BAM logic and improved disbursement accuracy. 

Another initiative to reduce improper payments includes outreach to reduce vendor billing 

errors caused by duplicate manual and electronic submission of invoices. In addition, the 

Department conducts manual reviews to ensure it meets all Certifying Officer Legislation 

requirements prior to certifying payment, such as ensuring proper documentation and 

correct payment amounts before disbursement.

USACE Commercial Pay. As shown in 

Figure A-8, the USACE projects 

0.03 percent in improper payments for 

Commercial Pay. The USACE functions 

as the real estate agency for the 

Department, as they have responsibility 

for leasing office space for all military 

recruiters. This applies to small offices in 

rural and semi-rural areas as well as 

larger spaces in more urban areas. 

Root Cause. Commercial rental 

properties change hands fairly 

frequently; however, USACE is often not 

informed of the change in ownership. 

Therefore, improper payments occur as 

a result of the wrong lessor being paid 

(or an incorrect property manager). In 

these instances, staff is counseled to 

immediately notify the appropriate 

individuals when ownership or property 

management companies have changed to prevent future payment errors of this type.

In addition, some overpayments are identified during contract close-out. When an 

overpayment is identified, the final invoice is offset and/or an account receivable is 

established with a demand letter sent to recover the amount. Other errors are caused by 

input errors, such as improper identification of the Commercial Activity Government Entity 

(CAGE) code when establishing contracts in CEFMS. Many corporations have multiple CAGE 

codes.

Corrective Actions. When improper payments are identified, the USACE Finance Center 

notifies the parties involved with the payments to determine the circumstances and to assist 

in identifying business process improvements to prevent recurrences.

Figure A-8. Improper Payment Rate –

USACE Commercial Pay

0.02%

0.04%

0.03% 0.03% 0.03% 0.03%

0.00%

0.02%

0.04%

0.06%

FY 2010 FY 2011 FY 2012 FY 2013

Target

FY 2014

Target

FY 2015

Target B10-44

FY 2012 Target 0.04%
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-63

Recoveries of Improper Payments

In compliance with IPERA as well as the Debt Collection Improvement Act of 1996, the 

Department uses a number of methods to prevent, identify, and collect improper payments, 

to include contract claims auditing by an EIC utilized by TMA and internal DoD staff to 

recapture overpayments and manage debt collection. For example, DFAS has implemented 

a Centralized Offset Program (COP) to look across the Defense agencies for opportunities to 

offset debts within the first 90 days of delinquency. Once this deadline passes, DFAS 

transfers the debts to the Treasury Department, no longer waiting until day 180, as allowed 

by statute, to utilize all debt collection tools available earlier in the debt lifecycle to increase 

the likelihood of collecting the debt. During FY 2012, COP requested and confirmed nearly 

1,200 offsets totaling approximately $13 million. 

The Department also is working on initiatives to standardize Treasury FedDebt profiles for 

all DoD programs and establish new cross-servicing programs for many of our medical 

installations that are operated by TMA and the Army Medical Command. Referrals to 

Treasury for delinquent debt collection in these categories should increase dramatically 

during FY 2013.

The USACE Finance Center utilizes a data mining tool as part of its post-payment/payment 

recapture program. This tool searches to identify potential errors such as duplicate, missing, 

or suspicious invoices, as well as specific types of recurring payments. There are ten

scenarios built into the data mining tool, which processes 100 percent of all contract 

payments. The use of a data-mining tool complements the pre-payment system edits built 

into CEFMS. Safeguards include a requirement for matching a receiving report with an 

invoice and prevent use of duplicate invoice numbers for the same obligation.

Program Improper Payment Reporting 

Table 4, below, summarizes DoD’s improper payment reduction outlook and total program 

outlays (payments) from FY 2011 through FY 2015.
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-64

Table 4. Improper Payment Reduction Outlook

FY 2011 FY 2012 FY 2013 Estimate FY 2014 Estimate FY 2015 Estimate

Program

Outlays 

($B) IP (%) IP Over ($M)

IP 

Under 

($M)

IP 

Total 

($M)

Outlays 

($B) IP (%)

IP 

Over 

($M)

IP 

Under 

($M)

IP 

Total 

($M)

Outlays 

($B) IP (%) IP ($M)

Outlays 

($B) IP (%) IP ($M)

Outlays 

($B)

IP

(%)

IP 

($M)

Military 

Health 

Benefits 7,8

$ 12.6 0.24 $ 21.2 $ 9.0 $ 30.2 $ 20.9 0.15 $ 22.5 $ 8.8 $31.3 $ 20.3 2.00 $ 406.0 $ 20.6 2.00 $ 412.0 $ 21.6 2.00 $ 432.0 

Military 

Pay1,5 $ 96.0 0.49 $ 209.1 $ 265.2 $ 474.3 $ 95.5 0.24 $ 197.8 $ 29.0 $226.8 $ 95.0 0.24 $ 228.0 $ 94.0 0.24 $ 225.6 $ 93.5 0.24 $ 224.4

Civilian 

Pay2,5 $ 58.2 0.16 $ 90.8 $ 0.1 $ 90.9 $ 59.0 0.14 $ 81.8 $ 0.04 $81.8 $ 57.5 0.14 $ 80.5 $ 57.0 0.14 $ 79.8 $ 56.5 0.14 $ 79.1

Military 

Retirement $ 42.2 0.04 $ 18.8 $ 0.05 $ 18.9 $ 55.1 0.02 $ 12.8 $ 0.3 $13.1 $ 42.9 0.04 $ 17.2 $ 43.5 0.04 $ 17.4 $ 44.1 0.04 $ 17.6 

Travel 

Pay3,4,5 $ 8.7 3.28 $ 238.2 $ 48.4 $ 286.6 $ 8.4 5.0 $ 363.9 $ 55.4 $419.3 $ 8.5 3.26 $ 277.1 $ 8.5 3.25 $ 276.3 $ 8.5 3.24 $ 275.4 

DFAS 

Commercial 

Pay 

(Statistical 

Reviews)6,9

NA NA NA NA NA $ 408.7 0.02 $ 89.6 $ 10.5 $100.1 $ 400.5 0.02 $ 80.0 $ 392.5 0.02 $ 78.5 $ 384.7 0.02 $ 76.9

USACE 

Travel Pay $ 0.212 1.00 $ 2.0 $ 0.1 $ 2.1 $ 0.19 0.04 $ 0.76 $ 0.04 $0.80 $ 0.13 0.045 $ 0.1 $ 0.09 0.045 $ 0.04 $ 0.07 0.045 $ 0.03 

USACE 

Commercial 

Pay

$ 30.5 0.04 $ 11.9 $ - $ 11.9 $ 30.1 0.03 $ 8.8 $ - $8.8 $ 30.0 0.03 $ 9.0 $ 30.0 0.03 $ 9.0 $ 30.0 0.03 $ 9.0

Note 1: Reduction in underpayments from FY11 to FY12 ($265.2M to $29.0M) primarily was due to leave accounting within the National Guard and Reserve components. Accounting instructions were changed/clarified by 

DoDI 1327.06, which allowed leave for National Guard/Reservists to be carried from one period of active service to another. This change alleviated the need to liquidate leave at the end of each period of Active Duty.

Note 2: Civilian Pay represents data from DFAS and Navy Civilian Mariner Pay.

Note 3: Travel Pay: DFAS Travel Pay represents travel vouchers settled from July 2011 through June 2012. 

Note 4: Travel Pay includes travel data from Army, Navy, and Air Force for vouchers paid outside of DTS.

Note 5: Out-year projections for Travel, Civilian Pay, and Military Pay represent input from DFAS only. USACE computed its own out-year projections.

Note 6: Statistical sampling of commercial payments was initiated in FY 2012. In prior years, actual improper payments were reported.

Note 7: TMA reports 12 months in arrears; therefore, FY 2012 reporting represents FY 2011 data.

Note 8: TMA uses 2% as its out-year target because that is the contract performance standard.

Note 9: A description of the dollar amount of actual improper commercial payments identified during FY 2012 is on page A-61 of Addendum A.

Note 10: Because the Department does not currently have an auditable SBR, it is not possible for the Department to reconcile outlays to the quarterly or annual gross outlays reported therein; therefore, it is not yet possible to 

ensure all required payments for reporting purposes are captured. DoD is working hard to have an auditable SBR by 2014.
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-65

The Department utilizes internal payment recapture auditing processes to identify and recover outstanding overpayments. The 

Department’s collections are shown in Tables 5 and 9.

Table 5. Payment Recapture Audit Reporting

Amount

Identified

(CY)

Amount

Recovered

(CY)

% of 

Amount

Recovered 

out of 

Amount 

Identified

(CY)

Amount 

Outstanding 

(CY)

% of 

Amount 

Outstanding 

out of 

Amount 

Identified 

(CY)

Amount 

Determined 

Not to be 

Collectable 

(CY)

% of 

Amount 

Determined 

Not to be 

Collectable 

out of 

Amount 

Identified 

(CY)

Amount

Identified

(PYs)

Amount

Recovered

(PYs)

Amount

Identified

(CY+PYs)

Amount

Recovered

(CY+PYs)

Amount

Outstanding

(CY+PYs)

Military Pay1,2 $197.3M $146.8M 74% $50.5M 26% $0.0M 0% $325.1M $302.7M $522.4M $449.5M $72.9M 

Civilian Pay1 $81.8M $81.8M 100% $ 0.0M 0% $0.0M 0% $250.3M $250.3M $332.1M $332.1M $0.0M 

Military R&A3 $67.4M $63.8M 95% $3.6M 5% $0.0M 0% $175.3M $163.5M $242.7M $227.3M $15.4M 

Travel Pay4,6 $1.9M $0.1M 4% $1.8M 96% $0.0M 0% $1.6M $0.1M $3.5M $0.2M $3.3M 

DFAS

Commercial

Pay5

$125.8M $114.2M 91% $11.1M 9% $0.5M 0% $1.5B $1.3B $1.6B $1.4B $0.2B 

USACE

Travel Pay $0.8M $0.8M 100% $ 0.0M 0% $0.0M 0% $1.1M $1.1M $1.9M $1.9M $0.0M 

USACE

Commercial

Pay

$ 8.6M $8.6M 100% $0.0M 0% $0.0M 0% $50.8M $50.2M $59.4M $58.8M $0.6M 

“M” represents millions. “B” represents billions.

Note 1: In-Service collection dollars are considered as recovery amounts. Actual results from random sample overpayments are negligible.

Note 2: Recoveries provided in the CY Military Pay includes collections reported in "Out of Service Debts", through the DFAS Debt Management Program. Debt recoveries, for purposes of the AFR, are tracked for twelve 

months from the time the debt is established. Resulting impact is that recoveries for collections and random review findings will not be realized until the end of FY13. Out of Service Debts account for $59.8M 

identified and $9.3M collected.

Note 3: FY 2012 amounts identified and recovered are based on 100 percent review of deceased retiree and annuitant accounts. FY 2012 recoveries will not be completed until December 31, 2012, as they are tracked for 

120 days.

Note 4: Amounts for Current Year (CY) only include overpayments identified in the sampling of travel vouchers settled April 2011 through March 2012, as DFAS allows 120 days for the Service and Defense Components to 

resolve improper travel payments. The amount includes $624K in duplicate payments from FY 2011 to FY2012 in addition to the statistical sampling amount identified; however, the total excludes $341K in improper 

payments to foreign military students and amounts of $10 or less, both of which are non-recoverable pursuant to Regulation. It also excludes amounts recovered by Army Europe and Army Korea.

Note 5: Commercial Pay improper payments are based on date of payment. The Prior Years (PYs) data shown remains unchanged as these figures were reported to the OMB MAX database and previously published. Prior 

Years (PYs) amounts in the OMB MAX database does not reflect collections and adjustments in subsequent fiscal years.

Note 6: Travel Pay also includes travel data from Army, Navy, and Air Force for vouchers paid outside of DTS.

Note 7: As of September 30, 2012, for debts caused by improper payments incurred during FY 2011, collections from offsets totaled $6.03M; for debts caused by improper payments incurred during FY 2012, collections from 

offsets totaled $0.88M.
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-66

Table 6 shows the dollar amounts and percentage of overpayments the Department 

recovered during FY 2012. As reflected in Table 6, the Department has exceeded the 

OMB-established FY 2013 threshold to recover 85 percent of overpayments.

Table 6. Payment Recapture Audit Targets

Type of

Payment

CY

Amount

Identify

($M)

CY

Amount

Recovered

($M)

CY

Recovery

Rate

(Amount

Recovered/

Amount

Identified)

CY + 1

Recovery

Rate

Target

CY + 2

Recovery

Rate

Target

CY + 3

Recovery

Rate

Target

DoD-Wide1,5 $427.9 $360.2 84.2% 93.0% 93.0% 93.0%

DFAS2,3 $419.3 $351.6 83.9% 92.5% 92.5% 92.5%

USACE4 $8.6 $8.6 99.4% 99.0% 99.0% 99.0%

Note 1: The values shown in this table are not strictly “payment recapture” targets, as DoD performs the functions of recapture auditors 

internally and/or through the Department of Treasury's Debt Management Services. A more appropriate term would be collection 

targets, but they are listed here to ensure inclusion for government-wide reporting.

Note 2: The DFAS commercial improper payments are identified by date paid.

Note 3: The DFAS values include Military Pay, Civilian Pay, Military Retirement and Annuitant Pay, Travel pay, and Commercial Pay 

amounts.

Note 4: The USACE values include Travel Pay and Commercial Pay amounts.

Note 5: See Table 9 for Tricare Management Activity (TMA) health benefit recoveries. The TMA third party payer contracts require 

reimbursement to the Government of an extrapolated sampling amount, and therefore are not deemed collections against a 

debt.

Table 7 shows the dollar amount of DFAS overpayments outstanding as of 

September 30, 2012.

Table 7. Aging of Outstanding Overpayments

Type of

Payment

CY Amount

Outstanding

(0 – 6 Months)

($M)

CY Amount

Outstanding

(6 Months – 1 Year)

($M)

CY Amount

Outstanding

(Over 1 Year)

($M)

Commercial1 $91.2 $3.5 $-

Note 1: The aging schedule is based on overpayments identified and paid from October 1, 2011 through September 30, 2012 and 

applies to DFAS only.
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-67

Table 8 shows that virtually all recovered FY 2012 funds were returned to the original 

appropriation and/or used for the original purpose.

Table 8. Disposition of Recaptured Funds

Type of

Payment

Agency

Expenses to 

Administer

the Program

Payment

Recapture

Auditor Fees

Financial

Management

Improvement

Activities

Original

Purpose

($M)

Office of

Inspector

General

Returned to

Treasury

All $- $- $- $360.9M1 $- $-

Note 1: Dollar amount represents the sum of Column 3 from Table 5 (Amount recovered (CY)).

The Department does not currently utilize external payment recapture auditors to 

identify and recover outstanding overpayments. The Department’s collections are shown 

in Tables 5 and 9.

Table 9. Overpayments Recaptured Outside of Payment Recapture Audits

Agency

Source

Amount

Identified

(CY)

Amount

Recovered

(CY)

Amount

Identified

(PYs)

Amount

Recovered

(PYs)

Amount

Identified

(CY+PYs)

Amount

Recovered

(CY+PYs)

TRICARE

Management

Activity 

(TMA) Health

Benefits

Contracts1

$4.3M $2.2M $57.0M $41.2M $61.3M $43.4M 

“M” represents millions. “B” represents billions.

Note 1: TMA Contract improper payments and recoveries are reported 12 months in arrears to accommodate its 100 percent post-payment review.

Accountability

The Under Secretary of Defense (Comptroller)/Chief Financial Officer is the Accountable 

Official for the Department, and accordingly, this individual ultimately is responsible for 

ensuring that, to the greatest extent possible, all DoD disbursements are made correctly 

and accurately.

Certifying Officer legislation holds Certifying and Disbursing Officers accountable for 

government funds. In accordance with 10 U.S.C. 2773a, pecuniary liability attaches 

automatically when there is a fiscal irregularity, i.e., (1) a physical loss of cash, 

vouchers, negotiable instruments, or supporting documents, or (2) an improper 

payment. This is further codified in DoD Financial Management Regulation (DoD FMR), 

Volume 5, Chapter 33, “Certifying Officers, Accountable Officials, and Review Officials.” 

Efforts to recover overpayments from a recipient must be undertaken in accordance with 

the debt collection procedures outlined in the DoD FMR, Volume 5, Chapter 28,

“Management and Collection of Individual Debt,” and DoD FMR, Volume 10, Chapter 18,

“Contractor Debt”.
Department of Defense Agency Financial Report for FY 2012

Addendum A

A-68

Agency Information Systems and Other Infrastructure

The Department has much of the information and infrastructure needed to reduce 

improper payments in each of its six improper payment programs. The Department uses 

the BAM tool to identify potential improper commercial payments prior to disbursement. 

The Department's ongoing migration from the legacy environment to ERP systems 

presents a number of challenges and opportunities to prevent and detect improper 

payments, as well as debt collection for recapturing overpayments. These issues are 

being addressed by stakeholders, though initially the new systems will add additional 

complexity, especially in terms of the audit readiness efforts currently at full throttle. 

Barriers

With the advent of The Do Not Pay List, the Privacy Act can be a barrier in terms of the 

information that is legally allowed to be shared among federal agencies. Computer 

matching agreements can take months and sometimes years to finalize and therefore 

delay the ability to prevent improper payments based on information the Federal 

Government has access to but cannot legally share. However, there is legislation 

pending that may be able to address some of these delays without gutting the very 

necessary protections afforded by the Privacy Act. In the interim, the Department will 

continue using the means it currently has, including The Do Not Pay List, to prevent, 

detect, and recover improper payments. 

Additional Comments

Because the Department currently does not have an auditable SBR, it is not possible for 

the Department to reconcile outlays to the quarterly or annual gross outlays reported in 

the SBR to ensure all required payments for reporting purposes are captured. The 

Department is working hard to become fully auditable by 2017. As part of this effort, each 

of the Defense disbursing components is working diligently to review and report on all 

payments that are subject to IPERA and ensure the processes used are compliant with 

laws and regulations. Nevertheless, the Department continually looks for opportunities to 

improve its methodologies, and the post-payment review teams are far from complacent. 

The Department looks forward to receiving recommendations from the DoD Inspector 

General’s IPERA Compliance Review for FY 2012 as well as from the GAO’s ongoing 

engagement on improper payments, as we move forward with FY 2013 corrective actions.
ADDENDUM B

DEPARTMENT OF DEFENSE

AGENCY FINANCIAL REPORT

FISCAL YEAR 2012
This Page Left Blank Intentionally
Department of Defense Agency Financial Report for FY 2012

ADDENDUM B Unaudited Financial Statements – DSCA

B-1

The following Defense Security Cooperation Agency (DSCA) financial statements include 

programs executed on behalf of Executive Office of the President (EOP). The Department 

continues to report activity resulting from EOP allocation transfers within the Department of 

Defense (DoD) financial statements.

Consolidated Balance Sheet

Security Assistance Dollars in Thousands

2012

Consolidated

2011

Consolidated 

ASSETS (Note 2)

Intragovernmental:

Fund Balance with Treasury (Note 3) $ 22,811,082 $ 21,093,874

Total Intragovernmental Assets $ 22,811,082 $ 21,093,874

Cash and Other Monetary Assets (Note 7) $ 20,124,963 $ 18,160,143

Accounts Receivable, Net (Note 5) 50,338 51,430

Loans Receivable (Note 8) 836,068 983,831

Other Assets (Note 6) 26,737,655 25,231,799

TOTAL ASSETS $ 70,560,106 $ 65,521,077

LIABILITIES (Note 11)

Intragovernmental:

Accounts Payable (Note 12) $ 252,698 $ 334,081

Debt (Note 13) 224,158 340,909

Other Liabilities (Note 15 and 16) 657,368 661,264

Total Intragovernmental Liabilities $ 1,134,224 $ 1,336,254

Accounts Payable (Note 12) $ 270,627 $ 285,823

Employment Benefits (Note 17) 523 487

Other Liabilities (Note 15 and 16) 61,826,221 58,607,803

TOTAL LIABILITIES $ 63,231,595 $ 60,230,367

NET POSITION

Unexpended Appropriations – Other Funds $ 3,800,488 $ 2,615,107

Cumulative Results of Operations – Other Funds 3,528,023 2,675,603

TOTAL NET POSITION $ 7,328,511 $ 5,290,710

TOTAL LIABILITIES AND NET POSITION $ 70,560,106 $ 65,521,077
Department of Defense Agency Financial Report for FY 2012

ADDENDUM B Unaudited Financial Statements – DSCA

B-2

Consolidated Statement of Net Cost

Security Assistance Dollars in Thousands

2012

Consolidated

2011

Consolidated 

Program Costs

Gross Costs $ 30,711,596 $ 24,687,441 

(Less: Earned Revenue) (24,405) (34,341)

Net Cost before Losses (Gains) from Actuarial Assumption Changes 

for Military Retirement Benefits $ 30,687,191 $ 24,653,100

Net Cost of Operations $ 30,687,191 $ 24,653,100
Department of Defense Agency Financial Report for FY 2012

ADDENDUM B Unaudited Financial Statements – DSCA

B-3

Consolidated Statement of Changes in Net Position

Security Assistance Dollars in Thousands

2012 Earmarked 

Funds

2012 All Other 

Funds

2012

Eliminations

2012

Consolidated

2011 Earmarked 

Funds

2011 All Other 

Funds

2011

Eliminations

2011

Consolidated

Cumulative Results Of Operations

Beginning Balances $ 0 $ 2,675,603 $ 0 $ 2,675,603 $ 0 $ 2,338,200 $ 0 $ 2,338,200

Beginning balances, as adjusted $ 0 $ 2,675,603 $ 0 $ 2,675,603 $ 0 $ 2,338,200 $ 0 $ 2,338,200

Budgetary Financing Sources:

Appropriations used $ 0 $ 5,229,397 $ 0 $ 5,229,397 $ 0 $ 5,391,067 $ 0 $ 5,391,067

Nonexchange revenue 0 26,310,214 0 26,310,214 0 19,599,436 0 19,599,436

Other Financing Sources:

 Other 0 0 0 0 0 0 0 0

Total Financing Sources $ 0 $ 31,539,611 $ 0 $ 31,539,611 $ 0 $ 24,990,503 $ 0 $ 24,990,503

Net Cost of Operations (+/-) 0 30,687,191 0 30,687,191 0 24,653,100 24,653,100

Net Change $ 0 $ 852,420 $ 0 $ 852,420 $ 0 $ 337,403 $ 0 $ 337,403

Cumulative Results of Operations $ 0 $ 3,528,023 $ 0 $ 3,528,023 $ 0 $ 2,675,603 $ 0 $ 2,675,603

Unexpended Appropriations

Beginning Balances $ 0 $ 2,615,107 $ 0 $ 2,615,107 $ 0 $ 2,524,190 $ 0 $ 2,524,190

Beginning balances, as adjusted $ 0 $ 2,615,107 0 $ 2,615,107 $ 0 $ 2,524,190 $ 0 $ 2,524,190

Budgetary Financing Sources:

Appropriations received $ 0 $ 6,420,180 $ 0 $ 6,420,180 $ 0 $ 5,485,905 $ 0 $ 5,485,905

Appropriations transferred (in/out) 0 (33) 0 (33) 0 0 0 0

Other adjustments (rescissions, 

etc.) 0 (5,369) 0 (5,369) 0 (3,921) 0 (3,921)

Appropriations used 0 (5,229,397) 0 (5,229,397) 0 (5,391,067) 0 (5,391,067)

Total Budgetary Financing 

Sources $ 0 $ 1,185,381 $ 0 $ 1,185,381 $ 0 $ 90,917 $ 0 $ 90,917

Unexpended Appropriations $ 0 $ 3,800,488 $ 0 $ 3,800,488 $ 0 $ 2,615,107 $ 0 $ 2,615,107

Net Position $ 0 $ 7,328,511 $ 0 $ 7,328,511 $ 0 $ 5,290,710 $ 0 $ 5,290,710
Department of Defense Agency Financial Report for FY 2012

ADDENDUM B Unaudited Financial Statements – DSCA

B-4

Consolidated Budgetary Resources

Security Assistance

Budgetary 

Financing Accounts

Non-Budgetary 

Financing Accounts

Dollars in Thousands

2012

Combined

Restated 2011

Combined

2012

Combined

Restated 2011

Combined

Budgetary Resources

Unobligated balance, brought forward, October 1 $ 26,792 $ 128,339 $ 28 $ 7,110

Unobligated balance brought forward, October 1, 

as adjusted 26,792 128,339 28 7,110

Recoveries of prior year unpaid obligations 1,824,623 21,967 0 0

Other changes in unobligated balance (1,749,780) (30,090) 0 (3,986)

Unobligated balance from prior year budget 

authority, net 101,635 120,216 28 3,124

Appropriation (discretionary and mandatory) 8,164,557 29,458,905 0 0

Borrowing Authority (discretionary and mandatory) 0 0 1,627 (939)

Contract authority (discretionary and mandatory) 66,473,232 28,163,552 0 0

Spending authority from offsetting collections

(discretionary and mandatory) 123,730 (23,946,735) 27,437 129

Total Budgetary Resources $ 74,863,154 $ 33,795,938 $ 29,092 $ 2,314

Status of Budgetary Resources

Obligations incurred $ 74,719,974 $ 33,769,145 $ 1,953 $ 2,287

Unobligated balance, end of year:

Apportioned 12,011 4,828 27,111 0

Exempt from Apportionment 22,690 0 0 0

Unapportioned 108,479 21,965 28 27

Unobligated balance brought forward, end of 

year $ 143,180 $ 26,793 $ 27,139 $ 27

Total Budgetary Resources $ 74,863,154 $ 33,795,938 $ 29,092 $ 2,314

Change in Obligated Balance

Unpaid obligations, brought forward, October 1 

(gross) $ 96,993,018 $ 91,701,933 $ 2,462,224 $ 2,462,224

Obligated balance start of year (net), before

adjustments 96,993,018 91,701,933 2,462,224 2,462,224

Obligated balance, start of year (net), as adjusted 96,993,018 91,701,933 2,462,224 2,462,224

Obligations incurred 74,719,974 33,769,145 1,953 2,287

Outlays (Gross) (31,158,623) (28,456,093) (1,953) (2,287)

Recoveries of prior year unpaid obligations (1,824,622) (21,967) 0 0

Obligated balances, end of year

Unpaid Obligations, end of year (gross) 138,729,747 96,993,018 2,462,224 2,462,224

Obligated balance, end of year (net) $ 138,729,747 $ 96,993,018 $ 2,462,224 $ 2,462,224

Budgetary Authority and Outlays, Net:

Budget Authority, gross (discretionary and 

mandatory) $ 74,761,519 $ 33,675,722 $ 29,064 $ (810)

Actual offsetting collections (discretionary and 

mandatory) (123,730) (96) (179,092) (158,740)

Budget Authority, net (discretionary and 

mandatory) $ 74,637,789 $ 33,675,626 $ (150,028) $ (159,550)

Outlays, gross (discretionary and mandatory) 31,158,623 28,456,093 1,953 2,287

Actual offsetting collections (discretionary and 

mandatory) (123,730) (96) (179,092) (158,740)

Outlays, net (discretionary and mandatory) 31,034,893 28,455,997 (177,139) (156,453)

Distributed offsetting receipts (26,310,214) (23,946,831) (177,139) (156,453)

Agency Outlays, net (discretionary and 

mandatory) $ 4,724,679 $ 4,509,166 $ (177,139) $ (156,453)
Department of Defense Agency Financial Report for FY 2012

ADDENDUM B Unaudited Financial Statements – DSCA

B-5

NOTE 1. SIGNIFICANT ACCOUNTING POLICIES

1.A. Basis of Presentation 

These financial statements have been prepared, in accordance with Chief Financial Officers 

Act of 1990 (CFO), to report the financial position and results of operations of the Foreign 

Military Sales (FMS) Trust Fund and its accounts, as identified in the President’s Budget 

Request, the Foreign Operations (International Affairs) appropriated accounts. The FMS 

Trust Fund has accounts for U.S. government funds appropriated for security assistance and 

for funds deposited by foreign countries and international organizations, or by others for 

their use. The FMS Trust Fund and other accounts for funds appropriated for security 

assistance are managed by the Defense Security Cooperation Agency (DSCA) on behalf of 

the DoD, in accordance with the authority of the Executive Office of the President (EOP), 

and the requirements of the CFO Act of 1990, as expanded by the Government Management 

Reform Act of 1994, and other applicable laws and regulations.

The financial statements were prepared from accounting records that are maintained by the 

Military Departments (MILDEPs), Other Defense Organizations (ODO), and the Defense 

Finance and Accounting Service (DFAS) in accordance with, and to the extent possible, U.S. 

Generally Accepted Accounting Principles (USGAAP) promulgated by the Federal Accounting 

Standards Advisory Board; the Office of Management and Budget (OMB) Circular No. A-136, 

Financial Reporting Requirements; and the DoD Financial Management Regulation.

The accompanying financial statement information accounts for all FMS Trust Fund 

resources and the accounts for funds appropriated for security assistance unless otherwise 

noted. Information relative to classified assets, programs, and operations is excluded from 

the statements or otherwise aggregated and reported in such a manner that it is not 

discernible.

The FMS Trust Fund accounting systems, including its sub accounts, and the accounts for 

funds appropriated for security assistance, are unable to fully implement all elements of 

USGAAP and the OMB Circular No. A-136, due to limitations of financial management 

processes, financial systems, and nonfinancial systems and processes that support the 

financial statements. Many of the accounts derive their reported values and other data and 

information for major asset and liability categories largely from nonfinancial systems, such 

as MILDEPs’ inventory and logistic systems. Such legacy systems were designed to support 

reporting requirements for maintaining asset accountability and reporting the status of 

Federal appropriations rather than preparing financial statements consistent with USGAAP. 

There are ongoing efforts to implement process and system improvements addressing these 

limitations.

The DoD currently has 13 auditor identified material weaknesses. Of these, the FMS Trust 

Fund and the accounts for funds appropriated for security assistance may include:

(1) Financial Management Systems; (2) Intergovernmental Eliminations; (3) Fund Balance 

with Treasury; (4) Statement of Net Cost; (5) Other Accounting Entries; (6) Reconciliation 

of Net Cost of Operations to Budget; (7) Accounts Payable; and (8) Accounts Receivable.
Department of Defense Agency Financial Report for FY 2012

ADDENDUM B Unaudited Financial Statements – DSCA

B-6

1.B. Mission of the Reporting Entity 

The DSCA mission is to lead, direct and manage security cooperation programs and 

resources to support the U.S. national security objectives. Such programs build relationships 

with foreign countries and international organizations that promote the U.S. interests, 

develop allied and partner capacities for self-defense and coalition participation in overseas 

contingency operations, and promote peacetime and contingency access for U.S. forces. The 

DSCA accomplishes its responsibilities for security cooperation in concert with the 

Department of State (DOS), MILDEPs, other U.S. Government organizations, U.S. industry, 

and non-governmental organizations. Together we provide financial and technical 

assistance, Foreign Military Financing (FMF) for defense articles and services, including 

training, provided through the FMS program, as well as training provided and funded under 

International Military Education and Training authorities.

1.C. Appropriations and Funds 

The FMS Trust Fund is a U.S. Treasury account (Treasury Account Symbol (TAS) 8242) 

which contains deposits from FMS foreign country and international organization customers, 

as well as funds transferred into the account from U.S. Government appropriations, for use 

in carrying out specific purposes or programs in accordance with the Arms Export Control 

Act, as amended (AECA) (22 U.S.C. § 2751 et seq.); the Foreign Assistance Act of 1961, as 

amended (FAA), (22 U.S.C. § 2151 et seq.); and other legal authorities. The monies in the 

FMS Trust Fund are subject to U.S. Treasury account system controls from the date of 

receipt to the date of expenditure or refund. At the country or customer level, there are 

separate sub accounts used by DoD through DSCA and DFAS to separately and individually 

account for each FMS customer’s deposits, other collections or deposits, payments of bills, 

refunds, and adjustments. At the U.S. Treasury level, the corpus of the FMS Trust Fund 

represents the total aggregation of balances (receipts minus disbursements) for all activities 

and programs.

The DoD utilizes separate U.S. Treasury Accounts for the general fund Foreign Operations 

(International Affairs) appropriations. These accounts are:

• International Military Education and Training (TAS 1081)

• Foreign Military Financing Program Account (TAS 1082)

• Foreign Military Loan Liquidating Account (TAS 4121)

• Foreign Military Financing Direct Loan Financing Account (TAS 4122)

• Military Debt Reduction Financing Account (TAS 4174)

• Special Defense Acquisition Fund (TAS 4116)

The DSCA receives funds for the FMS Trust Fund and the accounts for funds appropriated 

for security assistance as general, special, and trust funds. The DSCA uses these 

appropriations and funds to execute its missions and subsequently reports on resource 

usage.

General and special appropriations transferred into the FMS Trust Fund are used for financial 

transactions, including personnel, operations and maintenance of security assistance 
Department of Defense Agency Financial Report for FY 2012

ADDENDUM B Unaudited Financial Statements – DSCA

B-7

functions, and financing of FMS, which may include sales of defense articles and services 

from stock or through procurement, and the sale of foreign military construction.

The FMS Trust Fund accounts for receipts and expenditures of funds held in trust by the 

U.S. government for use in carrying out specific purposes or programs in accordance with 

applicable laws, regulations, and agreements.

The DSCA is a party to allocation transfers with other Federal agencies as a receiving (child) 

entity. An allocation transfer is an entity’s legal delegation of authority to obligate budget 

authority and outlay funds on its behalf. Generally, all financial activity related to allocation 

transfers are reported in the financial statements of the parent entity. Exceptions to this 

general rule will apply to specific funds for which OMB has directed that all activity will be 

reported in the financial statements of the child entity. Exceptions include all U.S. TreasuryManaged Trust Funds, EOP, and all other funds specifically designated by OMB. The DSCA’s 

appropriations are allocation transfers from the EOP that meet the OMB exception and all 

related activity are included in DSCA financial statements, which are reported as a separate 

section of the DoD financial statements.

1.D. Basis of Accounting 

The legacy financial management systems utilized for the FMS Trust Fund and the accounts 

for funds appropriated for security assistance are unable to meet full accrual accounting. 

Many of the DSCA, MILDEP, and ODO financial and nonfinancial feeder systems and 

processes were designed and implemented prior to the issuance of USGAAP guidance. These 

legacy systems were not designed to collect and record financial information on a full 

accrual accounting basis as required by USGAAP. Most of DSCA, MILDEP, and ODO financial 

and nonfinancial legacy systems were designed to record information on a budgetary basis.

The FMS Trust Fund and the accounts for funds appropriated for security assistance financial 

statements and supporting trial balances are compiled from the underlying financial data 

and trial balances of the MILDEPs, ODOs, and their sub-entities. The underlying data is 

largely derived from budgetary transactions (obligations, disbursements, and collections) 

from nonfinancial feeder systems, and accruals made for major items such as payroll 

expenses, and accounts payable. Some of the sub-entity level trial balances may reflect 

known abnormal balances resulting largely from business and system processes. At the 

consolidated DSCA level these abnormal balances may not be evident. Disclosures of 

abnormal balances are made in the applicable footnotes, but only to the extent that the 

abnormal balances are evident at the consolidated level. 

The DSCA, with MILDEPs and ODOs, is determining the actions required to bring its financial 

and nonfinancial feeder systems and processes into compliance with USGAAP. One such 

action is the current revision of accounting systems to record transactions based on the 

U.S. Standard General Ledger (USSGL). Until all DSCA, MILDEP, and ODO systems and 

related processes have been updated to collect and report financial information as required 

by USGAAP, reported financial data is based on budgetary transactions data from 

nonfinancial feeder systems, and accruals.
Department of Defense Agency Financial Report for FY 2012

ADDENDUM B Unaudited Financial Statements – DSCA

B-8

1.E. Revenues and Other Financing Sources 

As authorized by legislation, payments for the sales of defense articles and services are 

deposited into the FMS Trust Fund. Appropriations provided on an annual or multiyear basis 

for security assistance are a financing source and are transferred into the FMS Trust Fund or 

deposited into the accounts for funds appropriated for security assistance. Pricing for 

defense articles and services, including training, is established to recover costs as required 

by the AECA, the FAA, and OMB Circular A-25, User Charges. The FMS Trust Fund and the 

accounts for funds appropriated for security assistance recognize revenue when earned 

within the constraints of current system capabilities.

The DSCA does not include nonmonetary support provided by friendly foreign countries and 

international organizations in amounts reported in the Statement of Net Cost and Note 21, 

Reconciliation of Net Cost of Operations to Budget.

The DSCA participates in assistance-in-kind agreements in its overseas presence. The 

assistance in kind provided in support of security cooperation programs includes the use of 

facilities and personnel (guards and drivers) at a small number of Security Cooperation 

Offices worldwide.

1.F. Recognition of Expenses

The DoD policy requires the recognition of operating expenses in the period incurred. 

Current financial and nonfinancial feeder systems for the FMS Trust Fund and the accounts 

for funds appropriated for security assistance were not designed to collect and record 

transactions on an accrual accounting basis. Estimates are made for major items, such as 

payroll expenses, accounts payable, and unbilled revenue. The DSCA continues to 

implement process and system improvements to address these limitations.

1.G. Accounting for Intragovernmental Activities 

Accounting standards require that an entity eliminate intraentity activity and balances from 

consolidated financial statements in order to prevent overstatement for business with itself. 

However, DSCA cannot accurately identify most of its intragovernmental transactions 

because MILDEP systems do not track buyer and seller data needed to match related 

transactions. In most cases, the buyer-side records are adjusted to agree with DoD sellerside balances and are then eliminated. The DoD is implementing replacement systems and a 

standard financial information structure that will incorporate the necessary elements that 

will enable DoD to correctly report, reconcile, and eliminate intragovernmental balances.

The Treasury Financial Manual Part 2 – Chapter 4700, “Agency Reporting Requirements for 

the Financial Report of the United States Government,” provide guidance for reporting and 

reconciling intragovernmental balances. The FMS Trust Fund and the accounts for funds 

appropriated for security assistance are unable to fully reconcile intragovernmental 

transactions with all Federal agencies; however, the FMS Trust Fund is able to reconcile 

balances pertaining to borrowing from the U.S. Treasury and the Federal Financing Bank, 

Federal Employees’ Compensation Act (FECA) transactions with the Department of Labor, 

and benefit program transactions with the Office of Personnel Management.
Department of Defense Agency Financial Report for FY 2012

ADDENDUM B Unaudited Financial Statements – DSCA

B-9

The DoD’s proportionate share of public debt and related expenses to the Federal 

Government is not included. The Federal Government does not apportion debt and its 

related costs to Federal agencies. The DoD’s financial statements do not report any public 

debt, interest, or source of public financing whether from issuance of debt or tax revenues.

1.H. Transactions with Foreign Governments and International 

Organizations 

Each year, the FMS Trust Fund and the accounts for funds appropriated for security 

assistance sells defense articles and services to foreign governments and international 

organizations under the provisions of the AECA. Under the provisions of the Act, DoD has 

authority to sell defense articles and services to foreign countries and international 

organizations generally at no profit or loss to the Federal Government. Payment in U.S. 

dollars is required in advance.

1.I. Funds with the U.S. Treasury 

The FMS Trust Fund monies are held in U.S. Treasury accounts and the Federal Reserve 

Bank in individual accounts established by the U.S. for foreign countries. Funds held in the 

Federal Reserve Bank are transferred to the FMS Trust Fund account to be disbursed for 

FMS purposes.

For monetary financial resources maintained in U.S. Treasury accounts, the disbursing 

offices of DFAS, the MILDEPs, the U.S. Army Corps of Engineers (USACE), and the DOS’s 

financial service centers process the majority of the FMS Trust Fund and the accounts for 

funds appropriated for security assistance cash collections, disbursements, and adjustments 

worldwide. Each disbursing station prepares monthly reports that provide information to the 

U.S. Treasury on checks issued, electronic fund transfers, interagency transfers, and 

deposits.

In addition, DFAS sites and USACE Finance Center submit reports to the U.S. Treasury, by 

appropriation, on interagency transfers, collections received, and disbursements issued. The 

U.S. Treasury records this information to the applicable Fund Balance with Treasury (FBWT) 

account. On a monthly basis, FMS Trust Fund and the accounts for funds appropriated for 

security assistance FBWT is adjusted to agree with the U.S. Treasury accounts.

1.J. Cash and Other Monetary Assets 

Cash is the total of cash resources under the control of DoD which includes coin, paper 

currency, negotiable instruments, which are held for deposit in banks or other financial 

institutions and is classified as "nonentity" and is restricted. 

The FMS Trust Fund only accepts U.S. dollars for payment of defense articles and services 

per DoD 5015.38M Security Assistance Management Manual; Chapter 5; Foreign Military 

Sales Case Development. All payments and collections are in U.S. dollars.

1.K. Accounts Receivable 

The FMS Trust Fund and the accounts for funds appropriated for security assistance 

accounts receivable from other Federal entities or the public include: accounts receivable, 
Department of Defense Agency Financial Report for FY 2012

ADDENDUM B Unaudited Financial Statements – DSCA

B-10

claims receivable, and refunds receivable. Allowances for uncollectible accounts due from 

the public are based upon analysis of collection experience by fund type. The DoD does not 

recognize all allowance for estimated uncollectible amounts from other Federal agencies. 

Claims against other Federal agencies are to be resolved between the agencies in 

accordance with dispute resolution procedures defined in the Intragovernmental Business 

Rules published in the Treasury Financial Manual.

1.L. Direct Loans and Loan Guarantees 

The DSCA administers the FMF program on behalf of the EOP. Direct loans and loan 

guarantees are authorized by sections 23 and 24 of the AECA of 1976, as amended, Public 

Law (P.L.) 90-269, as amended, and section 503(a) and other specific legislation. These 

loans and guarantees assist friendly foreign countries and international organizations in 

purchasing U.S. defense articles and services.

1.M. Inventories and Related Property 

The FMS Trust Fund and the accounts for funds appropriated for security assistance do not 

maintain inventory. The defense articles are provided to the FMS customer from the 

U.S. Government or the contractor pursuant to a contract with the U.S. Government. 

Defense articles sold from the DoD or the U.S. Coast Guard are assets of the providing 

component until title is transferred to foreign customer.

1.N. Investments in U.S. Treasury Securities 

Not applicable

1.O. General Property, Plant and Equipment 

Not applicable

1.P. Advances and Prepayments 

When advances are permitted by law, legislative action, or presidential authorization, the 

DoD’s policy is to record advances and prepayments in accordance with USGAAP. As such, 

payments made in advance of the receipt of goods and services are reported as an asset on 

the Balance Sheet. The DoD’s policy is to expense and/or properly classify assets when the 

related goods and services are received. Not all military services who execute on behalf of 

DSCA have implemented this policy primarily due to system limitations.

1.Q. Leases 

Lease payments for the rental of DSCA operating facilities are contracted for and classified 

as operating leases. The DSCA, as the lessee, receives the use and possession of leased 

property, for example real estate, from a lessor in exchange for payment of funds. An 

operating lease does not substantially transfer all the benefits and risk of ownership. 

Payments for operating leases are charged to expenses over the lease terms as it becomes 

payable.

Office space and leases are funded by the FMS Trust Fund. These costs were gathered from 

existing operating leases and General Services Administration bills, and interservice support 
Department of Defense Agency Financial Report for FY 2012

ADDENDUM B Unaudited Financial Statements – DSCA

B-11

agreements. Future year projections use the Consumer Price Index. The FMS Trust Fund 

and the accounts for funds appropriated for security assistance do not have capital leases.

1.R. Other Assets 

Other assets includes civil service employee pay advances, travel advances, and certain 

contract financing payments that are not reported elsewhere on the FMS Trust Fund and the 

accounts for funds appropriated for security assistance Balance Sheet. 

The FMS Trust Fund and the accounts for funds appropriated for security assistance conduct 

business with commercial contractors using two primary types of contracts: fixed price and 

cost reimbursable. Contract financing payments are defined in the Federal Acquisition 

Regulations (FAR), Part 32, as authorized disbursements to a contractor prior to acceptance 

of supplies or services by the Government. These payments are designed to alleviate the 

potential financial burden on contractors performing on certain long-term contracts and 

facilitate competition for defense contracts. Contract financing payments clauses are 

incorporated in the contract terms and conditions and may include advance payments, 

performance-based payments, commercial advance and interim payments, progress 

payments based on cost, and interim payments under certain cost-reimbursement 

contracts. It is DoD policy to record certain contract financing payments as other assets.

Contract financing payments do not include invoice payments, payments for partial 

deliveries, lease and rental payments, or progress payments based on a percentage or 

stage of completion. The Defense Federal Acquisitions Regulation Supplement authorizes 

progress payments based on a percentage or stage of completion only for construction of 

real property, shipbuilding, and ship conversion, alteration, or repair. Progress payments 

based on percentage or stage of completion are reported as Construction in Progress.

1.S. Contingencies and Other Liabilities 

The SFFAS No. 5, Accounting for Liabilities of the Federal Government, as amended by 

SFFAS No. 12, “Recognition of Contingent Liabilities Arising from Litigation,” defines a 

contingency as an existing condition, situation, or set of circumstances that involves an 

uncertainty as to possible gain or loss. The uncertainty will be resolved when one or more 

future events occur or fail to occur. The FMS Trust Fund and the accounts for funds 

appropriated for security assistance recognize contingent liabilities when past events or 

exchange transactions occur, a future loss is probable, and the loss amount can be 

reasonably estimated.

Financial statement reporting is limited to disclosure when conditions for liability recognition 

do not exist but there is at least a reasonable possibility of incurring a loss or additional 

losses. The FMS Trust Fund and the accounts for funds appropriated for security assistance 

risk of loss due to contingencies arise as a result of pending or threatened litigation or 

claims and assessments due to events such as aircraft, ship, and vehicle accidents; medical 

malpractice; property or environmental damages; and contract disputes.
Department of Defense Agency Financial Report for FY 2012

ADDENDUM B Unaudited Financial Statements – DSCA

B-12

1.T. Accrued Leave 

The FMS Trust Fund reports liabilities for military leave and accrued compensatory and 

annual leave for civilians. Sick leave for civilians is expensed as taken. The liabilities are 

based on current pay rates.

1.U. Net Position 

Net position consists of unexpended appropriations and cumulative results of operations. 

Unexpended appropriations represent the amounts of budget authority that are unobligated 

and have not been rescinded or withdrawn. Unexpended appropriations also represent 

amounts obligated for which legal liabilities for payments have not been incurred. 

Cumulative results of operations represent the net difference between expenses and losses 

and financing sources (including appropriations, revenue, and gains) since inception. The 

cumulative results of operations also include donations and transfer in and out of assets 

that were not reimbursed.

1.V. Treaties for Use of Foreign Bases 

Not applicable

1.W. Undistributed Disbursements and Collections

Undistributed disbursements and collections represent the difference between 

disbursements and collections matched at the transaction level to specific obligations, 

payables, or receivables in the source systems and those reported by the U.S. Treasury. 

Supported disbursements and collections may be evidenced by the availability of 

corroborating documentation generally support the summary level adjustments made to 

accounts payable and receivable. Unsupported disbursements and collections do not have 

supporting documentation for the transactions and most likely would not meet audit 

scrutiny. However, both supported and unsupported adjustments may have been made to 

the DSCA Accounts Payable and Receivable trial balances prior to validating underlying 

transactions required to establish the Accounts Payable/Receivable were previously made. 

As a result, misstatements of reported Accounts Payable and Receivables are likely present 

in the DSCA financial statements.

Due to noted material weaknesses in current accounting and financial feeder systems, the 

DoD is generally unable to determine whether undistributed disbursements and collections 

should be applied to Federal or non-Federal accounts payables/receivable at the time 

accounting reports are prepared. Accordingly, the FMS Trust Fund and accounts for funds 

appropriated for security assistance follow the DoD policy, which is to allocate supported 

undistributed disbursements and collections between Federal and non-Federal categories 

based on the percentage of distributed Federal and non-Federal accounts payable and 

accounts receivable. Both supported and unsupported undistributed disbursements and 

collections are then applied to reduce accounts payable and receivable accordingly.

1.X. Fiduciary Activities 

Not applicable
Department of Defense Agency Financial Report for FY 2012

ADDENDUM B Unaudited Financial Statements – DSCA

B-13

1.Y. Military Retirement and Other Federal Employment Benefits 

Not applicable

1.Z. Significant Events

Not applicable

NOTE 2. NONENTITY ASSETS

Nonentity Assets Dollars in Thousands

As of September 30 2012 2011

Intragovernmental Assets

Fund Balance with Treasury $ 14,872,317 $ 15,121,753

Total Intragovernmental Assets $ 14,872,317 $ 15,121,753

Non-Federal Assets

Cash and Other Monetary Assets $ 20,124,963 $ 18,160,143

Accounts Receivable 707,589 712,582

Other Assets 26,733,628 25,223,804

Total Non-Federal Assets $ 47,566,180 $ 44,096,529

Total Nonentity Assets $ 62,438,497 $ 59,218,282

Total Entity Assets $ 8,121,609 $ 6,302,795

Total Assets $ 70,560,106 $ 65,521,077

Nonentity Assets are assets for which the FMS Trust Fund and the accounts for funds 

appropriated for security assistance maintains stewardship accountability and reporting 

responsibility, but are not available for the agency’s operations. 

Fund Balance with Treasury and Cash and Other Monetary Assets consist of advance 

deposits from friendly countries and international organizations to facilitate the purchase of 

U.S. defense articles and services based on future requirement forecasts. 

Accounts Receivable consist of amounts for interest, fines, and penalties due on debt from 

loans and non-Federal funds owed to the FMS Trust Fund country accounts that are in 

litigation at Department of Justice or collection status at DFAS. Some portion of these 

uncollected funds may be payable to the FMS Administrative Surcharge account, but are not 

discernible prior to collection. 

Non-Federal Other Assets consist primarily of advances paid for undelivered defense articles 

and services intended for future delivery to the FMS customer.
Department of Defense Agency Financial Report for FY 2012

ADDENDUM B Unaudited Financial Statements – DSCA

B-14

NOTE 3. FUND BALANCE WITH TREASURY 

Fund Balance with Treasury Dollars in Thousands

As of September 30 2012 2011

Fund Balance

Appropriated Funds $ 3,837,638 $ 2,632,921

Trust Funds 14,872,317 15,121,753

Other Fund Types 4,101,127 3,339,200

Total Fund Balance $ 22,811,082 $ 21,093,874

Fund Balance Per Treasury Versus Agency

Fund Balance per Treasury $ 22,811,082 $ 21,093,874

Fund Balance per Agency 22,811,082 21,093,874

Reconciling Amount $ 0 $ 0

The $4.1 billion reported as Fund Balances, Other Fund Types, consists of funds on deposit 

for the management of FMS Administration, Contract Administrative Services, 

Transportation, Attrition and General Services Administration Packing, Crating and Handling.

Status of Fund Balance with Treasury Dollars in Thousands

As of September 30 2012 2011

Unobligated Balances

Available $ 61,812 $ 4,829

Unavailable 108,507 21,992

Obligated Balance not yet Disbursed 141,191,970 99,455,241

Non-Budgetary FBWT 26,310,220 23,946,837

Non-FBWT Budgetary Accounts (144,861,427) (102,335,025)

Total Fund Balance $ 22,811,082 $ 21,093,874

The Status of Fund Balance with Treasury (FBWT) reflects the budgetary resources to 

support FBWT and is a reconciliation between budgetary and proprietary accounts. It 

primarily consists of unobligated and obligated balances. The balances reflect the budgetary 

authority remaining for disbursement against current or future obligations.

Unobligated Balance is classified as available or unavailable and represents the cumulative 

amount of budgetary authority that has not been set aside to cover outstanding obligations. 

The unavailable balance consists primarily of funds invested in U.S. Treasury securities that 

are temporarily precluded from obligations by law. Certain unobligated balances are 

restricted for future use and are not apportioned for current use. Unobligated balances for 

trust fund accounts are restricted for use by the public law that established the funds.

Obligated Balance not yet Disbursed represents funds that have been obligated for goods 

and services not received and those received but not paid.

Nonbudgetary FBWT includes accounts that do not have budgetary authority, such as 

deposit funds, unavailable receipt accounts, clearing accounts and nonentity FBWT. The 

Nonbudgetary FBWT consists of Contingency Operations provided to DoD in supplemental 

appropriations, and Contingency Operations funding transferred from Department of State 

(DOS), which DOS received in supplemental appropriations. Obligations are incurred using 

contract authority and liquidated with these appropriations. 
Department of Defense Agency Financial Report for FY 2012

ADDENDUM B Unaudited Financial Statements – DSCA

B-15

NonFBWT Budgetary Accounts reduces the Status of FBWT. The NonFBWT Budgetary 

Accounts primarily consists of nonentity cash deposited in the Federal Reserve Bank and 

contract authority. 

NOTE 5. ACCOUNTS RECEIVABLE

Accounts Receivable Dollars in Thousands

2012

As of September 30

Gross Amount Due

Allowance for 

Estimated 

Uncollectibles

Accounts 

Receivable, Net

Intragovernmental Receivables $ 0 N/A $ 0

Non-Federal Receivables 

(From the Public) 50,377 (39) 50,338

Total Accounts Receivable $ 50,377 $ (39) $ 50,388

Accounts Receivable Dollars in Thousands

2011

As of September 30

Gross Amount Due

Allowance for 

Estimated 

Uncollectibles

Accounts 

Receivable, Net

Intragovernmental Receivables $ 0 N/A $ 0

Non-Federal Receivables 

(From the Public) 51,436 (6) 51,430

Total Accounts Receivable $ 51,436 $ (6) $ 51,430

The accounts receivable represent the FMS Trust Fund claim for payment from other 

entities. The FMS Trust Fund only recognizes an allowance for uncollectible amounts from

the public. Claims with other Federal agencies are resolved in accordance with the 

Intragovernmental Business Rules.

NOTE 6. OTHER ASSETS

Other Assets Dollars in Thousands

As of September 30 2012 2011

Nonfederal Other Assets

Outstanding Contract Financing Payments $ 2,985,170 $ 2,657,874

Advances and Prepayments 23,752,485 22,573,925

Total Non-Federal Other Assets $ 26,737,655 $ 25,231,799

Total Other Assets $ 26,737,655 $ 25,231,799

Contract terms and conditions for certain types of contract financing payments convey 

certain rights to the FMS Trust Fund that protect the contract work from state or local 

taxation, liens or attachment by the contractor's creditors, transfer of property, or 

disposition in bankruptcy. However, these rights should not be misconstrued to mean that 

ownership of the contractor’s work has transferred to the Government. The Government 

does not have the right to take the work, except as provided in contract clauses related to 

termination or acceptance, and the FMS Trust Fund is not obligated to make payment to the 

contractor until delivery and acceptance of a satisfactory product. 
Department of Defense Agency Financial Report for FY 2012

ADDENDUM B Unaudited Financial Statements – DSCA

B-16

The balance of Outstanding Contract Financing Payments includes $2.1 billion in contract 

financing payments and an additional $877 million in estimated future payments to 

contractors upon delivery and government acceptance of a satisfactory product. (See 

additional discussion in Note 15, Other Liabilities).

NOTE 7. CASH AND OTHER MONETARY ASSETS

Cash and Other Monetary Assets Dollars in Thousands

As of September 30 2012 2011

Cash $ 20,124,963 $ 18,160,143

Total Cash, Foreign Currency, and Other Monetary Assets $ 20,124,963 $ 18,160,143

Restricted Cash of $20.1 billion includes advance deposits from foreign nations in the 

Federal Reserve Bank which have not been transferred to the FMS Trust Fund and are not 

available for agency use (nonentity cash).

NOTE 8. DIRECT LOAN AND LOAN GUARANTEES

Direct Loan and Loan Guarantee Programs

The DSCA operates the following direct loans and/or loan guarantee Programs:

The Arms Export Control Act, as amended, authorizes funds to be appropriated to the 

President for financing the sales of defense articles and defense services to eligible foreign 

countries. Each loan is reviewed in the light of the purchasing country’s financial condition, 

its need for credit, U.S. economic or military assistance programs in the country and region, 

and other proposed arms purchases by the country. The President delegates to the 

Secretary of Defense the authority to issue and guaranty loans through the designated 

administering agency, DSCA. The loans are issued to friendly, less economically developed 

countries. Pursuant to the authority contained in the Act, DSCA operates the four funds, 

known as: For pre-1992 loans (1) Foreign Military Loan Liquidating Account (FMLLA). For 

post-1991 loans (2 & 3) the Foreign Military Direct Loan Program and Financing Accounts 

for post-1991 loans, and (4) the Military Debt Reduction Financing Account (MDRFA) for 

reducing loan receivables for eligible countries. 

The FMLLA is a liquidating account that includes all assets, liabilities, and equities for loan 

balances recorded prior to FY 1992. No new loan disbursements are made from this 

account. Certain collections made into this account are made available for default claim 

payments. The Federal Credit Reform Act (FCRA) provides permanent indefinite authority 

to cover obligations for default payments in the event the funds in the liquidating account 

are otherwise insufficient.

Foreign Military Financing Direct Loan Program Account (FMFDLPA) is a program account 

that was established pursuant to the FCRA to provide the funds necessary for the subsidy 

element of loans. Expenditures from this account finance the subsidy element of direct loan 

disbursements and are transferred into the Foreign Military Financing Direct Loan Financing 

Account (FMFDLFA) to make required loan disbursements for approved Foreign Military 

Sales or commercial sales. 
Department of Defense Agency Financial Report for FY 2012

ADDENDUM B Unaudited Financial Statements – DSCA

B-17

The FMFDLFA is a financing account that is used to make disbursements of Foreign Military 

Loan funds for approved procurements and for subsequent collections for the loans after 

September 30, 1991. The account uses permanent borrowing authority from the 

U.S. Treasury combined with transfers of appropriated funds from FMFDLPA to make the 

required disbursements to loan recipient country borrowers for approved procurements. 

Receipts of debt service collections from borrowers are used to repay borrowings from 

U.S. Treasury.

MDRFA is a financing account that was established for the debt relief of certain countries as 

established by Public Law 103-87. The MDRFA buys the portfolio of loans from the FMLLA, 

thus transferring the loans from the FMLLA account to the MDRFA account. The Paris Club 

negotiates the debt forgiveness with Highly Indebted Poor Countries (HIPC). 

The Paris Club has nineteen member countries that negotiate rescheduling or refinancing of 

debt for HIPC. The Paris Club provides debt reduction initially on payments coming due over 

a specific period that correspond to the length of an International Monetary Fund (IMF) 

supported economic reform program. Reduction then is staged, with each successive stage 

contingent upon debtor country compliance with its IMF-support program. Under Naples 

Terms, stock of debt reduction is provided after three years of good performance with 

respect to IMF reform programs and payments to Paris Club creditors. The United States 

incurs the budget cost of the eventual stock of debt reduction when it agrees to the initial 

“maturities” reduction of payments coming due, since bilateral agreements commit us to 

stock reduction once the Paris Club agrees to provide them. 

The FCRA governs all amended direct loan obligations and loan guarantee commitments 

made after FY 1991 resulting in direct loans or loan guarantees.

Direct loans are reported at the net present value of the following projected cash flows: 

(1) loan disbursements, (2) repayments of principal, and (3) payments of interest and other 

payments over the life of the loan after adjusting for estimated defaults, prepayments, fees, 

penalties, and other recoveries

Summary of Direct Loans and Loan Guarantees Dollars in Thousands

As of September 30 2012 2011

Loans Receivable

Direct Loans:

Foreign Military Loan Liquidating Account $ 847,442 $ 958,461

Foreign Military Financing Account (27,111) 11,260

Military Debt Reduction Financing Account 15,737 14,110

Total Loans Receivable $ 836,068 $ 983,831
Department of Defense Agency Financial Report for FY 2012

ADDENDUM B Unaudited Financial Statements – DSCA

B-18

Direct Loans Obligated Dollars in Thousands

As of September 30 2012 2011

Direct Loans Obligated After FY 1992 

(Allowance for Loss Method):

Foreign Military Loan Liquidating Account:

Loans Receivable Gross $ 610,482 $ 735,510

Interest Receivable 1,659,237 1,573,671

Allowance for Loan Losses (1,422,277) (1,350,720)

Value of Assets Related to Direct Loans $ 847,442 $ 958,461

Direct Loans Obligated After FY 1991 

(Present Value Method):

Foreign Military Financing Account:

Allowance for Subsidy Cost (Present Value) $ (27,111) $ 11,260

Value of Assets Related to Direct Loans $ (27,111) $ 11,260

Military Debt Reduction Financing Account:

Loans Receivable Gross $ 0 $ 190,745

Interest Receivable 0 70,182

Allowance for Subsidy Cost (Present Value) 15,737 (246,817)

Value of Assets Related to Direct Loans, Net $ 15,737 $ 14,110

Total Direct Loans Receivable $ 836,068 $ 983,831

OTHER DISCLOSURES:

The DSCA bills the countries every six months for loan repayments. Applying terms of the 

loans with the countries, accrued interest receivable is calculated using the simple interest 

method. Interest accrued on unpaid balances use the same interest rate plus 4 percent for 

loans owed to the Federal Financing Bank.

The allowance for credit subsidy account for the FMFDLFA account is calculated taking into 

consideration three transactions: (1) transfers of subsidy from the program account to the 

financing account; (the subsidy is the difference between the expected cash outlays from 

the U.S. Government and the present value of the expected collections); (2) interest 

payments from the U.S. Treasury to the financing fund; and (3) upward adjustments due to 

reestimates as U.S. Treasury borrowing rates change over time from the loan repayment 

rate and an increase in estimated defaults on the loan. 

The abnormal debit balance for allowance of $15.7 million in the MDRFA is the unamorizited 

portion of the subsidy that results from a debit balance reflects the cost of the loan to the 

U.S. Government. A debit balance results from: (1) interest expense paid on U.S. Treasury 

borrowings and (2) downward adjustments due to reestimates when the loan repayment 

rate exceeds the U.S. Treasury borrowing rate, and a decrease in estimated defaults. The 

loans in the MDRFA account were originally FMFDLFA loans and were categorized as 

moderate to medium risk and were expected to have an increasing amount of defaults over 

the years, but since have defaulted. This was built into the original subsidy amount. As the 

loan matured, and then eventually defaulted, along with the U.S. Treasury borrowing rates 

falling below the loan interest rates. This resulted in downward reestimates and a negative 

subsidy rate for the loans, which resulted in a debit balance in the allowance for subsidy.
Department of Defense Agency Financial Report for FY 2012

ADDENDUM B Unaudited Financial Statements – DSCA

B-19

Total Amount of Direct Loans Disbursed Dollars in Thousands

As of September 30 2012 2011

Direct Loan Programs

Foreign Military Financing Account $ 0 $ 0

Total $ 0 $ 0

Schedule for Reconciling Subsidy Cost Allowance Balances

For Post FY 1991 Direct Loans Dollars in Thousands

As of September 30 2012 2011

Beginning Balance, Changes, and Ending Balance:

Beginning Balance of the Subsidy Cost Allowance $ 235,558 $ 224,271

Adjustments

Loans Written Off 0 0

Subsidy Allowance Amortization (224,184) 11,286

Total of the above Adjustment Components $ (224,184) $ 11,286

Ending Balance of the Subsidy Cost Allowance before Reestimate $ 11,374 $ 235,557

Add or Subtract Subsidy Reestimate by Component

Interest Rate Reestimate 0 0

Total of the above Reestimate Components 0 0

Ending Balance of the Subsidy Cost Allowance $ 11,374 $ 235,557

Administrative Expenses

Administrative expenses for loans are not funded in the loan program account. The OMB 

funds administration of loans in the Foreign Military Financing Program Account (11*1082) 

since the dollar amount is so low. 

NOTE 11. LIABILITIES NOT COVERED BY BUDGETARY

RESOURCES

Liabilities Not Covered by Budgetary Resources Dollars in Thousands

As of September 30 2012 2011

Intragovernmental Liabilities:

Accounts Payable $ 0 $ 1

Other 118 111

Total Intragovernmental Liabilities $ 118 $ 112

Non-Federal Liabilities:

Military Retirement and Other Federal Employment Benefits 523 487

Total Non-Federal Liabilities 523 487

Total Liabilities Not Covered by Budgetary Resources 641 599

Total Liabilities Covered by Budgetary Resources $ 63,230,954 $ 60,229,768

Total Liabilities $ 63,231,595 $ 60,230,367

The Liabilities Not Covered by Budgetary Resources includes liabilities for which 

congressional action is needed before budgetary resources can be provided. These liabilities 

are categorized as not covered because there is no current or immediate appropriation 

available for liquidation. 
Department of Defense Agency Financial Report for FY 2012

ADDENDUM B Unaudited Financial Statements – DSCA

B-20

Military Retirement and Other Federal Employment Benefits consists of Federal Employee 

Compensation Act (FECA) actuarial liabilities of $523.5 thousand that is not due and payable 

during the current fiscal year. Refer to Note 17, Military Retirement and Other Federal 

Employment Benefits, for additional details and disclosures.

Intragovernmental Liabilities Other, represents the amount payable to Department of Labor 

for FECA liabilities.

NOTE 12. ACCOUNTS PAYABLE

Accounts Payable Dollars in Thousands

2012

As of September 30

Accounts Payable

Interest, Penalties, 

and Administrative 

Fees

Total

Intragovernmental Payables $ 252,698 N/A $ 252,698

Non-Federal Payables

(To the Public) 270,627 0 270,627

Total Accounts Payable $ 523,325 $ 0 $ 523,325

Accounts Payable Dollars in Thousands

2011

As of September 30

Accounts Payable

Interest, Penalties, 

and Administrative 

Fees

Total

Intragovernmental Payables $ 334,081 N/A $ 334,081

Non-Federal Payables

(To the Public)

285,823 0 285,823

Total Accounts Payable $ 619,904 $ 0 $ 619,904

Accounts Payable includes amounts owed to Federal and non-Federal entities for goods and 

services received by FMS Trust Fund and the accounts for funds appropriated for security 

assistance.

The systems utilized by the FMS Trust Fund and the accounts for funds appropriated for 

security assistance do not track intragovernmental transactions by customer at the 

transaction level. The FMS therefore cannot reconcile accounts payable with other Federal 

entities. Buyer-side accounts payable are adjusted to agree with interagency seller-side 

accounts receivable.
Department of Defense Agency Financial Report for FY 2012

ADDENDUM B Unaudited Financial Statements – DSCA

B-21

NOTE 13. DEBT

Debt Dollars in Thousands

2012

As of September 30 Beginning Balance Net Borrowing Ending Balance

Agency Debt 

(Intragovernmental)

Debt to the Treasury $ 43,600 $ (9,633) $ 33,967

Debt to the Federal Financing 

Bank 297,309 (107,118) 190,191

Total Debt $ 340,909 $ (116,751) $ 224,158

Debt Dollars in Thousands

2011

As of September 30 Beginning Balance Net Borrowing Ending Balance

Agency Debt 

(Intragovernmental)

Debt to the Treasury $ 41,442 $ 2,158 $ 43,600

Debt to the Federal Financing 

Bank 421,547 (124,238) 297,309

Total Debt $ 462,989 $ (122,080) $ 340,909

The FCRA of 1990 provides financing accounts with indefinite authority to borrow from the 

U.S. Treasury to fund disbursements of loans made to sovereign nations for security 

assistance. This debt to the U.S. Treasury is reflected in the Foreign Military Financing Direct 

Loan Financing account and the Military Debt Reduction account.

Beginning in January 1975, the DSCA and the Federal Financing Bank (FFB), acting under 

section 24 of the AECA, as amended, entered into an agreement whereby the FFB would 

make loan agreements with friendly nations and acquire promissory notes guaranteed by 

DSCA. The promissory notes are considered DSCA borrowings from the FFB. The promissory 

notes still owed to the FFB are reflected in the Foreign Military Loan Liquidating account.

The majority of the debt represents direct and guaranteed loans to foreign countries for 

pre-1992 and post-1991 loans. The FCRA governs all direct loan obligations and loan 

guarantee commitments made after FY 1991. Before 1992, funds were borrowed from the 

FFB to either directly loan the funds to foreign countries or to reimburse guaranteed loans 

defaulted. Beginning in 1992, based on the FCRA, the security assistance program began 

borrowing the funds from the U.S. Treasury.

The DSCA must pay the debt if the foreign country borrower defaults. For loan defaults, 

DSCA must pay the outstanding principle amounts guaranteed.
Department of Defense Agency Financial Report for FY 2012

ADDENDUM B Unaudited Financial Statements – DSCA

B-22

NOTE 15. OTHER LIABILITIES

Other Liabilities Dollars in Thousands

2012

As of September 30 Current Liability Noncurrent 

Liability Total

Intragovernmental

FECA Reimbursement to the 

Department of Labor $ 45 $ 72 $ 117

Custodial Liabilities 0 657,251 657,251

Total Intragovernmental Other 

Liabilities $ 45 $ 657,323 $ 657,368

Non-Federal

Accrued Funded Payroll and 

Benefits $ 118 $ 0 $ 118

Advances from Others 58,796,076 2,985,170 61,781,246

Contract Holdbacks 44,857 0 44,857

Total Non-Federal Other 

Liabilities $ 58,841,051 $ 2,985,170 $ 61,826,221

Total Other Liabilities $ 58,841,096 $ 3,642,493 $ 62,483,589

Other Liabilities Dollars in Thousands

2011

As of September 30 Current Liability Noncurrent 

Liability Total

Intragovernmental

FECA Reimbursement to the 

Department of Labor $ 52 $ 59 $ 111

Custodial Liabilities 0 661,153 661,153

Total Intragovernmental Other 

Liabilities $ 52 $ 661,212 $ 661,264

Non-Federal

Accrued Funded Payroll and 

Benefits $ 157 $ 0 $ 157

Advances from Others 55,899,255 2,657,874 58,557,129

Contract Holdbacks 50,517 0 50,517

Contingent Liabilities 0 0 0

Total Non-Federal Other 

Liabilities $ 55,949,929 $ 2,657,874 $ 58,607,803

Total Other Liabilities $ 55,949,981 $ 3,319,086 $ 59,269,067

Other Liabilities

Contingent Liabilities includes $3.0 billion related to contracts authorizing progress 

payments based on cost as defined in the FAR. In accordance with contract terms, specific 

rights to the contractors’ work vest with the Federal Government when a specific type of 

contract financing payment is made. This action protects taxpayer funds in the event of 

contract nonperformance. These rights should not be misconstrued as rights of ownership. 

The Department is under no obligation to pay contractors for amounts greater than the 
Department of Defense Agency Financial Report for FY 2012

ADDENDUM B Unaudited Financial Statements – DSCA

B-23

amounts authorized in contracts until delivery and government acceptance. Due to the 

probability the contractors will complete their efforts and deliver satisfactory products, and 

because the amount of potential future payments are estimable, the Department has 

recognized a contingent liability for estimated future payments which are conditional 

pending delivery and government acceptance.

Total Contingent Liabilities for progress payments based on cost represent the difference 

between the estimated costs incurred to date by contractors and amounts authorized to be 

paid under progress payments based on cost provisions within the FAR. Estimated 

contractor-incurred costs are calculated by dividing the cumulative unliquidated progress 

payments based on cost by the contract-authorized progress payment rate. The balance of 

unliquidated progress payments based on cost is deducted from the estimated total 

contractor-incurred costs to determine the contingency amount.

NOTE 16. COMMITMENTS AND CONTINGENCIES

Claims may be presented and/or the U.S. Government may be a party in various 

administrative proceedings or court litigations, but it is highly unlikely that any can implicate 

the FMS Trust Fund. The U.S. funds appropriated for security assistance generally are not 

legally available for paying claims.

NOTE 17. MILITARY RETIREMENT AND OTHER FEDERAL 

EMPLOYMENT BENEFITS

Military Retirement and Other Federal Employment Benefits Dollars in Thousands

2012

As of September 30

Liabilities

Assured 

Interest Rate 

(%)

(Less: Assets 

Available to 

Pay Benefits)

Unfunded 

Liabilities

Pension and Health Actuarial Benefits

FECA $ 523 0.0 $ 0 $ 523

Total Military Retirement and Other Federal 

Employment Benefits $ 523 0.0 $ 0 $ 523

Military Retirement and Other Federal Employment Benefits Dollars in Thousands

2011

As of September 30

Liabilities

Assured 

Interest Rate 

(%)

(Less: Assets 

Available to 

Pay Benefits)

Unfunded 

Liabilities

Pension and Health Actuarial Benefits

FECA $ 487 0.0 $ 0 $ 487

Total Military Retirement and Other Federal 

Employment Benefits $ 487 0.0 $ 0 $ 487
Department of Defense Agency Financial Report for FY 2012

ADDENDUM B Unaudited Financial Statements – DSCA

B-24

FEDERAL EMPLOYEES’ COMPENSATION ACT (FECA)

Actuarial Cost Method Used and Assumptions:

The DSCA FMS Trust Fund actuarial liability for workers’ compensation benefits is developed 

by the Department of Labor and provided to the FMS Trust Fund at the end of each fiscal 

year. The liability for future workers’ compensation benefits includes the expected liability 

for death, disability, medical, and miscellaneous costs for approved compensation cases, 

plus a component for incurred but not reported claims. The liability is determined using a 

method that utilizes historical benefit payment patterns related to a specific incurred period 

to predict the ultimate payments related to that period. Consistent with past practice, these 

projected annual benefit payments have been discounted to present value using the OMB’s 

economic assumptions for 10-year Treasury notes and bonds. Interest rate assumptions 

utilized for discounting were as follows:

Discount Rates

2.3% in Year 1

3.1% in Year 2 and thereafter

To provide more specifically for the effects of inflation on the liability for future workers’ 

compensation benefits, wage inflation factors (cost of living adjustments, or COLAs) and 

medical inflation factors (consumer price index medical, or CPIMs) were applied to the 

calculation of projected future benefits. The actual rates for these factors for the charge 

back year (CBY) 2012 were also used to adjust the methodology’s historical payments to 

current year constant dollars.

Federal Employees – Compensation Act (FECA)

CBY COLA CPIM

2013 2.83% 3.65%

2014 2.03% 3.66%

2015 1.93% 3.72%

2016 2.00% 3.73%

2017+ 2.03% 3.80%
Department of Defense Agency Financial Report for FY 2012

ADDENDUM B Unaudited Financial Statements – DSCA

B-25

NOTE 18. GENERAL DISCLOSURES RELATED TO THE STATEMENT

OF NET COST

Costs and Exchange Revenue Dollars in Thousands

As of September 30 2012 2011

Operations, Readiness & Support

1. Gross Cost

A. Intragovernmental Cost $ 7,596,317 $ 3,416,436

B. Non-Federal Cost $ 23,115,279 $ 21,271,005

C. Total Cost $ 30,711,596 $ 24,687,441

2. Earned Revenue

A. Intragovernmental Revenue $ (327) $ (738)

B. Non-Federal Revenue $ (24,078) $ (33,603)

C. Total Revenue $ (24,405) $ (34,341)

3. Losses/(Gains) from Actuarial Assumption Changes for Military 

Retirement Benefits $ 0 $ 0

Total Net Cost $ 30,687,191 $ 24,653,100

Costs and Exchange Revenue Dollars in Thousands

As of September 30 2012 2011

Consolidated

1. Gross Cost

A. Intragovernmental Cost $ 7,596,317 $ 3,416,436

B. Non-Federal Cost $ 23,115,279 $ 21,271,005

C. Total Cost $ 30,711,596 $ 24,687,441

2. Earned Revenue

A. Intragovernmental Revenue $ (327) $ (738)

B. Non-Federal Revenue $ (24,078) $ (33,603)

C. Total Revenue $ (24,405) $ (34,341)

3. Losses/(Gains) from Actuarial Assumption Changes for Military 

Retirement Benefits $ 0 $ 0

Total Net Cost $ 30,687,191 $ 24,653,100

Intragovernmental Costs and Revenues represent transactions made between two reporting 

entities within the Federal Government.

The Statement of Net Cost (SNC) represents the net cost of programs and organizations of 

the Federal Government that are supported by appropriations or other means. The intent of 

the SNC is to provide gross and net cost information related to the amount of output or 

outcome for a given program or organization administered by a responsible reporting entity. 

The Department’s current processes and systems do not capture and report accumulated 

costs for major programs based upon the performance measures as required by the 

Government Performance and Results Act. The Department is in the process of reviewing 

available data and developing a cost reporting methodology as required by the SFFAS No. 4, 

“Managerial Cost Accounting Concepts and Standards for the Federal Government”, as 

amended by SFFAS No. 30, “Inter-entity Cost Implementation”.

Public costs and revenues are exchange transactions made between the reporting entity and 

a non-Federal entity.
Department of Defense Agency Financial Report for FY 2012

ADDENDUM B Unaudited Financial Statements – DSCA

B-26

The systems utilized by the DSCA for the FMS Trust Fund and the accounts for funds 

appropriated for security assistance do not track intragovernmental transactions by a 

customer at the transaction level. In Quarter 3 of FY 2010, the FMS Trust Fund incorporated 

the DoD trading partner process. The FMS Trust Fund adjusted expenses by reclassifying 

amounts between Federal and non-Federal expenses and accruing additional payables and 

expenses. Intradepartment revenues and expenses are then eliminated.

Intragovernmental costs and revenue represent transactions made between two reporting 

entities within the Federal Government.

The DSCA does not meet accounting standards. Information presented is based on 

budgetary obligations, disbursements, and collection transactions, as well as nonfinancial 

feeder systems adjusted to record known accruals for major items such as payroll expenses 

and accounts payable.

NOTE 19. DISCLOSURES RELATED TO THE STATEMENT OF

CHANGES IN NET POSITION

The Appropriations Received on the Statement of Changes in Net Position does not agree 

with the Appropriations on the Statement of Budgetary Resources. The difference of 

$1.7 billion is due to the FMS Trust Fund receipts from foreign governments that liquidate 

contract authority, but are not recorded as appropriations on the Statement of Changes in 

Net Position. These receipts are transferred from the receipt account to cover disbursements 

as they occur, similar to the receipt of appropriations.

NOTE 20. DISCLOSURES RELATED TO THE STATEMENT OF

BUDGETARY RESOURCES

Disclosures Related to the Statement of Budgetary Resources Dollars in Thousands

As of September 30 2012 2011

Net Amount of Budgetary Resources Obligated for Undelivered Orders at 

the End of the Period. $ 163,493,527 $ 121,409,053

On the Statement of Budgetary Resources (SBR), obligations incurred of $74.7 billion are 

direct and exempt from apportionment.

The SBR includes intraentity transactions, because the statements presented are combined, 

not consolidated.

Borrowings from the U.S. Treasury are required to be repaid once a year at the end of the 

fiscal year. The financing sources for the repayments on borrowings are loan repayments 

from the countries or permanent indefinite appropriations through subsidy reestimates.

The portions of the FMS Trust Fund receipts collected in the current fiscal year that exceed 

current outlays are temporarily precluded from obligation by law. These receipts, however, 

are available for obligation as needed in the future.

The FCRA provides permanent indefinite appropriations to fund upward subsidy reestimates 

that fund repayments of principal and interest of U.S. Treasury borrowings with the Foreign 

Military Financing Direct Loan Program and the Military Debt Reduction Financing Account. 
Department of Defense Agency Financial Report for FY 2012

ADDENDUM B Unaudited Financial Statements – DSCA

B-27

The FCRA also provides permanent indefinite appropriations to fund loan defaults with the 

Federal Financing Bank in the Foreign Military Loan Liquidating Account.

The Appropriations on the SBR does not agree with the Appropriations Received on the 

Statement of Changes in Net Position. The difference of $1.7 billion is due to the FMS Trust 

Fund contract authority not being reported as Appropriations Received on the Statement of 

Changes in Net Position.

Legal limitations and time restriction on the use of unobligated appropriation balances are 

provided under Public Law.

The Status of Budgetary Resources Apportioned line of the Budgetary SBR includes an 

abnormal balance that is the result of a trial balance submitted from the Military service. 

United States Standard General Ledger (USSGL) 4510 has a large abnormal that is offset by 

the same amount in USSGL 4610. The Service’s system systemically make this posting to 

reverse funding to keep the trial balance and reconciliation in line.

The Fiscal Year (FY) 2011 Borrowing Authority (discretionary and mandatory) on the 

NonBudgetary SBR contains an abnormal balance due to an adjustment in Borrowing 

Authority and Undelivered Orders to Military Debt Reduction Financing Account and Foreign 

Military Financing Direct Loan Financing Account as required by the Office of Management 

and Budget.

NOTE 21. RECONCILIATION OF NET COST OF OPERATIONS TO

BUDGET

Reconciliation of Net Cost of Operations to Budget Dollars in Thousands

As of September 30 2012 2011

Resources Used to Finance Activities:

Budgetary Resources Obligated:

Obligations incurred $ 74,721,927 $ 33,771,432

Less: Spending authority from offsetting collections and recoveries (-) (2,127,443) (180,802)

Obligations net of offsetting collections and recoveries $ 72,594,484 $ 33,590,630

Less: Offsetting receipts (-) (26,310,214) (23,946,831)

Net Budgetary Resources Obligated $ 46,284,270 $ 9,643,799

Total resources used to finance activities $ 46,284,270 $ 9,643,799

Resources Used to Finance Items not Part of the Net Cost of Operations

Change in budgetary resources obligated for goods, services and 

benefits ordered but not yet provided:

Undelivered Orders (-) $ (42,084,474) $ (9,093,975)

Resources that fund expenses recognized in prior Periods 0 (8)

Budgetary offsetting collections and receipts that do not affect Net Cost 

of Operations 26,489,306 24,105,570

Resources that finance the acquisition of assets (-) (1,953) (2,287)

Total resources used to finance items not part of the Net Cost of 

Operations $ (15,597,121) $ 15,009,300

Total resources used to finance the Net Cost of Operations $ 30,687,149 $ 24,653,099

Components of the Net Cost of Operations that will not Require or Generate Resources in the Current 

Period

Components Requiring or Generating Resources in Future Period:

Other (+/-) $ 42 $ 1
Department of Defense Agency Financial Report for FY 2012

ADDENDUM B Unaudited Financial Statements – DSCA

B-28

Reconciliation of Net Cost of Operations to Budget Dollars in Thousands

As of September 30 2012 2011

Total components of Net Cost of Operations that will Require or 

Generate Resources in future periods $ 42 $ 1

Components not Requiring or Generating Resources:

Revaluation of assets or liabilities $ 0 $ 0

Total components of Net Cost of Operations that 

will not Require or Generate Resources in the current period $ 42 $ 1

Net Cost of Operations $ 30,687,191 $ 24,653,100

The following Reconciliation of Net Cost of Operations to Budget lines are presented as 

combined instead of consolidated due to intraagency budgetary transactions not being 

eliminated:

Obligations Incurred

Less: Spending Authority from Offsetting Collections and Recoveries

Obligations Net of Offsetting Collections and Recoveries

Less: Offsetting Receipts

Net Obligations

Undelivered Orders

Unfilled Customer Orders

Due to the FMS Trust Fund system limitations, budgetary data is not in agreement with 

proprietary expenses and assets capitalized. The difference between budgetary and 

proprietary data is a previously identified deficiency.

Components Requiring or Generating Resources in Future Period. Other, is attributable to 

FECA actuarial expense.
Contributors to the Agency Financial Report

This Agency Financial Report is the reflection of devoted and hard-working people across the 

Office of the Secretary of Defense and the Department. They include uniformed Service 

Members, civilian personnel, and contractors, among them men and women from all walks 

of life who deploy and carry out their missions in harm's way. We owe all of them our 

gratitude. In particular, we want to thank the following individuals for their special 

contributions to this report.

Crystal D. Allen Greg Galusha Joseph O. Quinn

Stan Azebu Linda J. Gileau Lila Rayle

Captain Ronalee Balog Sam Graham Paula J. Rebar

Lyndi Balven David R. Gross Sandra V. Richardson

Scarlett Barkelew Robert F. Hale Elizabeth Ridge

Brent Barrow Galen M. Heflin Pattie Rodgers

Sally C. Beecroft Scott Henderson Angela M. Rogers

Jason Boykin Beth Hetman John P. Roth

Aaron Bobinsky Carl Inman Gary Sanders

Edward Bright Patty Issler Glenda Scheiner

Marcia Case Debra S. Jackson Greg Schmalfeldt

Art Carabollo Aaron Kim Kathy Sherrill

Sharon Cave Emily Kassenbrock Thomas C. Smith

Nina Chun Tu Kim Robert Francis Smith

Lachlan M. Colquhoun Bryan Kitchens Alecia Solomon

Timothy H. Courington Wanda Kucinich Gloria Steremberg

Donna Cox Kevin Lannon Justin Sweetman

Nick Crabtree Joseph Leonard Stephen Tabone

Gerald Davenport Matthew A. Lytwyn Sylvia Taylor-Porter

Diana Davis David Martin Bob Thompson

Thomas P. Dee Lisa Matusky Kevin Urban

Monique Dilworth Michael J. Metzger Rick Welcher

Marc DiPaolo Drew Morgan Keith Welk

Joseph Doyle Anthony Nicoletos Brent White

Jeffrey Eanes Sharron Norris Anthony A. Wisdom

Mark E. Easton Bette Otts Kristin E. Wulff

Daniel Folliard Barry Parel Dwight Young

Virginia Fortune Carol S. Phillips Gunther Zimmerman
KNOW YOUR BUSINESS

CONTROL YOUR FUTURE

WELCOME TO THE 

DEPARTMENT OF DEFENSE

We are interested in your feedback 

regarding the content of this report.

Please feel free to send your comments 

or requests for copies of this report to

DoDAFR@osd.mil 

or

United States Department of Defense

Office of the Under Secretary of Defense (Comptroller)

1100 Defense Pentagon

Washington, DC 20301‐1100

You may also view this document at:

http://comptroller.defense.gov/afr/fy2012.html