U.S. Government 

Receivables and Debt Collection 

Activities of Federal Agencies 

Department of the Treasury 

June 2017

FISCAL YEAR 2016

REPORT TO THE CONGRESS
a message from the fiscal assistant secretary

department of the treasury

washington, dc

office of the fiscal assistant secretary

I am pleased to present the Fiscal Year 2016 Report to the Congress on United States Government Receivables and 

Debt Collection Activities of Federal Agencies. This annual report provides important information to the American 

public on the status and collection of the Federal government’s non-tax receivables (current and delinquent). This 

year’s report now includes information regarding agency compliance with timely reporting debts for purposes of 

administrative offset.

At the end of Fiscal Year (FY) 2016, outstanding non-tax receivables owed to the United States was $1.4 trillion.1

 

These receivables included loans to students, small business owners, homeowners, farmers, and veterans. They also 

included administrative non-tax receivables, including fines and penalties, overpayments, and fees. 

Most citizens pay their debts on time. However, at the end of FY 2016, delinquent non-tax debts owed to the 

Federal government totaled $180.7 billion. The timely and efficient collection of delinquent debts helps fund 

government operations, maintain key programs, and reduce the Federal deficit. Thus, it is very important to 

continue to find ways to cost-effectively collect the delinquent debts owed to the government while, at the same 

time, providing debtors with due process and the opportunity to repay debts in accordance with their financial 

ability to pay. 

Federal agencies face many challenges collecting and resolving delinquent debts. Despite these challenges, in 

FY 2016 the Department of the Treasury, Bureau of the Fiscal Service (Fiscal Service), collected $7.4 billion owed 

to Federal and State agencies. Fiscal Service continues to collaborate with Federal and State agencies to maximize 

collections and resolve those debts for which collection is not possible because of a debtor’s circumstances.

Information about the Federal government’s management of receivables and is available at www.Transparency.

Treasury.gov. This website provides the public with easy-to-understand data about the Federal government’s 

finances.

David A. Lebryk
CONTENTS

A Message from the Fiscal Assistant Secretary

I. INTRODUCTION..........................................................................................................................................1

 

II. FEDERAL NON-TAX RECEIVABLES OWED TO THE UNITED STATES ...........................................2

A. Total Federal Non-Tax Receivables ..............................................................................................................2

B. By Creditor Agency .....................................................................................................................................4

C. By Receivable Type ......................................................................................................................................5

D. Interest, Penalties, and Administrative Costs ...............................................................................................5

III. DELINQUENT FEDERAL NON-TAX DEBT OWED TO THE UNITED STATES ..............................6

A. Total Delinquent Federal Non-Tax Debt ......................................................................................................6

B. By Age ........................................................................................................................................................7

C. By Creditor Agency .....................................................................................................................................8

D. By Debt Type ..............................................................................................................................................9

IV. DELINQUENT FEDERAL NON-TAX DEBT COLLECTION ACTIVITIES ....................................... 10

A. Total Delinquent Federal Non-Tax Debt Collection.................................................................................... 10

B. By Creditor Agency ................................................................................................................................... 10

 1. Administrative Wage Garnishment ........................................................................................................ 11

 2. Private Collection Agencies ................................................................................................................... 11

C. Centralized Government-Wide Debt Collection Programs ........................................................................12

 1. Treasury’s Cross-Servicing Program Collections ....................................................................................12

 2. Treasury Offset Program Collections .....................................................................................................12

 3. Enforced Collection by the Department of Justice ...................................................................................13

 4. Department of Health and Human Services Program Support Center ..................................................... 14

V. WRITE-OFFS OF DELINQUENT FEDERAL NON-TAX DEBT ............................................................15

 

APPENDICES .................................................................................................................................................. 16

Appendix I: Total Federal Non-Tax Receivables by Creditor Agency ................................................................ 16

Appendix II: Total FY 2016 Collection of Delinquent Federal Non-Tax Debt by Creditor Agency ................... 17

Appendix III: Total FY 2016 Write-Offs by Creditor Agency .......................................................................... 18

Appendix IV: TOP Collections Including Debts Owed to the Internal Revenue Service and State Agencies ..... 19

Appendix V: Compliance with 120-Day Delinquent Debt Referral Requirement ............................................. 21

Appendix VI: Payments Exempted from Centralized Administrative Offset by the Secretary of the Treasury ...25

Appendix VII: Sources of Data .......................................................................................................................26

ENDNOTES ....................................................................................................................................................27

FISCAL YEAR 2016 REPORT TO THE CONGRESS:

U.S. GOVERNMENT RECEIVABLES AND 

DEBT COLLECTION ACTIVITIES OF FEDERAL AGENCIES
1 FY 2016 REPORT TO THE CONGRESS: U.S. GOVERNMENT RECEIVABLES 

AND DEBT COLLECTION ACTIVITIES OF FEDERAL AGENCIES

I. Introduction

The Secretary of the Treasury (Secretary) reports to Congress annually on the Federal government’s non-tax receivables 

and debt collection activities. As required by Federal law, this report includes information that Federal creditor agencies 

provide to the Secretary, as reported in the Treasury Report on Receivables and Debt Collection Activities (TROR).

2

 

Based on policies from Congress and the President, Federal creditor agencies make loans to borrowers, guarantee loans 

made by private lending institutions, and impose fines and penalties. These activities result in the creation of accounts 

receivable as assets of the government. In addition, Federal creditor agencies award grants, make payments, and provide 

other services, which, in certain circumstances, can also result in the creation of accounts receivable.

At the end of FY 2016, the government’s outstanding non-tax receivables totaled $1.4 trillion, an increase of 

$119.3 billion (9 percent) from FY 2015. A receivable is current when it is not yet due or is being repaid as agreed. 

When the government’s receivables are not paid by the due date they generally become delinquent debt. At the end 

of FY 2016, delinquent non-tax debt owed to the United States totaled $180.7 billion, an increase of 

$18.6 billion (11 percent) from FY 2015. 

Each Federal creditor agency is required to make every reasonable effort to collect its receivables. At the end of 

FY 2016, collections on Federal non-tax receivables totaled $310.4 billion, an increase of $10.3 billion (3 percent). The 

Fiscal Service and the Department of Justice (DOJ) share the responsibility for setting government-wide policy on 

delinquent non-tax debt collection, and each plays a major role in the centralized collection of delinquent non-tax debt. 

In FY 2016, Federal creditor agencies collected $32.8 billion of delinquent non-tax debt, a decrease of $3.9 billion (11 

percent) from FY 2015. 

This report provides summary data on the value of receivables owed to the Federal government, the portion of those 

receivables that are delinquent, and efforts to collect or write-off delinquent debt. The report provides comparative 

information from previous fiscal years to FY 2016, and information on specific aspects of government-wide non-tax 

receivables and debt collection activities.

Note: Delinquencies and collections result from various events and conditions that can occur over multiple reporting 

periods. Depending on the structure of repayment terms, for example, the date that a receivable is due may be in the 

same fiscal year that it is recorded or it may be in a future fiscal year. Similarly, collections during FY 2016 may be 

associated with non-tax debt that became delinquent either in FY 2016 or in a prior year, and are most often associated 

with receivables that were recorded in a prior fiscal year. Therefore, use caution when comparing annual totals and 

year-over-year changes of receivables, delinquencies, and collections.
2 FY 2016 REPORT TO THE CONGRESS: U.S. GOVERNMENT RECEIVABLES 

AND DEBT COLLECTION ACTIVITIES OF FEDERAL AGENCIES

II. Federal Non-Tax Receivables Owed to the United States 

A. Total Federal Non-Tax Receivables

Federal non-tax receivables are amounts owed to the Federal government by a person (including individuals, 

organizations, and other entities). Receivables are categorized as being either current or delinquent. Delinquent 

receivables are also referred to as delinquent debt.

At the end of FY 2016, total Federal non-tax receivables owed to the United States totaled $1.4 trillion, an increase of 

$119.3 billion (9 percent) from FY 2015. The total outstanding receivable balance at the end of a fiscal year is the net 

of receivables that remained unpaid from prior fiscal years, and new receivables recorded during that fiscal year, less 

collections, adjustments, and amounts written off.

New Federal non-tax receivables recorded as of the end of FY 2016 totaled $531.9 billion, an increase of 

$140.1 billion (36 percent)3

 from FY 2015. Collection of Federal non-tax receivables in FY 2016 was $310.4 billion, 

an increase of $10.3 billion (3 percent) from FY 2015. 

source: treasury report on receivables and debt collection activities — fourth quarter fy 2012 - 2016

2012 2013 2014 2015 2016

$ 700

$ 800

$ 900

$ 1,000

$ 1,100

$ 1,200

$ 1,300

$ 1,400

$ 1,500

$1,600

$1,412.2

$931.1

$1,049.3

$1,170.1

$1,292.9

Outstanding Federal Non-Tax Receivables: FY 2012-2016

(Dollars in Billions)

Fiscal Year

Dollars in Billions

figure 1
3 FY 2016 REPORT TO THE CONGRESS: U.S. GOVERNMENT RECEIVABLES 

AND DEBT COLLECTION ACTIVITIES OF FEDERAL AGENCIES

source: treasury report on receivables and debt collection activities — fourth quarter fy 2012 - 2016

source: treasury report on receivables and debt collection activities — fourth quarter fy 2012 - 2016 

2012 2013 2014 2015 2016

$ 150

$ 200

$ 250

$ 300

$ 350

$ 400

$ 450

$ 500

$ 550

$ 600

$531.9

$369.4

$391.0 $391.8

$371.3

New Federal Non-Tax Receivables: FY 2012-2016

(Dollars in Billions)

Fiscal Year

Dollars in Billions

2012 2013 2014 2015 2016

$ 0

$ 50

$ 100

$ 150

$ 200

$ 250

$ 300

$ 350

$ 400

$ 450

$310.4

$239.9

$273.4 $279.1 $300.1

Total Collection On Federal Non-Tax Receivables: FY 2012-2016

(Dollars in Billions)

Fiscal Year

Dollars in Billions

figure 3

figure 2
4 FY 2016 REPORT TO THE CONGRESS: U.S. GOVERNMENT RECEIVABLES 

AND DEBT COLLECTION ACTIVITIES OF FEDERAL AGENCIES

B. By Creditor Agency

Receivables owed to the Department of Education (Education)4 and the Department of Agriculture (USDA) at the end 

of FY 2016 accounted for $1.2 trillion (85 percent) of the government’s total outstanding Federal non-tax receivables.

In FY 2016, Education, the Department of Health and Human Services (HHS), USDA, the Department of Defense 

(DoD), and the Department of Housing and Urban Development (HUD), collected a combined 

$217.9 billion (70 percent) in Federal non-tax receivables.

source: treasury report on receivables and debt collection activities — fourth quarter fy 2015 - 2016

source: treasury report on receivables and debt collection activities — fourth quarter fy 2015 - 2016

figure 4

figure 5

Agency FY 2016

Department of Education

Department of Agriculture

Department Housing and 

Urban Development

Export-Import Bank

FY 2015 to FY 2016 Percentage Change in Outstanding Federal 

Non-Tax Receivables: 5

 FY 2016 Top Five Federal Creditor Agencies 

(Dollars in Billions)

% Change from 

FY 2015 to FY 2016

$1,085.4 10.7%

$108.7 - 2.6%

$32.9 16.7%

$31.0 11.1%

$25.3 5.0%

All Others

Total Government

$128.9 7.2%

$1,412.2

FY 2015

$980.9

$111.6

$28.2

$27.9

$24.1

$120.2

$1,292.9 9.2%

Department of Health and 

Human Services

Agency FY 2016

Department of Education

Department of Health and 

Human Services

Department of Housing and 

Urban Development

Department of Agriculture

Department of Defense

FY 2015 to FY 2016 Percentage Change in Collection of Federal Non-Tax 

Receivables: FY 2016 Top Five Federal Creditor Agencies

(Dollars in Billions)

% Change from 

FY 2015 to FY 2016

$95.0 6.4%

$61.6 26.2%

$25.3 - 10.0%

$19.7 41.7%

$16.3 - 12.4%

All Others

Total Government

$92.5 - 8.8%

$310.4

FY 2015

$89.3

$48.8

$28.1

$13.9

$18.6

$101.4

$300.1 3.4%

6
5 FY 2016 REPORT TO THE CONGRESS: U.S. GOVERNMENT RECEIVABLES 

AND DEBT COLLECTION ACTIVITIES OF FEDERAL AGENCIES

C. By Receivable Type

Of the $1.4 trillion in Federal non-tax receivables outstanding (both current and delinquent) in FY 2016, Federal 

loan receivables (direct loans and defaulted guaranteed loans) represented $1.3 trillion (93 percent) of total 

outstanding receivables. Receivables attributable to direct loans and defaulted guaranteed loans increased by 

$107.4 billion (9 percent) from FY 2015 to FY 2016. Administrative receivables (all non-loan receivables7

) 

represented $105.1 billion of the total outstanding receivables at the end of FY 2016, an increase of 

$11.8 billion (13 percent) from FY 2015.

D. Interest, Penalties, and Administrative Costs

Generally, Federal creditor agencies assess interest on outstanding loan receivables. Federal creditor agencies are also 

generally required to assess interest, penalties, and administrative costs when receivables become delinquent. The rate 

of interest is governed by 31 U.S.C. § 3717 and published by the Department of the Treasury. Of the $1.4 trillion in 

outstanding current and delinquent receivables at the end of FY 2016, $79.1 billion (6 percent) represented unpaid 

interest, penalties, and administrative costs. 

2012 2013 2014 2015 2016 $ 0

$ 100

$ 200

$ 300

$ 400

$ 500

$ 600

$ 700

$ 800

$ 900

$ 1,000

$ 1,100

$ 1,300

$ 1,400

$ 1,200

Outstanding Federal Non-Tax Receivables, By Type: FY 2012 - 2016

(Dollars in Billions)

Fiscal Year

Dollars in Billions

Loans (Direct and Guaranteed) Administrative (Non-Loan)

$844.5

$86.6 $76.8

$1,093.3

$93.2

$1,199.7

$105.1

$1,307.1

$80.0

$969.3

source: treasury report on receivables and debt collection activities — fourth quarter fy 2012-2016

figure 6
6 FY 2016 REPORT TO THE CONGRESS: U.S. GOVERNMENT RECEIVABLES 

AND DEBT COLLECTION ACTIVITIES OF FEDERAL AGENCIES

A. Total Delinquent Federal Non-Tax Debt

A non-tax debt is considered delinquent if it has not been paid by the date specified in an agency’s initial written 

demand for payment or applicable agreement. A non-tax debt may become delinquent during the same fiscal year that it 

was recorded as a receivable or during a subsequent fiscal year. 

At the end of FY 2016, outstanding delinquent non-tax debt owed to the United States totaled $180.7 billion, an 

increase of $18.6 billion (11 percent) from FY 2015.8

 The total outstanding delinquent debt balance at the end of a fiscal 

year is the net of debt that remained delinquent from previous fiscal years and debt that became delinquent during that 

fiscal year less collections, adjustments, and amounts written off.

III. Delinquent Federal Non-Tax Debt Owed to the United States

2012 2013 2014 2015 2016 $ 0

$ 25

$ 50

$ 75

$ 100

$ 125

$ 150

$ 175

$ 200

$ 225

$ 250

Delinquent Federal Non-Tax Debt: 9 FY 2012-2016

(Dollars in Billions)

Fiscal Year

Dollars in Billions

Outstanding Debt < 365 Days Delinquent Outstanding Debt ≥ 365 Days Delinquent

$96.7

$109.3

$212.5

$66.0

$162.7

$33.3

$128.8

$162.1

$32.8

$147.9

$180.7

$103.2

$115.8

$139.3

$23.5

source: treasury report on receivables and debt collection activities — fourth quarter fy 2012-2016

figure 7
7 FY 2016 REPORT TO THE CONGRESS: U.S. GOVERNMENT RECEIVABLES 

AND DEBT COLLECTION ACTIVITIES OF FEDERAL AGENCIES

Of the total $180.7 billion of outstanding delinquent debt at the end of FY 2016, $109.8 billion (61 percent) of 

outstanding delinquent Federal non-tax debt was more than two years delinquent and $70.9 (39 percent) billion was less 

than two years delinquent.

B. By Age

0% 10% 20% 30% 40% 50% 60% 70% 80% 90%

1-180 

Days

181 Days - 

2 Years

2-6 Years

6-10 Years

> 10 Years

Percentages of Federal Non-Tax Delinquencies, By Age: FY 2016

(Percentage of Total Delinquent Debt)

Percent

Age

15%

34%

31%

8%

12%

Delinquency Age FY 2012

1-180 Days

181 Days - 2 Years

2-6 Years

6-10 Years

> 10 Years

Total Federal Non-Tax Delinquencies, By Age: FY 2012 - 2016

(Dollars in Billions)

$72.2

$44.0

$26.4

$8.2

$11.9

Total $162.7

FY 2013

$81.1

$54.9

$51.0

$11.3

$14.2

$212.5

FY 2014

$15.4

$47.6

$51.3

$12.6

$12.4

$139.3

FY 2015

$16.2

$51.3

$52.5

$17.4

$24.7

$162.1

FY 2016

$15.2

$55.7

$61.4

$21.0

$27.4

$180.7

source: treasury report on receivables and debt collection activities — fourth quarter fy 2016

source: treasury report on receivables and debt collection activities — fourth quarter fy 2012 - 2016

figure 8

figure 9
8 FY 2016 REPORT TO THE CONGRESS: U.S. GOVERNMENT RECEIVABLES 

AND DEBT COLLECTION ACTIVITIES OF FEDERAL AGENCIES

C. By Creditor Agency

At the end of FY 2016, more than $162.0 billion (89 percent) in delinquent debt was owed to five Federal creditor 

agencies: Education, Social Security Administration (SSA), Securities and Exchange Commission (SEC), USDA, 

and Small Business Administration (SBA).

0% 10% 20% 30% 40% 50% 60% 70% 80% 90%

USDA

SBA

All Others

SEC

SSA

Federal Non-Tax Delinquencies: Top Five Federal Creditor Agencies

(Percentage of Total)

Percent

Agency

4%

2%

2%

Education 80%

10%

2%

source: treasury report on receivables and debt collection activities — fourth quarter fy 2016

source: treasury report on receivables and debt collection activities — fourth quarter fy 2015 - 2016

figure 10

figure 11

Agency FY 2016

Department of Education

Social Security Administration

Securities and Exchange Commission

Department of Agriculture

Small Business Administration

FY 2015 to FY 2016 Percentage Change in Federal 

Non-Tax Delinquencies: FY 2016 Top Five Federal Creditor Agencies 

(Dollars in Billions)

% Change from 

FY 2015 to FY 2016

$144.7 17.1%

$8.0 11.1%

$3.6 0.0%

$3.4 - 32.0%

$2.8 - 28.2%

All Others

Total Government

$18.2 - 3.2%

$180.7

FY 2015

$123.6

$7.2

$3.6

$5.0

$3.9

$18.8

$162.1 11.5%
9 FY 2016 REPORT TO THE CONGRESS: U.S. GOVERNMENT RECEIVABLES 

AND DEBT COLLECTION ACTIVITIES OF FEDERAL AGENCIES

D. By Debt Type

Federal loan program delinquencies (direct and guaranteed) totaled $155.2 billion (86 percent) of total delinquencies at 

the end of FY 2016, an increase of $20.0 billion (15 percent) from FY 2015. Administrative delinquencies totaled 

$25.5 billion at the end of FY 2016, a decrease of $1.4 billion (5 percent) from FY 2015.

2012 2013 2014 2015 2016 $ 0

$ 25

$ 50

$ 75

$ 100

$ 125

$ 150

$ 175

$ 200

$ 225

$ 250

Delinquent Federal Non-Tax Debt, By Type: FY 2012 - 2016

(Dollars in Billions)

Fiscal Year

Dollars in Billions

Loans (Direct and Guaranteed) Administrative (Non-Loan)

$23.4

$134.5

$28.2

$135.2

$26.9

$155.2

$25.5

$115.9

$27.1

$185.4

source: treasury report on receivables and debt collection activities — fourth quarter fy 2012-2016

figure 12
10 FY 2016 REPORT TO THE CONGRESS: U.S. GOVERNMENT RECEIVABLES 

AND DEBT COLLECTION ACTIVITIES OF FEDERAL AGENCIES

IV. Delinquent Federal Non-Tax Debt Collection Activities

A. Total Delinquent Federal Non-Tax Debt Collection

In FY 2016, Federal creditor agencies collected $32.8 billion in delinquent non-tax debt, a decrease of 

$3.9 billion (11 percent) from FY 2015.

B. By Creditor Agency

More than $25.0 billion (78 percent) of the delinquent non-tax debt collected in FY 2016 was owed to five Federal 

creditor agencies: Education (47 percent), HUD (13 percent), SEC (10 percent), HHS (5 percent), and General Services 

Administration (4 percent).

source: treasury report on receivables and debt collection activities — fourth quarter fy 2012-2016

source: treasury report on receivables and debt collection activities — fourth quarter fy 2015-2016

2012 2013 2014 2015 2016

$ 0

$ 5

$ 10

$ 15

$ 20

$ 25

$ 30

$ 35

$ 40

$ 45

$26.7

$31.2 $32.8

$36.7

$29.9

Collection of Delinquent Federal Non-Tax Debt: FY 2012 - 2016

(Dollars in Billions)

Fiscal Year

Dollars in Billions

Agency FY 2016

Department of Education

Department of Housing and 

Urban Development

Securities and 

Exchange Commission

FY 2015 to FY 2016 Percentage Change in Collection of Federal 

Non-Tax Delinquencies: FY 2016 Top Five Federal Creditor Agencies 

(Dollars in Billions)

% Change from 

FY 2015 to FY 2016

$15.4 2.7%

$4.4 - 20.0%

$3.2 146.2% 10

$1.5 15.4%

$1.3 18.2%

All Others

Total Government

$7.0 - 44.0%

$32.8

FY 2015

$15.0

$5.5

$1.3

$1.3

$1.1

$12.5

$36.7 - 10.6%

Department of Health

and Human Services

General Services

Administration

figure 13

figure 14
11 FY 2016 REPORT TO THE CONGRESS: U.S. GOVERNMENT RECEIVABLES 

AND DEBT COLLECTION ACTIVITIES OF FEDERAL AGENCIES

Federal creditor agencies utilize a combination of debt collection tools. Among these collection tools are administrative 

wage garnishment (AWG), use of private collection agencies (PCAs), offset of Federal and State11 payments through 

the Treasury Offset Program (TOP), use of Fiscal Service’s Cross-Servicing Program, and litigation. Before using most 

collection tools, Federal creditor agencies must first provide debtors with due process. This includes providing notice and 

an opportunity to enter into a repayment agreement based on the debtor’s financial circumstances, dispute the debt, or 

object to the intended collection action.

1. Administrative Wage Garnishment

Federal law authorizes Federal creditor agencies to garnish a delinquent debtor’s wages without obtaining a court 

order by ordering a non-Federal employer to withhold up to 15 percent of an employee’s disposable income to collect a 

delinquent Federal non-tax debt owed to the agency. AWG serves as an effective tool in collecting delinquent non-tax 

debt from those debtors who are able but unwilling to voluntarily pay their obligations. In FY 2016, Federal creditor 

agencies collected $1.1 billion through the use of AWG, an increase of $464.6 million (68 percent)12 from FY 2015.13 

2. Private Collection Agencies

PCAs assist Federal creditor agencies in many ways, including locating debtors, establishing repayment agreements, 

and resolving debt administratively when a debtor is deceased, unable to pay, bankrupt, or out of business. In FY 2016, 

PCAs assisted Federal creditor agencies by collecting $1.5 billion, an increase of approximately 

$1.0 billion (224 percent) from FY 2015 to FY 2016.14 

figure 15

figure 16

FY 2012

AWG

AWG Collections: FY 2012-2016 

(Dollars in Millions)

$796.5

FY 2013

$254.1

FY 2014

$472.0

FY 2015

$685.3

FY 2016

$1,149.9 12

FY 2012

PCAs

PCA Collections: FY 2012-2016 

(Dollars in Millions)

$6,093.7

FY 2013

$387.5

FY 2014

$157.6

FY 2015

$465.2

FY 2016

$1,508.2 12

source: treasury report on receivables and debt collection activities — fourth quarter fy 2012-2016

source: treasury report on receivables and debt collection activities — fourth quarter fy 2012-2016
12 FY 2016 REPORT TO THE CONGRESS: U.S. GOVERNMENT RECEIVABLES 

AND DEBT COLLECTION ACTIVITIES OF FEDERAL AGENCIES

C. Centralized Government-Wide Debt Collection Programs

Generally, Federal creditor agencies are required to refer delinquent Federal non-tax debt to Fiscal Service for collection 

through its delinquent debt collection programs, known as the Cross-Servicing Program and TOP. Federal creditor 

agencies generally are required to refer debts at no later than 120 days delinquent to the Cross-Servicing Program 

and TOP. Before referring a debt to Fiscal Service for collection, Federal creditor agencies must provide debtors with 

notice and an opportunity to enter into a repayment agreement based on the debtor’s financial circumstances, dispute 

the debt, or object to the intended collection action. While Federal creditor agencies are responsible for providing this 

required due process, Fiscal Service also provides debtors with additional opportunities to resolve their debts prior to the 

initiation of adverse collection action. For example, prior to initiating a collection action, the Cross-Servicing Program 

sends a demand letter to each debtor, and TOP sends a warning letter to payees before offsetting recurring payments.

1. Treasury’s Cross-Servicing Program Collections

In FY 2016, Fiscal Service collected $411.5 million of delinquent Federal non-tax debt through its Cross-Servicing 

Program, which includes debt collected through TOP, an increase of $23.7 million (6 percent) from FY 2015. For 

non-tax debt submitted to the Cross-Servicing Program, Fiscal Service services the delinquent non-tax debts on behalf 

of Federal creditor agencies by contacting debtors through demand letters and telephone calls, negotiating payment 

agreements, submitting delinquent debt to TOP, referring delinquent debt to PCAs, referring delinquent debt to DOJ 

for litigation, reporting debt to credit bureaus, and initiating AWG.

2. Treasury Offset Program Collections

For non-tax debt submitted to TOP, Fiscal Service intercepts eligible Federal and State payments and applies them to a 

payee’s delinquent non-tax debt. Eligible payments include Federal tax refunds; Federal non-tax payments (e.g., Social 

Security benefits, civil service and military retirement, salary, vendor); State tax refunds; and other payments made by 

the States participating in TOP’s State Reciprocal Program.15 For more information about collections through TOP, see 

Appendix IV. For more information about the types of payments for which exemptions from centralized administrative 

offset have been approved, see Appendix VI.
13 FY 2016 REPORT TO THE CONGRESS: U.S. GOVERNMENT RECEIVABLES 

AND DEBT COLLECTION ACTIVITIES OF FEDERAL AGENCIES

3. Enforced Collection by the Department of Justice

In FY 2016, DOJ collected a total of $12.1 billion on behalf of Federal creditor agencies, a decrease of 

$4.1 billion (25 percent) from FY 2015. When a Federal creditor agency cannot collect a non-tax debt administratively, 

or believes that enforced collection action is otherwise more appropriate, the agency may refer the debt to DOJ to pursue 

enforced collection17 through the judicial process.

In FY 2016, Fiscal Service collected $7.1 billion through TOP for Federal and State agencies. Of the $7.1 billion 

collected, $3.5 billion was from debtors who owed delinquent Federal non-tax debt, $692.4 million was from debtors 

who owed delinquent Federal tax debt, and $2.9 billion was from debtors who owed State debts, including delinquent 

child support obligations. Figure 17 shows a breakdown of TOP offsets by payment type for the collection of Federal 

non-tax debt. 

source: department of justice, office of debt collection management

2012 2013 2014 2015 2016

$ 0

$ 2

$ 4

$ 6

$ 8

$ 10

$ 12

$ 14

$ 16

$ 18

$6.5

$13.7

$12.1

$16.2

$5.5

Civil Litigation Cash Collection: FY 2012-2016

(Dollars in Billions)

Fiscal Year

Dollars in Billions

figure 18

figure 17

Payment Type FY 2012

Federal Tax 

Refund Payments

Total

TOP Collection of Federal Non-Tax Debt by Payment Type: 16 FY 2012-2016

(Dollars in Millions)

$2,019.0

$2,418.1

FY 2013

$2,702.9

$3,330.2

FY 2014

$2,670.0

$3,215.0

FY 2015

$2,708.6

$3,251.9

FY 2016

$2,994.1

State Payments $18.8 $30.8 $36.6 $35.3 $46.8

Federal Non-Tax 

Payments $380.3 $596.5 $508.4 $508.0 $483.8

$3,524.7

source: department of the treasury, bureau of the fiscal service
14 FY 2016 REPORT TO THE CONGRESS: U.S. GOVERNMENT RECEIVABLES 

AND DEBT COLLECTION ACTIVITIES OF FEDERAL AGENCIES

4. Department of Health and Human Services Program Support Center

HHS’s Program Support Center (PSC) is a Treasury-designated debt collection center that collects non-tax debt for 

Federal creditor bureaus within HHS and several Federal creditor agencies outside of HHS. In addition, the PSC serves 

as the HHS conduit for referrals to Fiscal Service for both TOP and the Cross-Servicing Program. In FY 2016, the 

PSC collected $435.0 million, an increase of $43.3 million (11 percent) from FY 2015.

source: department of health and human services, program support center

2012 2013 2014 2015 2016

$ 0

$ 100

$ 200

$ 300

$ 400

$ 500

$ 600

$ 700

$ 800

$ 900

$351.0 $391.7

$427.0 $435.0 $482.0

PSC Collection: FY 2012-2016

(Dollars in Millions)

Fiscal Year

Dollars in Millions

figure 19
15 FY 2016 REPORT TO THE CONGRESS: U.S. GOVERNMENT RECEIVABLES 

AND DEBT COLLECTION ACTIVITIES OF FEDERAL AGENCIES

V. Write-Offs of Delinquent Federal Non-Tax Debt

Federal creditor agencies are generally required to write off non-tax debt that is two years delinquent (see Office of 

Management and Budget Circular A-129).18 By writing off delinquent Federal non-tax debt as uncollectible, Federal 

creditor agencies more accurately reflect the value of their receivables on the books of the United States. Certain 

write-offs are categorized as “currently not collectible” (CNC), which means that collection efforts continue until the 

agency determines it should terminate those efforts. 

Other write-offs are categorized as “closed out,” which means that a Federal creditor agency has terminated all debt 

collection action. Consequently, a Federal creditor agency may be required to report such write-offs to the Internal 

Revenue Service (IRS) as potential income to the debtor.

In FY 2016, Federal non-tax debt that was written off and categorized as “closed out” totaled $8.3 billion, an increase 

of $0.7 billion (9 percent) from FY 2015. The Federal creditor agencies with the largest write-off amounts in FY 2016 

include Education ($4.9 billion), USDA ($1.4 billion), and HUD ($360.1 million).

source: treasury report on receivables and debt collection activities — fourth quarter fy 2012-2016

2012 2013 2014 2015 2016

$ 0

$ 1

$ 2

$ 3

$ 4

$ 5

$ 6

$ 7

$ 8

$ 9

$7.8

$8.3

$7.6

$5.6

$6.1

Annual Write-Os: FY 2012-2016

(Dollars in Billions)

Fiscal Year

Dollars in Billions

figure 20
16 FY 2016 REPORT TO THE CONGRESS: U.S. GOVERNMENT RECEIVABLES 

AND DEBT COLLECTION ACTIVITIES OF FEDERAL AGENCIES

Appendix I: Total Federal Non-Tax Receivables by Creditor Agency

At the end of FY 2016, 96 percent of Federal receivables were from programs administered by the ten Federal creditor 

agencies listed below. 

figure 21

source: treasury report on receivables and debt collection activities — fourth quarter fy 2016

Agency Receivables Balance 

(FY 2016)

Delinquent Debt Balance

(FY 2016)

Department of Education $1,085,366.1 $144,738.7

Department of Agriculture $108,660.8 $3,355.7

$32,901.3 $1,156.9

$30,996.9

Social Security Administration $21,013.4

$1,702.8

$8,030.1

Export-Import Bank $25,313.3 $1,186.8

Department of Energy $20,115.4 $557.7

Department of Transportation $11,838.1 $97.6

Small Business Administration $10,613.2 $2,760.0

Department of the Treasury $10,398.4 $67.1

Top 10 Total $1,357,216.9 $163,653.4

All Others $54,945.0 $17,036.7

Government Total $1,412,161.9 $180,690.1

Total Federal Non-Tax Receivables and Delinquent 

Federal Non-Tax Debt: Top Ten Creditor Agencies

(Dollars in Millions)

Department of Housing

and Urban Development

Department of Health

and Human Services
17 FY 2016 REPORT TO THE CONGRESS: U.S. GOVERNMENT RECEIVABLES 

AND DEBT COLLECTION ACTIVITIES OF FEDERAL AGENCIES

Appendix II: Total FY 2016 Collection of Delinquent Federal Non-Tax Debt by Creditor Agency

In FY 2016, 91 percent of collection of delinquent Federal non-tax debt was associated with debt administered by the ten 

Federal creditor agencies listed below. 

Agency FY 2016 Collections

Department of Education

Department of Housing and Urban Development

Securities and Exchange Commission

Department of Health and Human Services

General Services Administration

Total Collection of Delinquent Federal Non-Tax Debt: Top Ten Creditor Agencies

(Dollars in Millions)

$15,427.3

$4,414.0

$3,168.6

$1,502.7

$1,273.9

Department of Agriculture $1,170.5

Department of Homeland Security $1,058.6

Department of Veterans Affairs $1,012.1

Commodity Futures Trading Commission $481.3

Department of Defense

Government Total $32,799.2

$443.4

Top 10 Total $29,952.4

All Other $2,846.8

figure 22

source: treasury report on receivables and debt collection activities — fourth quarter fy 2016
18 FY 2016 REPORT TO THE CONGRESS: U.S. GOVERNMENT RECEIVABLES 

AND DEBT COLLECTION ACTIVITIES OF FEDERAL AGENCIES

Appendix III: Total FY 2016 Write-Offs by Creditor Agency

In FY 2016, 97 percent of Federal debt write-offs that were “closed out” arose from programs administered by the ten 

Federal creditor agencies listed below. 

Agency FY 2016 Write-Offs

Department of Education

Department of Agriculture

Department of Housing and Urban Development

Department of Homeland Security

Department of Veterans Affairs

Total Federal Write-Offs: Top Ten Creditor Agencies

(Dollars in Millions)

$4,886.9

$1,418.5

$360.1

$349.8

$344.0

Social Security Administration $282.4

Export-Import Bank $130.9

Securities and Exchange Commission $127.6

Federal Communications Commission $105.8

Department of Energy

Government Total $8,321.7

$74.5

Top 10 Total $8,080.5

All Other $241.2

figure 23

source: treasury report on receivables and debt collection activities — fourth quarter fy 2016
19 FY 2016 REPORT TO THE CONGRESS: U.S. GOVERNMENT RECEIVABLES 

AND DEBT COLLECTION ACTIVITIES OF FEDERAL AGENCIES

Appendix IV: TOP Collections Including Debts Owed to the Internal Revenue Service and 

State Agencies

TOP is the centralized process through which Federal and State disbursing agencies intercept, or “offset,” eligible 

Federal and State payments to satisfy delinquent debts owed to Federal and State agencies. Delinquent debts owed 

to Federal agencies include loans, overpayments, fines, penalties, and more. In addition, the Federal Payment Levy 

Program, processed through TOP, allows the IRS to continuously levy Federal payments due to delinquent Federal 

taxpayers.19 Delinquent debts owed to State agencies include child support and unemployment insurance obligations. 

In FY 2016, Fiscal Service collected $7.1 billion through TOP for Federal and State20 agencies, of which $4.2 billion

was for debts owed to Federal agencies and $2.9 billion for debts owed to State agencies. Highlights include:

• $1.9 billion was collected for delinquent child support obligations submitted to TOP by HHS’s 

 Office of Child Support Enforcement on behalf of States. 

• $582.2 million was collected for the 42 States that participated in TOP’s State Income Tax Program, 

 whereby, Federal tax refunds are offset to collect delinquent State income tax obligations. 

• $61.5 million was collected for the 12 States that participated in TOP’s State Reciprocal Program, 

 whereby eligible Federal payments are offset to collect debt owed to States, and States offset 

 State payments to collect delinquent Federal non-tax debt. $46.8 million was collected for Federal 

 creditor agencies through the offset of state payments. 

• $403.2 million in Federal tax refunds were offset to collect unemployment compensation debt 

 owed to 44 States.

• TOP collected $692.4 million of delinquent Federal taxes through the Federal Payment Levy Program.

Type of Payment 

Oset / Levy

Type of

Debt FY 2012 FY 2013 FY 2014 FY 2015 FY 2016

Tax Refund Oset

Total

Federal 

Non-tax Debt

Federal 

Non-tax Debt

Federal 

Non-tax Debt

$2,019.0 $2,702.9 $2,670.0 $2,708.6

Administrative Oset21

State Payments

$380.3 $596.5 $508.4 $508.1

$18.8 $30.8 $36.6 $35.3

$3,019.7 $3,931.8 $3,794.9 $3,976.4

$2,994.1

$483.8

$46.8

Federal 

Tax Debt

Tax Levy

(Federal Payments) $601.6 $601.6 $579.9 $724.4 $692.4

$4,217.1

TOP Collection - Federal Debt: FY 2012 - 2016 

(Dollars in Millions)

figure 24

source: department of the treasury, bureau of the fiscal service
20 FY 2016 REPORT TO THE CONGRESS: U.S. GOVERNMENT RECEIVABLES 

AND DEBT COLLECTION ACTIVITIES OF FEDERAL AGENCIES

* Offsets of Federal non-tax payments to collect state unemployment insurance compensation debts through the State 

Reciprocal Program totaled $6,021 in FY 2016.

figure 25

source: department of the treasury, bureau of the fiscal service

Type of 

Payment Offset 

Type of

Debt FY 2012 FY 2013 FY 2014 FY 2015 FY 2016

Total

Tax Refund Offset $2,246.7 $1,941.4 $1,901.3 $1,889.1

Tax Refund Offset

Tax Refund Offset

Administrative Offset

Administrative Offset

Administrative Offset

Child Support

State Income 

Tax Debt

State Unemployment 

Compensation Debt

Other State Debt

(Reciprocal Program)

State Unemployment 

Compensation Debt

(Reciprocal Program)

$561.8 $605.3 $546.5 $571.2

$132.9 $326.2 $370.7 $547.8

$3,003.3 $2,919.3 $2,879.6 $3,063.3

$1,872.0

$582.2

$403.2

$9.2 $16.0 $16.7 $15.0 $22.7

Child Support Administrative Offset $8.1 $8.6 $8.7 $7.6 $7.6

$44.6 $21.8 $35.7 $32.6 $38.8

N/A N/A N/A N/A *

$2,926.5

TOP Collection - State Debt as of September 30: FY 2012 - 2016 

(Dollars in Millions)

State Income Tax Debt 

(Reciprocal Program)
21 FY 2016 REPORT TO THE CONGRESS: U.S. GOVERNMENT RECEIVABLES 

AND DEBT COLLECTION ACTIVITIES OF FEDERAL AGENCIES

Appendix V: Compliance with 120-Day Delinquent Debt Referral Requirement

The Digital Accountability and Transparency Act of 2014 (DATA Act) requires Federal agencies to notify Treasury of 

legally enforceable, non-tax debts that are greater than 120 days delinquent for purposes of administrative offset. The 

DATA Act also requires Treasury to report to Congress when debts are not referred timely.

The figure below shows the extent to which each Federal agency satisfied this referral requirement in FY 2016. The 

figure only includes agencies that had eligible debts to refer to Treasury. Agencies that did not have eligible debts to refer 

are not listed.

The data used in this figure, as with the data for much of this Report, are based on data that agencies reported on the 

TROR at the close of FY 2016. When agencies report information on the TROR, they certify to its accuracy. Agency 

comments and corrections received after the reporting window are included verbatim as footnotes to this figure.

Agency Compliance

 Rate

Number of 

Eligible Debts 

Not Referred

Number of 

Eligible Debts 

Referred

Total Number 

of Eligible 

Debts

I

Department of Education 25,019,291 9,669,768 15,349,523 38.6%

6,109,985 5,943,377 166,608 97.3%

1,881,462 1,808,307 73,155 96.1%

844,114 296,953 547,161 35.2%

114,091 113,606 485 99.6%

75,352 65,414 9,938 86.8%

59,333 59,331 2 99.9%

48.473 26,686 21,787 55.1%

35,588 22,096 13,492 62.1%

25,866 12,963 12,903 50.1%

17,499 17,444 55 99.7%

6,866 5,605 1,261 81.6%

5,267 4,507 760 85.6%

4,868 4,838 30 99.4%

4,664 4,628 36 99.2%

4,425 3,074 1,351 69.5%

Department of Veterans Affairs

Department of Health and Human Services

Social Security Administration 2,518,429 717,405 1,801,024 28.5%

Compliance with 120-Day Delinquent Debt Referral Requirement as of September 30: FY2016

Department of Defense

Small Business Administration

Department of Agriculture

Department of Homeland Security

IIDepartment of the Interior

Department of Labor

Department of Justice 31,635 30,907 728 97.7%

Federal Communications Commission

Department of State

Department of Transportation

General Services Administration

Department of Housing and Urban Development

Department of the Treasury

Railroad Retirement Board

figure 26

source: treasury report on receivables and debt collection activities — fourth quarter fy 2016
22 FY 2016 REPORT TO THE CONGRESS: U.S. GOVERNMENT RECEIVABLES 

AND DEBT COLLECTION ACTIVITIES OF FEDERAL AGENCIES

14 14 0 100.0%

6 6 0 100.0%

National Science Foundation

Federal Maritime Commission

U.S. Institute of Peace 5 0 5 0.0%

Agency Compliance

 Rate

Number of 

Eligible Debts 

Not Referred

Number of 

Eligible Debts 

Referred

Total Number 

of Eligible 

Debts

Securities and Exchange Commission 1,034 1,009 25 97.6%

862 270 592 31.3%

252 244 8 96.8%

212 200 12 94.3%

205 46 159 22.4%

199 199 0 100.0%

192 189 3 98.4%

182 0 182 0.0%

96 73 23 76.0%

95 83 12 87.4%

75 75 0 100.0%

75 75 0 100.0%

56 0 56 0.0%

Pension Benefit Guaranty Corporation

Commodity Futures Trading Commission

Compliance with 120-Day Delinquent Debt Referral Requirement as of September 30: FY2016

Corporation for National and Community Service

IIIEqual Employment Opportunity Commission

Nuclear Regulatory Commission

IVEnvironmental Protection Agency

U.S. House of Representatives

Armed Forces Retirement Home 100 78 22 78.0%

Presidio Trust

VNational Archives and Records Administration

Department of Energy

National Aeronautics and Space Administration

Consumer Financial Protection Bureau

56 56 0 100.0%

51 0 51 0.0%

51 9 42 17.6%

24 24 0 100.0%

18 18 0 100.0%

Federal Trade Commission

Architect of the Capitol

21 0 21 0.0% James Madison Memorial

Fellowship Foundation

5 0 5 0.0% Committee for Purchase from People 

Who are Blind or Severely Disabled

Federal Election Commission

VIAgency for International Development

Government Accountability Office

Department of Commerce 1,256 1,225 31 97.5%

Office of Personnel Management 2,924 1,020 1,904 34.9%

source: treasury report on receivables and debt collection activities — fourth quarter fy 2016
23 FY 2016 REPORT TO THE CONGRESS: U.S. GOVERNMENT RECEIVABLES 

AND DEBT COLLECTION ACTIVITIES OF FEDERAL AGENCIES

Agency Compliance

 Rate

Number of 

Eligible Debts 

Not Referred

Number of 

Eligible Debts 

Referred

Total Number 

of Eligible 

Debts

Compliance with 120-Day Delinquent Debt Referral Requirement as of September 30: FY2016

3 3 0 100.0%

3 0 3 0.0%

1 0 1 0.0%

Government Publishing Office

VIISmithsonian Institution

Broadcasting Board of Governors

4 0 4 0.0% U.S. - China Economic and

Security Review Commission

Consumer Product Safety Commission 1 1 0 100.0%

Commission on Fine Arts 1 0 1 0.0%

1 0 1 0.0%

1 1 0 100.0%

Denali Commission

Selective Service System

1 0 1 0.0%

4 0 4 0.0% U.S. Institute for 

Environmental Conflict Resolution

U.S. Court of Appeals for Veterans Claims

4 0 4 0.0% U.S. Commission on 

International Religious Freedom

source: treasury report on receivables and debt collection activities — fourth quarter fy 2016
24 FY 2016 REPORT TO THE CONGRESS: U.S. GOVERNMENT RECEIVABLES 

AND DEBT COLLECTION ACTIVITIES OF FEDERAL AGENCIES

Footnotes: Agency Comments to Figure 26

I Department of Education - “Education’s TOP Referral Rate Metric is not reliable due to reporting issues that impact 

the metric calculation. Education is working with its servicers to address these issues and anticipates their resolution by 

FY 2018 Q1 reporting. Education is also non-compliant with the TOP referral scope and timing requirements of the 

DCIA and is working with its servicers to modify its business practices to reduce its non-compliance. Corrections for 

Departmental Management will start Q4 FY 2016.”

II Department of the Interior - “National Park Service had debts that were reported in error, and are taking action 

to correct these. Bureau of Land Management debts are sent to TOP through cross-servicing and this can take up to 

20 days. Fish and Wild Life Service had various issues including timing issues. All debts are actively being managed. 

Indian Affairs San Carlos Irrigation Project has been understaffed and has recently hired personnel to catch up on 

delinquent debt referrals to Treasury.”

III Equal Employment Opportunity Commission - “The debt balance not referred is related to current employee debts 

and would not be referred to Treasury.”

IV Environmental Protection Agency - “Revised explanation regarding the three debts reported as unreferred: Debt #1 

- Amount of $540. This debt was referred to Treasury on 07/08/16. Debts #2 - Amount of $1,885. This debt is ineligible 

[sic] because debtor is in bankruptcy. Debt #3 - Amount of $49,654. This debt has not yet been referred because it is still 

in the process of following necessary due process.”

V National Archives & Records Administration - “NARA has instituted corrective action to address amounts not 

referred.”

VI Agency for International Development - “Most of the Agency’s debts that are not transferred to Treasury are under 

dispute, negotiation or in the process of being collected at overseas Missions. As soon as the receivable amounts are 

assessed and legally enforceable, they will be transferred to Treasury. Based on our conversation with Treasury, USAID 

will make appropriate adjustments for these items in future TROR reporting.”

VII Smithsonian Institution - “These debts are payroll claims that should no longer have receivable balances. 

Accounting corrections will be made in coordination with the payroll provider to reduce the receivable amounts to $0.”
25 FY 2016 REPORT TO THE CONGRESS: U.S. GOVERNMENT RECEIVABLES 

AND DEBT COLLECTION ACTIVITIES OF FEDERAL AGENCIES

figure 27

source: department of the treasury, bureau of the fiscal service

Payment Agency

Department of Justice Payments made by the Office of Justice Programs through the International 

Terrorism Victim Expense Reimbursement Program; agency request 

approved on March 24, 2016.

Department of Justice Payments associated with settlements of class actions certified under Federal 

Rule of Civil Procedure 23(b)(3) for attorney’s fees and litigation costs for 

class counsel paid under prevailing party fee-shifting statutes and 

administrative costs of distributing settlements through the use of an 

administrator; agency request approved on September 23, 2016.

Department of 

Homeland Security

Payments made by the Federal Emergency Management Agency through 

the Disaster Case Management Program; agency request approved on 

March 24, 2016.

Type of Payment

Payments Exempt by Action of the Secretary of the Treasury as of September 30: FY 2016

Appendix VI: Payments Exempted from Centralized Administrative Offset by the Secretary 

of the Treasury

As authorized by Federal law, 31 U.S.C. § 3716(c)(3)(B), the Secretary of the Treasury, at the request of a paying agency, 

may exempt certain classes of Federal payments from the requirement that they be offset for the purpose of collecting 

non-tax debt owed to the United States. In FY 2016, Fiscal Service approved three exemption requests. A complete list of 

payment classes exempt from centralized administrative offset is available on Treasury’s website.
26 FY 2016 REPORT TO THE CONGRESS: U.S. GOVERNMENT RECEIVABLES 

AND DEBT COLLECTION ACTIVITIES OF FEDERAL AGENCIES

Appendix VII: Sources of Data

Data in this report were obtained from the following sources and reported as of September 30, 2016:

Sources

Treasury Report on Receivables and Debt Collection Activities — Fourth Quarter 2016, as reported by Federal 

creditor agencies to the Department of the Treasury

Department of the Treasury, Bureau of the Fiscal Service

Department of Health and Human Services, Program Support Center

Department of Justice, Office of Debt Collection Management
FY 2016 REPORT TO THE CONGRESS: U.S. GOVERNMENT RECEIVABLES 

AND DEBT COLLECTION ACTIVITIES OF FEDERAL AGENCIES

Endnotes

1 Dollar figures in this report have been rounded to the tenth decimal point.

2 31 U.S.C. § 3719(b) (requiring the Secretary to report annually to Congress on the management of debt collection 

activities); 31 U.S.C. § 3716(c)(3)(B) (requiring the Secretary to report annually to Congress regarding payments 

exempted from offset); 31 U.S.C. § 3716(c)(6)(B) (requiring the Secretary to report to Congress on agency failure to 

refer debts for administrative offset).

3 SEC’s Division of Enforcement generated new receivables that were approximately $127.9 billion.

4 More information on Education’s Student Aid programs can be found in the Federal Student Aid Annual Report.

5

 All year-over-year changes are calculated based on the exact value in whole dollars and may differ from the change 

calculated based on the rounded values expressed in millions or billions of dollars. 

6

 HHS’s Centers for Medicare & Medicaid Services submitted amended fourth quarter, FY 2016 collection data for 

input in the TROR.

7 Non-loan receivables included fines, payments, and overpayments.

8 At the beginning of FY 2014, Education revised its methodology for calculating the amount of delinquent debt 

reported on the TROR by including only the value of past-due payments. Prior to FY 2014, Education reported the 

entire outstanding balance of the delinquent loan.

9 The calculation of the amount that became delinquent during FY 2016 is based on debt that was between 1 and 365 

days delinquent as of September 30, 2016. 

10 SEC delinquent collections rose by approximately $2 billion due to a substantial increase in the number of judgments 

filed and collected.

11 The term “State” includes several states of the United States, the District of Columbia, American Samoa, Guam, 

the United States Virgin Islands, the Commonwealth of the Northern Mariana Islands, and the Commonwealth of 

Puerto Rico. 

12 Education’s Office of Federal Student Aid revised a segment of its reporting process, which led to the increase in its 

AWG and PCA collections.

13 This amount does not include collections resulting from the use of AWG by Fiscal Service’s Cross-Servicing Program 

or from judicial garnishment actions.

14 This amount does not include collections resulting from the use of PCAs by Fiscal Service’s Cross-Servicing Program 

or from the use of private counsel by the DOJ. This amount also does not include collections from AWG. 

15 Generally, one-time payments (tax refunds and vendor payments) may be offset up to 100% of the payment amount. 

For recurring payments (Social Security, retirement, and salary), the offset amount is generally limited to a percentage of 

the payment.

16 A change in methodology to standardize the formula for TOP collection of delinquent Federal non-tax debt may have 

resulted in some TOP collection figures varying from previous years’ versions of this report.

17 An “enforced” collection action refers to an action taken by DOJ (or by another Federal creditor agency with 

independent litigation authority) to obtain a judgment against the debtor and to pursue available post-judgment 

remedies (including wage and bank garnishment and liens filed against property).

18 “Write-off” of a delinquent debt is an accounting action. The Federal creditor agency may pursue collection of a 

delinquent Federal non-tax debt, however, without regard to whether it has been written off.

27
FY 2016 REPORT TO THE CONGRESS: U.S. GOVERNMENT RECEIVABLES 

AND DEBT COLLECTION ACTIVITIES OF FEDERAL AGENCIES

Endnotes

19 A “levy” is legally distinct from “offset”. While offset involves the netting out of mutual obligations between two 

parties, a levy is a legal seizure of property, usually in the hands of a third party, to satisfy a tax debt.

20 For more detail on Treasury’s collection on behalf of the states, see Treasury’s Annual Report to the States.

21 “Administrative offset” refers to the offset of Federal non-tax payments to collect delinquent Federal non-tax debts.

28