DEPARTMENT OF THE TREASURY

WASHINGTON,

D.C.

SECRETARY OF THE TREASURY

A Message from the Secretary
This page is intentionally blank.
Contents

A Message from the Secretary of the Treasury 

Results in Brief................................................................................................... i 

Executive Summary........................................................................................... 1

Management’s Discussion and Analysis .......................................................... 8

Statement of the Comptroller General of the United States.......................... 32

Financial Statements

 Introduction ....................................................................................................... 42

 Statement of Net Cost........................................................................................ 49

 Statement of Operations and Changes in Net Position ...................................... 51

 Reconciliations of Net Operating Cost and Budget Deficit............................... 53

 Statements of Changes in Cash Balance from Budget and Other

 Activities............................................................................................................ 54

 Balance Sheets................................................................................................... 55

 Statements of Long-Term Fiscal Projections..................................................... 56

 Statements of Social Insurance.......................................................................... 57

 Statement of Changes in Social Insurance Amounts......................................... 60

Notes to the Financial Statements

 Note 1. Summary of Significant Accounting Policies....................................... 62

 Note 2. Cash and Other Monetary Assets.......................................................... 75

 Note 3. Accounts and Taxes Receivable, Net.................................................... 77

 Note 4. Loans Receivable and Loan Guarantee Liabilities, Net ........................ 78

 Note 5. Inventories and Related Property, Net .................................................. 81

 Note 6. Property, Plant, and Equipment, Net..................................................... 83

 Note 7. Debt and Equity Securities.................................................................... 85

 Note 8. Investments in Government-Sponsored Enterprises ............................. 88

 Note 9. Other Assets.......................................................................................... 91

 Note 10. Accounts Payable................................................................................ 92

 Note 11. Federal Debt Securities Held by the Public and Accrued Interest ...... 93

 Note 12. Federal Employee and Veteran Benefits Payable ............................... 97

 Note 13. Environmental and Disposal Liabilities.............................................. 106

 Note 14. Benefits Due and Payable ................................................................... 108

 Note 15. Insurance and Guarantee Program Liabilities..................................... 109

 Note 16. Other Liabilities.................................................................................. 110

 Note 17. Collections and Refunds of Federal Revenue ..................................... 112

 Note 18. Contingencies...................................................................................... 115

 Note 19. Commitments...................................................................................... 120

 Note 20. Funds from Dedicated Collections...................................................... 123

 Note 21. Fiduciary Activities............................................................................. 129

 Note 22. Social Insurance .................................................................................. 131

 Note 23. Long-Term Fiscal Projections............................................................ 150
 Note 24. Stewardship Land and Heritage Assets............................................... 155

 Note 25. Subsequent Events ............................................................................. 156

Required Supplementary Information (Unaudited)

 The Sustainability of Fiscal Policy .................................................................... 158

Social Insurance................................................................................................. 169

 Social Security and Medicare .......................................................................... 169

 Railroad Retirement, Black Lung, and Unemployment Insurance .................. 192

 Deferred Maintenance and Repairs.................................................................... 195

 Other Claims for Refunds.................................................................................. 195

 Tax Assessments................................................................................................ 196

 Federal Oil and Gas Resources.......................................................................... 197

 Federal Natural Resources Other than Oil and Gas.......................................... 199

Other Information (Unaudited)

 Tax Burden ....................................................................................................... 200

 Tax Gap ............................................................................................................. 201

 Unmatched Transactions and Balances ............................................................. 202

Required Supplementary Stewardship Information (Unaudited)

 Stewardship Investments................................................................................... 204

 Non-Federal Physical Property........................................................................ 205

 Human Capital................................................................................................. 205

 Research and Development ............................................................................. 205

Appendices

 Appendix A: Reporting Entity........................................................................... 208

 Appendix B: Acronyms..................................................................................... 212

U.S. Government Accountability Office Independent Auditor’s Report...... 218
List of Social Insurance Charts

Chart 1 Number of Covered Workers per OASDI Beneficiary, 1970-2091.... 174

Chart 2 OASDI Income (Excluding Interest) and Expenditures, 1970-2091 175

Chart 3 OASDI Income (Excluding Interest) and Expenditures as a 

Percent of Taxable Payroll, 1970-2091............................................... 176

Chart 4 OASDI Income (Excluding Interest) and Expenditures as a 

Percent of GDP, 1970-2091................................................................ 177

Chart 5 Total Medicare (HI and SMI) Expenditures and Noninterest 

Income as a Percent of GDP, 1970-2091........................................... 181

Chart 6 Medicare Part A Income (Excluding Interest) and Expenditures, 

1970-2091 ........................................................................................... 182

Chart 7 Medicare Part A Income (Excluding Interest) and Expenditures as 

a Percent of Taxable Payroll, 1970-2091............................................ 183

Chart 8 Medicare Part A Income (Excluding Interest) and Expenditures as 

a Percent of GDP, 1970-2091 ............................................................. 184

Chart 9 Medicare Part B and Part D Premium and State Transfer Income 

and Expenditures, 1970-2091 ............................................................. 185

Chart 10 Medicare Part B and Part D Premium and State Transfer Income 

and Expenditures as a Percent of GDP, 1970-2091 ............................ 186
i Results in Brief – 2017 Financial Report of U.S. Government

RESULTS IN BRIEF

Highlights of the FY 2017 Financial Report of the U.S. Government 

Where We Are Now 

The Government’s net cost before 

taxes and other revenues for FY 2017 

was $4.5 trillion - an increase 

of $128.8 billion (2.9 percent) from FY

2016. 

Net cost equals gross costs of $4.6 

trillion, less earned program revenues

(e.g., Medicare premiums, national 

park entry fees), and then adjusted for

gains or losses from assumption 

changes used to estimate future federal

employee and veterans benefits 

payments. 

The increase in net cost is the 

combined effect of many offsetting

increases and decreases across the 

Government. 

Total Government tax and other 

revenues grew by $29.3 billion (0.9 

percent) to about $3.4 trillion for FY

2017. 

The Government deducts $3.4 trillion

in tax and other revenues from its $4.5 

trillion net cost (with some 

adjustments) to derive its FY 2017 

“bottom line” net operating cost of 

$1.2 trillion.

By comparison, the Government’s budget deficit for FY 2017 was $665.7 billion – an increase of 

$78.3 billion (about 13.3 percent) over FY 2016. The $491.0 billion difference between the budget 

deficit and net operating cost is primarily due to accrued costs (incurred but not necessarily paid) that

are included in net operating cost, but not the budget deficit. These include but are not limited to

estimated future costs of federal employee and veterans benefits.
 Results in Brief – 2017 Financial Report of the U.S. Government ii

Where We Are Headed 

The primary deficit is the difference

between non-interest spending and

receipts. As a ratio relative to GDP (the

primary deficit-to-GDP ratio), it is

useful for gauging long-term fiscal

sustainability.

This ratio spiked from 2009 through

2012 due to the financial crisis, the

ensuing severe recession, and increased

spending and temporary tax reductions

enacted to stimulate the economy and

support recovery. As an economic

recovery took hold, the primary deficitto-GDP ratio fell, and is projected to

shrink further through 2021 as

discretionary spending limits remain in

effect and economic recovery boosts

tax receipts.

After 2021, increased spending for

Social Security and health programs

due to the continued retirement of the

baby boom generation and increases in

health care costs is projected to result

in increasing primary deficits through

2038. After 2038, the ratio slowly

declines as the aging of the population

slows. These projections do not include

the effects of the Tax Cuts and Jobs

Act of 2017.

Projections in the Financial Report

indicate that the Government’s debt-toGDP ratio is projected to remain relatively stable over the next decade, and then continuously rise over

the remaining projection period and beyond if current policy is kept in place. This trend implies that

current policy is not sustainable.

As long as changes in policy are not so abrupt as to slow economic growth, the sooner policy changes

are adopted, the smaller the changes to revenue and/or spending will need to be to return the

Government to a sustainable fiscal path.
1 Executive Summary to the 2017 Financial Report of U.S. Government 

2017 2016*

Gross Costs $ (4,609.3) $ (4,515.7)

 Less: Earned Revenue $ 431.9 $ 383.9

 Gain/(Loss) from Changes in Assumptions $ (356.5) $ (273.3)

Net Cost $ (4,533.9) $ (4,405.1)

 Less: Total Tax and Other Revenues $ 3,374.6 $ 3,345.3

 Unmatched Transactions and Balances $ 2.6 $ 8.1

Net Operating Cost $ (1,156.7) $ (1,051.7)

Budget Deficit $ (665.7) $ (587.4)

Assets: $ 3,480.7 $ 3,534.8

Less: Liabilities, comprised of:

Debt Held By the Public & Accrued Interest $ (14,724.1) $ (14,221.1)

Federal Employee & Veteran Benefits $ (7,700.1) $ (7,209.4)

Other $ (1,472.7) $ (1,401.1)

Total Liabilities $ (23,896.9) $ (22,831.6)

Net Position (Assets Less Liabilities) $ (20,416.2) $ (19,296.8)

Social Insurance Net Expenditures $ (49.0) $ (46.7)

Total Federal Non-Interest Net Expenditures $ (16.2) $ (10.6)

Social Insurance Net Expenditures (4.0%) (3.8%)

Total Federal Non-Interest Net Expenditures (1.2%) (0.8%)

Fiscal Gap1 (2.0%) (1.6%)

Sustainability Measures (Dollars in Trillions): 

NATION BY THE NUMBERS

A Snapshot of 

The Government's Financial Position & Condition

Financial Measures (Dollars in Billions): 

Sustainability Measures as Percent of Gross Domestic Product (GDP):

*Restated (See Financial Statement Note 1.V)

1 To prevent the debt-to-GDP ratio from rising over the next 75 years, a combination of noninterest spending reductions and receipts increases that amounts to 2.0 percent of GDP on 

average is needed (1.6 percent of GDP on average in 2016). See Financial Statement Note 23.
 Executive Summary to the 2017 Financial Report of the U.S. Government 2

Executive Summary to the Fiscal Year 2017 

Financial Report of the United States Government

The Fiscal Year 2017 Financial Report of the U.S. Government (Financial Report) presents the U.S. 

Government’s current financial position and condition, and discusses key financial topics and trends. The 

Financial Report is produced by the U.S. Department of the Treasury (Treasury) in coordination with the Office 

of Management and Budget (OMB) of the Executive Office of the President. The table on the preceding page 

presents several key indicators of the Government’s financial position and condition, which are discussed in this 

Summary and, in greater detail, in the Financial Report. The Secretary of the Treasury, Director of OMB, and the 

Comptroller General of the United States at the Government Accountability Office believe that the information 

discussed in this Financial Report is important to all Americans.

This Financial Report addresses the Government’s financial activity and results as of September 30, 2017. 

Note 25, Subsequent Events discusses events that occurred after the end of the fiscal year which may affect the 

Government’s financial position and condition.

Where We Are Now 

Comparing the Budget and the Financial Report

The Budget of the United States Government (Budget) and the Financial Report of the U.S. Government 

present complementary perspectives on the Government’s financial position and condition.

• The Budget is the Government’s primary financial planning and control tool. It accounts for past Government 

receipts and spending, and includes the President’s proposed receipts and spending plan. Receipts are cash 

received by the U.S. Government (Government) and spending is measured as outlays, or payments made by 

the Government to the public. Receipts greater than outlays creates a budget surplus; and outlays greater than 

receipts creates a budget deficit.

• The Financial Report includes the Government’s costs and revenues, assets and liabilities, and other 

important financial information. It compares the Government’s revenues (amounts earned, but not necessarily 

collected), with costs (amounts incurred, but not necessarily paid) to derive net operating cost.

Chart 1 compares the Government’s budget deficit (receipts vs. outlays) and net operating cost (revenues vs. 

costs) for Fiscal Years (FY) 2013 - 2017. 

During FY 2017:

• A $126.5 billion increase in outlays was 

offset in part by a $48.2 billion increase in 

receipts to increase the budget deficit by 

$78.3 billion (about 13.3 percent) to 

$665.7 billion. 

• Net operating cost increased by $105.0 

billion or 10.0 percent to $1.2 trillion, due 

largely to a $128.8 billion (2.9 percent) 

increase in net cost, offset by a slight $29.3 

billion (0.9 percent) increase in tax and 

other revenues.

• The $491.0 billion difference between the 

budget deficit and net operating cost is 

primarily due to accrued costs (incurred 

but not necessarily paid) related to increases in estimated federal employee and veteran benefits liabilities and 

certain other liabilities that are included in net operating cost, but not the budget deficit.
3 Executive Summary to the 2017 Financial Report of U.S. Government 

Costs and Revenues 

The Government’s “bottom line” net operating cost increased $105.0 billion (10.0 percent) during FY 2017

to $1.2 trillion. It is calculated as follows:

• Starting with total gross costs of $4.6 trillion, 

the government subtracts earned program 

revenues (e.g., Medicare premiums, national 

park entry fees, and postal service fees) and 

adjusts the balance for gains or losses from 

changes in actuarial assumptions used to 

estimate future federal employee and 

veterans benefits payments to derive its net 

cost before taxes and other revenues of $4.5 

trillion (see Chart 2), an increase of $128.8 

billion (2.9 percent) from FY 2016. This net 

increase is the combined effect of many 

offsetting increases and decreases across the 

Government. For example:

o Agencies administering federal employee 

and veterans benefits programs, including the Office of Personnel Management (OPM), Department of 

Veterans Affairs (VA), and Department of Defense (DOD) employ a complex series of assumptions, 

including but not limited to interest rates, beneficiary eligibility, life expectancy, and medical cost levels,

to make actuarial projections of their long-term benefits liabilities. Changes in these assumptions can 

result in either losses (net cost increases) or gains (net cost decreases). Across the Government, these net 

actuarial losses amounted to $356.5 billion in FY 2017, an increase of $83.2 billion over FY 2016.

o Agencies that extend credit to the public, including student and housing loans, estimate and re-estimate 

long-term program cost employing multiple loan performance and economic assumptions. For example, 

these estimates and re-estimates contributed to a $19.4 billion net cost decrease at the Department of 

Education and a $39.7 billion net cost increase at the Department of Housing and Urban Development.

o Department of Health and Human Services (HHS) and Social Security Administration (SSA) net costs 

increased $11.8 billion and $17.0 billion, respectively, largely due to increases in benefit expenses from 

the social insurance programs administered by those agencies (e.g., Medicare, Social Security). DOD net 

costs increased by $56.2 billion due largely to the aforementioned changes in assumptions. Interest costs 

on the debt held by the public increased $23.3 billion due largely to an increase in the debt. 

o Department of Energy (DOE) net costs decreased $23.0 billion predominantly due to changes in 

estimated environmental remediation costs compared to FY 2016 and Department of Homeland Security 

(DHS) net costs increased $10.9 billion primarily for hurricane response and recovery.

• The Government deducts tax and other revenues from net cost (with some adjustments) to derive its FY 2017 

“bottom line” net operating cost of $1.2 trillion.

o From Chart 3, total Government tax and other 

revenues grew by $29.3 billion (0.9 percent) to 

about $3.4 trillion for FY 2017.

o Together, individual income tax and tax 

withholdings, and corporation taxes accounted 

for about 88.5 percent of total tax and other 

revenues in FY 2017. Other revenues include 

Federal Reserve earnings, excise taxes, and 

customs duties.
 Executive Summary to the 2017 Financial Report of the U.S. Government 4

Assets and Liabilities

Chart 4 summarizes the assets and liabilities that the Government reports on its balance sheet. As of 

September 30, 2017:

• Total assets ($3.5 trillion) consist mostly 

of $1.3 trillion in net loans receivable 

(primarily student loans) and $1.0 trillion 

in net property, plant, and equipment).

o Other significant Government 

resources not reported on the 

balance sheet include stewardship 

assets, natural resources, and the 

Government’s power to tax and 

set monetary policy.

• Total liabilities ($23.9 trillion) consist 

mostly of: (1) $14.7 trillion in federal debt 

securities held by the public and accrued 

interest and (2) $7.7 trillion in federal 

employee and veteran benefits payable.

o The “public” consists of individuals, corporations, state and local governments, Federal Reserve 

Banks, foreign governments, and other entities outside the federal government.

• The Government also reports about $5.6 trillion of intragovernmental debt outstanding, which arises when 

one part of the Government borrows from another.

o For example, Government funds (e.g., Social Security and Medicare trust funds) typically must invest 

excess annual receipts, including interest earnings, in Treasury-issued federal debt securities. 

Although not reflected in Chart 4, these securities are included in the calculation of federal debt

subject to the debt limit.

• Debt held by the public plus intragovernmental debt equals gross federal debt, which, with some adjustments, 

is subject to a statutory debt ceiling (“debt limit”).

o At the end of FY 2017, debt subject to the statutory limit (DSL) was $20.2 trillion. Increasing or 

suspending the debt limit does not increase spending or authorize new spending; rather, it permits the 

Government to continue to honor pre-existing commitments.

o Legislation most recently suspended the debt limit from November 2, 2015 through March 15, 2017, 

and from September 8, 2017 through December 8, 2017. See Note 25, Subsequent Events, of the 

Financial Report for developments since the end of the fiscal year.

Considering key macroeconomic indicators can help place the discussion of the Government’s financial 

results in a broader context. During FY 2017, the economy continued to grow, job growth decelerated, and the 

unemployment rate declined. These and other economic and financial developments are discussed in greater detail 

in the Financial Report.
5 Executive Summary to the 2017 Financial Report of U.S. Government 

Where We Are Headed 

An important purpose of this Financial Report is to help citizens understand current fiscal policy and the 

importance and magnitude of policy reforms necessary to make it sustainable. A sustainable fiscal policy is one 

where the ratio of debt held by the public to Gross Domestic Product (GDP) (the debt-to-GDP ratio) is stable or 

declining over the long term. GDP measures the size of the Nation’s economy in terms of the total value of all 

final goods and services that are produced in a year. Considering financial results relative to GDP is a useful 

indicator of the economy’s capacity to sustain the Government’s many programs.

To determine if current fiscal policy is sustainable, the projections discussed in the Financial Report assume 

current policy will continue indefinitely.

1 The projections are therefore neither forecasts nor predictions. As 

policy changes are enacted, actual financial outcomes will be different than those projected.

Receipts, Spending, and the Debt 

Chart 5 shows historical and current policy projections for receipts, non-interest spending by major category, 

net interest, and total spending expressed 

as a percent of GDP. The projections do 

not reflect the Tax Cuts and Jobs Act (P.L. 

115-97) enacted on December 22, 2017; 

for more information on the Act, see Note 

25, Subsequent Events.

• The primary deficit is the difference 

between non-interest spending and 

receipts. The primary deficit 

expressed as a ratio relative to GDP 

(the primary deficit-to-GDP ratio) is 

useful for gauging long-term fiscal 

sustainability.

• The primary deficit-to-GDP ratio 

spiked during 2009 through 2012 due 

to the financial crisis and the ensuing 

severe recession, as well as increased 

spending and temporary tax 

reductions enacted to stimulate the economy and support recovery. As an economic recovery took hold, the 

primary deficit-to-GDP ratio fell, averaging 1.9 percent from 2013-2017. The ratio is projected to shrink 

further through 2021 as discretionary spending limits remain in effect and economic recovery boosts tax 

receipts.

• After 2021, increased spending for Social Security and health programs2 due to the continued retirement of 

the baby boom generation and increases in health care costs is projected to result in increasing primary 

deficits through 2038 when the primary deficit-to-GDP ratio reaches 2.1 percent. After 2038, the ratio slowly 

declines as the aging of the population slows, and reaches 0.6 percent in 2091.

 1Current policy in the projections is based on current law, but includes extension of certain policies that expire under current law but are routinely extended 

or otherwise expected to continue.

2 See the 2017 Trustees Report for Medicare (pp 4-5) and Social Security (pp 4-23).
 Executive Summary to the 2017 Financial Report of the U.S. Government 6

• The persistent long-term gap between projected receipts and total spending shown in Chart 5 occurs despite 

the projected effects of the Affordable Care Act (ACA)3 on long-term deficits.

o Enactment of the ACA in 2010 and the Medicare Access and CHIP Reauthorization Act (MACRA) in 

2015 established cost controls for Medicare hospital and physician payments whose long-term 

effectiveness is still to be demonstrated.

o There is uncertainty about the extent to which these projections can be achieved and whether the 

ACA’s provisions that reduce Medicare cost growth will be overridden by new legislation. 

Table 1 summarizes the status and projected trends of the Government’s Social Security and Medicare 

Trust Funds.

The primary deficit projections in Chart 5, along with those for interest rates and GDP, determine the debtto-GDP ratio projections in Chart 6.

• The debt-to-GDP ratio was 76 percent 

at the end of FY 2017, and under 

current policy is projected to be 74 

percent in 2027, 136 percent in 2047, 

and 297 percent in 2092.

• The debt-to-GDP ratio rises 

continuously despite flat primary 

deficits mainly because higher levels 

of debt lead to higher net interest 

expenditures, which lead to higher 

deficits and debt. The continuous rise 

of the debt-to-GDP ratio after 2026 

indicates that current fiscal policy is 

unsustainable.

• These debt-to-GDP projections are 

generally higher than the 

corresponding projections in both the FY 2016 and FY 2015 Financial Reports.

 3 The ACA refers to P.L. 111-148, as amended by P.L. 111-152. The ACA expands health insurance coverage, provides health insurance subsidies for lowincome individuals and families, includes many measures designed to reduce health care cost growth, and significantly reduces Medicare payment rates 

relative to the rates that would have occurred in the absence of the ACA. (See Note 22 and the Required Supplementary Information section of the Financial 

Report, and the 2017 Medicare Trustees Report for more information).
7 Executive Summary to the 2017 Financial Report of U.S. Government 

The Fiscal Gap and the Cost of Delaying Fiscal Policy Reform 

• The 75-year fiscal gap is a measure of how much primary deficits must be reduced over the next 75 years in

order to make fiscal policy sustainable. That estimated fiscal gap for 2017 is 2.0 percent of GDP (compared to

1.6 percent for 2016).

• This estimate implies that making fiscal policy sustainable over the next 75 years would require some

combination of spending reductions and receipt increases that equals 2.0 percent of GDP on average over the

next 75 years. The fiscal gap represents 10.0 percent of 75-year present value receipts and 9.4 percent of 75-

year present value non-interest spending.

• The timing of policy changes to make fiscal policy sustainable has important implications for the well-being

of future generations as is shown in Table 2.

o Table 2 shows that, if action is delayed by 10 years, the estimated magnitude of primary surplus

increases necessary to close the 75-year fiscal gap increases by about 20 percent from 2.0 percent of

GDP on average over 75 years to 2.4 percent on average over 65 years); if action is delayed by 20

years, the magnitude of reforms necessary increases by about 50 percent.

o Future generations are harmed by a policy delay because the higher the primary surpluses are during

their lifetimes, the greater is the difference between the taxes they pay and the programmatic

spending from which they benefit.

Conclusion 

• Projections in the Financial Report indicate that the Government’s debt-to-GDP ratio is projected to remain

relatively stable over the next decade, and then continuously rise over the remaining projection period and

beyond if current policy is kept in place. This trend implies that current policy is not sustainable.

• As long as changes in policy are not so abrupt as to slow economic growth, the sooner policy changes are

adopted, the smaller the changes to revenue and/or spending will need to be to return the Government to a

sustainable fiscal path.

Find Out More

The 2017 Financial Report of the United States Government and other information about the nation’s 

finances are available at:

• U.S. Department of the Treasury, http://www.fiscal.treasury.gov/reports-statements/financial-report/;

• OMB’s Office of Federal Financial Management, https://www.whitehouse.gov/omb/management/officefederal-financial-management/ ; and

• GAO, http://www.gao.gov/financial.html

The Government Accountability Office’s (GAO) audit report on the U.S. Government’s consolidated financial 

statements can be found beginning on page 218 of the full Financial Report. GAO was unable to express an 

opinion (disclaimed) on these consolidated financial statements for the reasons discussed in the audit report. 
 MANAGEMENT’S DISCUSSION AND ANALYSIS 8

MANAGEMENT’S DISCUSSION AND 

ANALYSIS

Introduction 

The Fiscal Year (FY) 2017 Financial Report of the United States Government (Financial Report) provides the 

President, Congress, and the American people with a comprehensive view of the federal government’s financial position and 

condition, and discusses important financial issues and significant conditions that may affect future operations, including the 

need to achieve fiscal sustainability over the medium and long term.

Pursuant to 31 U.S.C. § 331(e)(1), the Department of the Treasury (Treasury), in cooperation with the Office of 

Management and Budget (OMB), must submit an audited (by the Government Accountability Office or GAO) financial 

statement for the preceding fiscal year, covering all accounts and associated activities of the executive branch of the United 

States Government1 to the President and Congress no later than six months after the September 30 fiscal year-end. 

The Financial Report is prepared from the audited financial statements of specifically designated federal agencies, (see 

organizational chart on the next page and Appendix A). As it has for the past twenty years, GAO issued a disclaimer of 

opinion on the accrual-based, consolidated financial statements for the fiscal years ended September 30, 2017 and 2016. 

GAO also issued a disclaimer of opinion on the sustainability financial statements, which consist of the 2017 and 2016 

Statements of Long-Term Fiscal Projections (SLTFP); the 2017, 2016, 2015, 2014, and 2013 Statements of Social Insurance 

(SOSI); and the 2017 and 2016 Statements of Changes in Social Insurance Amounts (SCSIA). A disclaimer of opinion 

indicates that sufficient information was not available for the auditors to determine whether the reported financial statements 

were fairly presented in accordance with Generally Accepted Accounting Principles (GAAP). In FY 2017, 332 of the 39 most 

significant agencies earned unmodified opinions on their financial statement audits.

The FY 2017 Financial Report consists of: 

• Management’s Discussion and Analysis (MD&A), which provides management’s perspectives on and analysis 

of information presented in the Financial Report, such as financial and performance trends;

• Principal financial statements and the related notes to the financial statements;

• Required Supplementary Information (RSI), Required Supplementary Stewardship Information (RSSI), and 

Other Information; and

• GAO’s audit report. 

This Financial Report addresses the Government’s financial activity and results as of September 30, 2017. Note 25, 

Subsequent Events discusses events that occurred after the end of the fiscal year which may affect the Government’s financial 

position and condition.

In addition, the Executive Summary to this Financial Report provides a quick reference to the key issues in the 

Financial Report and an overview of the Government's financial position and condition.

Mission & Organization

The Government’s fundamental mission is derived from the Constitution: “...to form a more perfect union, establish 

justice, insure domestic tranquility, provide for the common defense, promote the general welfare and secure the blessings 

of liberty to ourselves and our posterity.” The Government’s functions have evolved over time to include health care, 

income security, veterans benefits and services, housing and transportation, security, and education. Exhibit 1 provides an 

overview of how the U.S. Government (Government) is organized.

 1 The Government Management Reform Act of 1994 has required such reporting, covering the executive branch of the Government, beginning with financial 

statements prepared for FY 1997. Treasury and OMB included the legislative and judicial branches in the consolidated financial statements as well. 2 The 33 agencies include: (1) the Department of Health and Human Services, which received disclaimers of opinion on its 2017, 2016, 2015, 2014, and 

2013 SOSI and on its 2017 and 2016 SCSIA; (2) the Department of Labor, which received disclaimers of opinion on its 2017 SCSIA and 2016 SOSI and 

SCSIA; and (3) the Department of Agriculture (USDA), which received an unmodified opinion only on its balance sheet (other statements were not audited). 

The Department of Energy (DOE) expects to issue its audited Agency Financial Report (AFR) after the release of this Financial Report.
 9 MANAGEMENT’S DISCUSSION AND ANALYSIS 

Exhibit 1 

THE UNITED STATES GOVERNMENT

EXECUTIVE BRANCH

THE PRESIDENT

THE VICE PRESIDENT

EXECUTIVE OFFICE OF THE PRESIDENT

White House Office

Office of the Vice President

Council of Economic Advisers

Council on Environmental Quality

National Security Council

Office of Administration

Office of Management and Budget

Office of National Drug Control Policy

Office of Policy Development

Office of Science and Technology Policy

Office of the U.S. Trade Representative

LEGISLATIVE BRANCH

THE CONGRESS

SENATE HOUSE

Architect of the Capitol

United States Botanic Garden

Government Accountability Office

Government Publishing Office

Library of Congress

Congressional Budget Office

U.S. Capitol Police

JUDICIAL BRANCH

THE SUPREME COURT OF THE

UNITED STATES

United States Courts of Appeals

United States District Courts

Territorial Courts

United States Court of International Trade

United States Court of Federal Claims

Administrative Office of the United States 

Courts

Federal Judicial Center

United States Sentencing Commission

OTHER SIGNIFICANT REPORTING ENTITIES 

ENVIRONMENTAL PROTECTION AGENCY

GENERAL SERVICES ADMINISTRATION

NATIONAL AERONAUTICS AND SPACE ADMINISTRATION

NATIONAL SCIENCE FOUNDATION

OFFICE OF PERSONNEL MANAGEMENT

SMALL BUSINESS ADMINISTRATION

SOCIAL SECURITY ADMINISTRATION

U.S. AGENCY FOR INTERNATIONAL DEVELOPMENT

U.S. NUCLEAR REGULATORY COMMISSION

DEFENSE SECURITY COOPERATION AGENCY

EXPORT-IMPORT BANK OF THE UNITED STATES

FARM CREDIT SYSTEM INSURANCE CORPORATION

FEDERAL COMMUNICATIONS COMMISSION

FEDERAL DEPOSIT INSURANCE CORPORATION

GENERAL FUND OF THE U.S. GOVERNMENT

MILLENNIUM CHALLENGE CORPORATION

NATIONAL CREDIT UNION ADMINISTRATION

OVERSEAS PRIVATE INVESTMENT CORPORATION

PENSION BENEFIT GUARANTY CORPORATION

RAILROAD RETIREMENT BOARD

SECURITIES AND EXCHANGE COMMISSION

SMITHSONIAN INSTITUTION

TENNESSEE VALLEY AUTHORITY

U.S. POSTAL SERVICE

OTHER ENTITIES ARE LISTED IN APPENDIX A OF THIS FINANCIAL REPORT

DEPARTMENT

OF

VETERANS 

AFFAIRS 

DEPARTMENT

OF THE

TREASURY 

DEPARTMENT

OF

TRANSPORTATION

DEPARTMENT

OF

STATE 

DEPARTMENT

OF

LABOR 

DEPARTMENT

OF HOUSING

AND URBAN 

DEVELOPMENT

DEPARTMENT

OF THE

INTERIOR 

DEPARTMENT

OF

JUSTICE 

DEPARTMENT

OF HOMELAND 

SECURITY 

DEPARTMENT

OF HEALTH

AND HUMAN 

SERVICES 

DEPARTMENT

OF

DEFENSE 

DEPARTMENT

OF

EDUCATION 

DEPARTMENT

OF

ENERGY 

DEPARTMENT

OF

COMMERCE 

DEPARTMENT

OF

AGRICULTURE 

SIGNIFICANT REPORTING ENTITIES

THE CONSTITUTION
 MANAGEMENT’S DISCUSSION AND ANALYSIS 10

The Government’s Financial Position and Condition 

This Financial Report discusses the Government’s financial position at the end of the fiscal year, explains how and 

why the financial position changed during the year, and discusses the Government’s financial condition and how it may 

change in the future.

$ %

Gross Cost $ (4,609.3) $ (4,515.7) $ 93.6 2.1%

Less: Earned Revenue $ 431.9 $ 383.9 $ 48.0 12.5%

Gain/(Loss) from Changes in Assumptions $ (356.5) $ (273.3) $ 83.2 30.4%

Net Cost $ (4,533.9) $ (4,405.1) $ 128.8 2.9%

Less: Tax and Other Revenues $ 3,374.6 $ 3,345.3 $ 29.3 0.9%

Unmatched Transactions & Balances $ 2.6 $ 8.1 $ (5.5) (67.9%)

Net Operating Cost $ (1,156.7) $ (1,051.7) $ 105.0 10.0%

Budget Deficit $ (665.7) $ (587.4) $ 78.3 13.3%

Assets:

Cash & Other Monetary Assets $ 271.2 $ 467.9 $ (196.7) (42.0%)

Loans Receivable, Net $ 1,348.5 $ 1,277.6 $ 70.9 5.5%

Inventories & Related Property, Net $ 326.7 $ 314.3 $ 12.4 3.9%

Property, Plant & Equipment, Net $ 1,034.5 $ 979.5 $ 55.0 5.6%

Other $ 499.8 $ 495.5 $ 4.3 0.9%

Total Assets $ 3,480.7 $ 3,534.8 $ (54.1) (1.5% )

Liabilities:

Federal Debt Held by the Public & Accrued Interest $ (14,724.1) $ (14,221.1) $ 503.0 3.5%

Federal Employee & Veterans Benefits $ (7,700.1) $ (7,209.4) $ 490.7 6.8%

Other $ (1,472.7) $ (1,401.1) $ 71.6 5.1%

Total Liabilities $ (23,896.9) $ (22,831.6) $ 1,065.3 4.7%

Net Position (Assets minus Liabilities) $ (20,416.2) $ (19,296.8) $ 1,119.4 5.8%

Social Insurance Net Expenditures:

Social Security (OASDI) $ (15.4) $ (14.1) $ 1.3 9.2%

Medicare (Parts A, B, & D) $ (33.5) $ (32.5) $ 1.0 3.1%

Other $ (0.1) $ (0.1) $ 0.0 0.0%

Total Social Insurance Net Expenditures $ (49.0) $ (46.7) $ 2.3 4.9%

Total Federal Non-Interest Net Expenditures $ (16.2) $ (10.6) $ 5.6 52.8%

75-Year Fiscal Gap (Percent of Gross Domestic Product) (2.0% ) (1.6% ) 0.4% 25.0%

*Restated (See Financial Statement Note 1.V)

FINANCIAL MEASURES (Dollars in Billions)

Table 1

The Federal Government's Financial Position and Condition

2017 2016* Increase / (Decrease)

SUSTAINABILITY MEASURES (Dollars in Trillions)
 11 MANAGEMENT’S DISCUSSION AND ANALYSIS

Table 1 on the previous page and the following summarize the federal government’s financial position: 

• The Government’s gross costs of $4.6 trillion, less $431.9 billion in revenues earned for goods and services

provided to the public (e.g., Medicare premiums, national park entry fees, and postal service fees), plus $356.5

billion in net losses from changes in assumptions (e.g., interest rates, inflation, disability claims rates) yields the

Government’s net cost of $4.5 trillion, an increase of $128.8 billion or 2.9 percent over FY 2016.

• Deducting $3.4 trillion in tax and other revenues, with some adjustment for unmatched transactions and balances,

results in a “bottom line” net operating cost of $1.2 trillion for FY 2017, (an increase of $105.0 billion or 10.0

percent) over FY 2016.

• Comparing total 2017 Government assets of $3.5 trillion to total liabilities of $23.9 trillion (comprised mostly of

$14.7 trillion in federal debt held by the public and accrued interest payable3

, and $7.7 trillion of federal employee

and veterans benefits payable) yields a negative net position of $20.4 trillion.

• The budget deficit is primarily financed through borrowing from the public. As of September 30, 2017, debt held by

the public, excluding accrued interest, was $14.7 trillion. This amount, plus intragovernmental debt ($5.6 trillion)

equals gross federal debt, which, with some adjustments, is subject to the statutory debt limit. As of September 30,

2017, the Government’s total debt subject to the debt limit was $20.2 trillion. The statutory debt limit was most

recently suspended through December 8, 2017. See Note 25, Subsequent Events, for developments since the end of

the fiscal year.

This Financial Report also contains information about projected impacts on the Government’s future financial 

condition. Under federal accounting rules, social insurance amounts as reported in both the SLTFP and in the SOSI are not 

considered liabilities of the Government. From Table 1:

• The SLTFP shows that the present value (PV)4 of total non-interest spending, including Social Security, Medicare,

Medicaid, defense, and education, etc.), over the next 75 years, under current policy, is projected to exceed the PV

of total receipts by $16.2 trillion (total federal non-interest net expenditures from Table 1).

• The SOSI shows that the PV of the Government’s expenditures for Social Security and Medicare Parts A, B and D,

and other social insurance programs over 75 years is projected to exceed social insurance revenues5 by about $49.0

trillion, a $2.3 trillion increase over 2016 social insurance projections.

• The two sustainability measures in Table 1 differ primarily because total non-interest net expenditures from the

SLTFP include the effects of general revenues and non-social insurance spending, neither of which is included in the

SOSI.

The Government’s current financial position and long-term financial condition can be evaluated both in dollar terms and 

in relation to the economy as a whole. Gross Domestic Product (GDP) is a measure of the size of the nation’s economy in 

terms of the total value of all final goods and services that are produced in a year. Considering financial results relative to 

GDP is a useful indicator of the economy’s capacity to sustain the Government’s many programs. For example:

• The budget deficit (i.e., including the consolidated receipts and outlays from federal funds and the Social Security

Trust Fund) increased from $587.4 billion in FY 2016 to $665.7 billion in FY 2017. The deficit-to-GDP ratio in

2017 was 3.5 percent, compared to 3.2 percent in FY 2016 and the 3.1 percent average over the past 40 years.6

• The budget deficit is primarily financed through borrowing from the public. As of September 30, 2017, the $14.7

trillion in debt held by the public, excluding accrued interest, equates to approximately 76 percent of GDP.

• The 2017 SOSI projection of $49.0 trillion net PV excess of expenditures over receipts over 75 years represents

about 4.0 percent of the PV of GDP over 75 years. The excess of total projected non-interest spending over receipts

of $16.2 trillion from the SLTFP represents 1.2 percent of GDP over 75 years. As discussed in this Financial

Report, these projections can, in turn, have a significant impact on projected debt as a percent of GDP.

• To prevent the debt-to-GDP ratio from rising over the next 75 years, a combination of non-interest spending

reductions and receipts increases that amounts to 2.0 percent of GDP on average is needed (1.6 percent of GDP on

average in the 2016 projections). The fiscal gap represents 10.0 percent of 75-year present value receipts and 9.4

percent of 75-year present value non-interest spending.

3 On the Government’s balance sheet, debt held by the public and accrued interest payable consists of Treasury securities, net of unamortized discounts and 

premiums, and accrued interest payable. The “public” consists of individuals, corporations, state and local governments, Federal Reserve Banks, foreign 

governments, and other entities outside the federal government. 4 Present values recognize that a dollar paid or collected in the future is worth less than a dollar today because a dollar today could be invested and earn 

interest. To calculate a present value, future amounts are thus reduced using an assumed interest rate, and those reduced amounts are summed. 5 Social Security is funded by the payroll taxes and revenue from taxation of benefits. Medicare Part A is funded by the payroll taxes, revenue from taxation 

of benefits, and premiums that support those programs. Medicare Parts B and D are primarily financed by general revenues and premiums. By accounting 

convention, general revenues transferred to Medicare Parts B and D are eliminated in consolidation at the governmentwide level and, as such, are not 

included in the SOSI.

6 Final Monthly Treasury Statement (as of September 30, 2017 and 2016), Joint Statement of Treasury Secretary Steven T. Mnuchin and OMB Director 

Mick Mulvaney on Budget Results for Fiscal Year 2017
 MANAGEMENT’S DISCUSSION AND ANALYSIS 12

Fiscal Year 2017 Financial Statement Audit Results

For FY 2017, GAO issued a disclaimer of audit opinion on the accrual-based, governmentwide financial statements, as 

it has for the past twenty years, due to certain material weaknesses in internal control over financial reporting and other 

limitations on the scope of its work. In addition, GAO issued a disclaimer of opinion on the sustainability financial 

statements due to significant uncertainties primarily related to the achievement of projected reductions in Medicare cost 

growth and certain other limitations. GAO’s audit report on page 218 of this Financial Report, discusses GAO’s findings.

21 of the 24 agencies required to issue audited financial statements under the Chief Financial Officers (CFO) Act

received unmodified audit opinions, as did 12 of 15 additional significant reporting agencies (see Table 10 and Appendix 

A).7

 

The Governmentwide Reporting Entity

This Financial Report includes the financial status and activities of the executive, legislative, and judicial branches of 

the federal government, even though the legislative and judicial branches are not required by law to submit financial 

statement information to Treasury. Appendix A includes a list of the agencies and entities contributing to this Financial 

Report.

8

A number of entities are not consolidated due to the nature of their operations, including the Federal Reserve System 

(considered to be an independent central bank under the general oversight of Congress), all fiduciary funds, and GovernmentSponsored Enterprises (GSEs), including the Federal Home Loan Banks, the Federal National Mortgage Association (Fannie 

Mae), and the Federal Home Loan Mortgage Corporation (Freddie Mac). Following U.S. GAAP for federal entities, the 

Government has not consolidated into its financial statements the assets, liabilities, or results of operations of any financial 

organization or commercial entity in which Treasury holds either a direct, indirect, or beneficial majority equity investment. 

Under Statement of Federal Financial Accounting Concepts (SFFAC) No. 2, these entities meet the criteria of paragraph 50 

and do not appear in the Federal Budget section “Federal Programs by Agency and Account.” As such, these entities are not 

consolidated into the financial reports of the Government. However, the values of the investments in and any related 

liabilities to such entities are presented on the balance sheet. 

The following pages contain a more detailed discussion of the Government’s financial results for FY 2017, the budget, 

the economy, the debt, and a long-term perspective about fiscal sustainability, including the Government’s ability to meet its 

social insurance benefits obligations. The information in this Financial Report, when combined with the Budget of the U.S. 

Government, collectively presents information on the Government’s financial position and condition.

Accounting Differences Between The Budget and the Financial 

Report

Each year, the Administration issues two reports that detail the Government’s financial results: the Budget of the U.S. 

Government (Budget), and this Financial Report. The exhibit on the following page provides the key characteristics and 

differences between the two documents.

Treasury generally prepares the financial statements in this Financial Report on an accrual basis of accounting as 

prescribed by U.S. GAAP for federal entities.9 These principles are tailored to the Government’s unique characteristics and 

circumstances. For example, agencies prepare a uniquely structured “Statement of Net Cost,” which is intended to present net 

Government resources used in its operations. Also, unique to Government is the preparation of separate statements to 

reconcile differences and articulate the relationship between the budget and financial accounting results.

 7 The 21 agencies include: (1) the Department of Health and Human Services, which received disclaimers of opinions on its 2017, 2016, 2015, 2014, and 

2013, SOSI and its 2017 and 2016 SCSIA; and (2) the Department of Labor, which received a disclaimer of opinion on its 2017 SCSIA and 2016 SOSI and 

SCSIA. This also includes the Department of the Agriculture which received an unmodified audit opinion on its Balance Sheet as of September 30, 2017, but 

its other financial statements were not audited. The Federal Deposit Insurance Corporation (FDIC), the National Credit Union Administration (NCUA), and 

the Farm Credit System Insurance Corporation (FCSIC) are among the 39 significant entities. These entities operate on a calendar year basis (December 31 

year-end). Statistic reflects 2016 audit results for these organizations. In addition, neither the Defense Security Cooperation Agency (DSCA) nor the General 

Fund of the U.S. Government was subject to audit for FY 2017.

8 Since programs are not administered at the governmentwide level, performance goals and measures for the federal government, as a whole, are not reported 

here. The outcomes and results of those programs are addressed at the individual agency level and can be found in each agency’s financial report. Go to 

www.performance.gov for more information about Government performance. 9 Under U.S. GAAP, most U.S. Government revenues are recognized on a ‘modified cash’ basis, or when they become measurable. The Statement of Social 

Insurance presents the present value of the estimated future revenues and expenditures for scheduled benefits over the next 75 years for the Social Security, 

Medicare, Railroad Retirement programs; and 25 years for the Black Lung program. The Statement of Long-Term Fiscal Projections presents the present 

value of the projected future receipts and non-interest spending for the federal government. 
 13 MANAGEMENT’S DISCUSSION AND ANALYSIS 

Budget of the U.S. Government Financial Report of the U.S. Government

Prepared primarily on a “cash basis”

• Initiative-based and prospective: focus on 

current and future initiatives planned and 

how resources will be used to fund them.

• Receipts (“cash in”), taxes and other 

collections recorded when received.

• Outlays (“cash out”), largely recorded when 

payment is made. 

Prepared on an “accrual and modified cash basis”

• Agency-based and retrospective – prior and present 

resources used to implement initiatives.

• Revenue: Tax revenue (more than 90 percent of total 

revenue) recognized on modified cash basis (see Financial 

Statement Note 1.B). Remainder recognized when earned, 

but not necessarily received.

• Costs: recognized when incurred, but not necessarily paid.

Budget Deficit vs. Net Operating Cost

The budget deficit is measured as the excess of outlays, or payments made by the Government, over receipts, or cash 

received by the Government. Net operating cost, on an accrual basis, is the excess of costs (what the Government has 

incurred, but has not necessarily paid) over revenues (what the Government has collected and expects to collect, but has not 

necessarily received). As shown in Chart A, net operating cost typically exceeds the budget deficit due largely to the 

inclusion of cost accruals associated with increases in estimated liabilities for the Government’s postemployment benefit 

programs for its military and civilian employees and veterans as well as environmental liabilities. 

The Government’s primarily cash-based10 budget deficit increased by $78.3 billion (about 13.3 percent) from 

approximately $587.4 billion in FY 2016 to about $665.7 billion in FY 2017 due to lower growth in receipts compared to the 

increase in outlays in FY 2017. The $48.2 billion (1.5 percent) increase in receipts can be attributed to higher social insurance 

and retirement receipts and net individual income taxes, partially offset by lower deposits of earnings by the Federal Reserve. 

Outlays increased $126.5 billion (3.3 percent). Contributing to the increase over FY 2016 were higher outlays for Social 

Security, Medicare and Medicaid, and interest on the debt held by the public. In addition, revisions in estimates of credit 

subsidy for outstanding Federal loans and loan guarantees, primarily in the Departments of Education and Housing and 

Urban Development, as well as lower spectrum auction receipts and higher spending by the Federal Emergency Management 

 10 Interest outlays on Treasury debt held by the public are recorded in the budget when interest accrues, not when the interest payment is made. For federal 

credit programs, outlays are recorded when loans are disbursed, in an amount representing the present value cost to the Government, (commonly referred to 

as credit subsidy cost. Credit subsidy cost excludes administrative costs.
 MANAGEMENT’S DISCUSSION AND ANALYSIS 14

Agency for hurricane relief and recovery contributed to the increase.

11 The Government’s largely accrual-based net operating 

cost also increased, by $105.0 billion (10.0 percent) from $1.1 trillion to $1.2 trillion, over FY 2016. As explained below, net 

operating costs are affected by both changes in revenues and costs.

The Reconciliation of Net Operating Cost and Budget Deficit Statement is summarized in Table 2. Table 2 details the 

relationship between the Government’s accrual-based net operating cost relates to the cash-based budget deficit. From Table 

2, the $491.0 billion net difference between the Government’s budget deficit and net operating cost for FY 2017, is mostly 

attributable to: (1) a $490.7 billion net increase in liabilities for Federal employee and veteran benefits payable (FEVBP); and 

(2) several offsetting items, including, but not limited to a net $55.0 billion increase in Property, Plant, and Equipment 

(PP&E) and a $17.9 billion increase in environmental and disposal liabilities. These and most of the other “Change in” 

amounts summarized in Table 2 affect net operating cost, but not the budget deficit. In particular, the $490.7 billion FEVBP 

change not only represents most (99.9 percent) of the difference between the budget deficit and net operating cost, but is also, 

as discussed in the following section, the most significant driver of the increase in the government’s net operating cost for

2017.

 11 10/20/17 press release -- Joint Statement of Treasury Secretary Steven T. Mnuchin and OMB Director Mick Mulvaney on Budget Results for Fiscal Year 

2017.
 15 MANAGEMENT’S DISCUSSION AND ANALYSIS 

The Government’s Net Position: “Where We Are”

The Government’s financial position and condition have traditionally been expressed through the Budget, focusing on 

surpluses, deficits, and debt. However, this primarily cash-based discussion of the Government’s net outlays (deficit) or net 

receipts (surplus) tells only part of the story. The Government’s accrual-based net position, (the difference between its assets 

and liabilities), and its “bottom line” net operating cost (the difference between its revenues and costs) are also key financial 

indicators. 

Costs and Revenues 

The Government’s Statement of Operations and Changes in Net Position, much like a corporation’s income statement, 

shows the Government’s “bottom line” and its impact on net position (i.e., assets net of liabilities). To derive the 

Government’s “bottom line” net operating cost, the Statement of Net Cost first shows how much it costs to operate the 

federal government, recognizing expenses when incurred, regardless of when payment is made (accrual basis). It shows the 

derivation of the Government’s net cost or the net of: (1) gross costs, or the costs of goods produced and services rendered by 

the Government, (2) the earned revenues generated by those goods and services during the fiscal year, and (3) gains or losses

from changes in actuarial assumptions used to estimate certain liabilities. This amount, in turn, is offset against the 

Government’s taxes and other revenue reported in the Statement of Operations and Changes in Net Position to calculate the 

“bottom line” or net operating cost. 12

Table 3 shows that the Government’s “bottom line” net operating cost increased by $105.0 billion (10.0 percent), from 

$1.1 trillion in FY 2016 to $1.2 trillion in FY 2017.13 This increase is largely attributable to a $128.8 billion (2.9 percent) 

increase in agency net costs, which was offset slightly by a $29.3 billion (0.9 percent) increase in tax and other revenues over 

the past fiscal year as summarized in the following.

Gross Cost and Net Cost 

The Statement of Net Cost, starts with the Government’s total gross costs of $4.6 trillion, subtracts revenues earned for 

goods and services provided (e.g., Medicare premiums, national park entry fees, and postal service fees), and adjusts the 

balance for gains or losses from changes in actuarial assumptions used to estimate certain liabilities, including federal 

employee and veterans benefits to derive its net cost of $4.5 trillion (See Chart B), a $128.8 billion (2.9 percent) increase

over FY 2016.

Typically, the annual change in the Government’s net cost is impacted by a variety of offsetting increases and decreases 

across agencies. For example, offsetting changes in net cost during FY 2017 included: 

• Agencies administering federal employee and veterans benefits programs employ a complex series of assumptions, 

including but not limited to interest rates, beneficiary eligibility, life expectancy, and medical cost levels, to make 

actuarial projections of their long-term benefits liabilities. Changes in these assumptions can result in either losses 

(net cost increases) or gains (net cost decreases). Across the Government, net actuarial losses from these assumption 

changes amounted to $356.5 billion in FY 2017, an increase of $83.2 billion over FY 2016. The primary agencies 

that administer programs impacted by these assumptions – typically federal employee pension and benefit programs 

 12 As shown in Table 3, net operating cost includes an adjustment for unmatched transactions and balances, which represent unreconciled differences in 

intragovernmental activity and balances between Federal agencies. These amounts are described in greater detail in the Other Information section of this 

Financial Report. 13 The Statement of Net Cost in this Financial Report reflects FY 2016 net cost restatements for the Pension Benefit Guaranty Corporation from $4.7 billion 

to $5.4 billion, (See Financial Statement Note 1.V).

$ %

Gross Cost $ (4,609.3) $ (4,515.7) $ 93.6 2.1%

Less: Earned Revenue $ 431.9 $ 383.9 $ 48.0 12.5%

Gain/(Loss) from Changes in Assumptions $ (356.5) $ (273.3) $ 83.2 30.4%

Net Cost $ (4,533.9) $ (4,405.1) $ 128.8 2.9%

Less: Tax and Other Revenues $ 3,374.6 $ 3,345.3 $ 29.3 0.9%

Unmatched Transactions and Balances $ 2.6 $ 8.1 $ (5.5) (67.9%)

Net Operating Cost $ (1,156.7) $ (1,051.7) $ 105.0 10.0%

*Restated (See Financial Statement Note 1.V)

Table 3: Gross Cost, Revenues, Net Cost, and Net Operating Cost 

Dollars in Billions 2017 2016* Increase / (Decrease)
 MANAGEMENT’S DISCUSSION AND ANALYSIS 16

– are the Office of Personnel Management (OPM), the Department of Veterans Affairs (VA), and the Department of 

Defense (DOD). These agencies recorded losses from changes in actuarial assumptions in the amounts of $102.5 

billion, $229.7 billion, and $24.1 billion, respectively.

o These analyses and the resulting gains or losses can sometimes cause significant swings in total agency 

costs from year to year. For example, for FY 2017, changes in net cost at VA ($169.4 billion decrease),

OPM ($178.5 billion increase), and DOD ($56.2 billion increase), were impacted by the corresponding 

changes in gains or losses from assumption changes at these agencies.

• Agencies that extend credit to the public in 

the form of loans, including student and 

housing loans, estimate and annually reestimate the long-term costs of these 

programs employing multiple loan 

performance and economic assumptions. 

These estimates and reestimates can have 

varying effects on an agency’s net cost 

each year. For example, the $19.4 billion 

net cost decrease at the Department of 

Education and the $39.7 billion increase at 

the Department of Housing and Urban 

Development were both largely attributed 

to these “credit subsidy estimates and reestimates.”14; 

• $11.8 billion and $17.0 billion net cost 

increases at the Department of Health and 

Human Services (HHS) and the Social 

Security Administration (SSA), 

respectively, primarily due to cost 

increases of the benefits programs that 

these agencies administer (HHS –

Medicare and Medicaid programs, SSA –

Old Age Survivors and Disability 

Insurance (OASDI) programs); 

• A $23.3 billion cost increase in interest on 

debt held by the public due largely to an 

increase in the debt15; 

• $23.0 billion net cost decrease at the 

Department of Energy predominantly due 

to changes in estimated environmental 

remediation costs compared to FY 2016; 

and

• A $10.9 billion net cost increase at the 

Department of Homeland Security 

primarily to support response and recovery 

efforts related to the recent hurricanes.16

Chart B shows the composition of the Government’s net cost. In FY 2017, nearly three fourths of total net cost came 

from HHS, SSA, DOD, and VA. Chart C shows that these agencies have consistently incurred the largest agency shares of 

the Government’s total net cost in recent years. As indicated above, HHS and SSA net costs for FY 2017 ($1.1 trillion and 

$1.0 trillion, respectively) are attributable to major social insurance programs administered by these agencies. DOD net costs 

of $665.4 billion relate primarily to operations, readiness, and support; personnel; research; procurement; and retirement and 

health benefits. VA costs ($479.7 billion during FY 2017, nearly half of which was due to losses from changes in actuarial 

assumptions as referenced earlier) support health, education and other benefits programs for our Nation’s veterans. Chart B

also shows that interest on debt held by the public contributed an additional 6 percent, and the other agencies included in the 

Government’s FY 2017 Statement of Net Cost accounted for a combined 22 percent of the Government’s total net cost for 

FY 2017. 

 

14 FY 2017 Department of Education Agency Financial Report, pp. 17-18; FY 2017 Department of Housing and Urban Development Agency Financial 

Report, pp. 20-23. 15 FY 2017 Department of the Treasury Agency Financial Report, p. 28 16 FY 2017 U.S. Department of Homeland Security Agency Financial Report, p. 27
 17 MANAGEMENT’S DISCUSSION AND ANALYSIS 

Tax and Other Revenues 

As noted earlier, tax and other revenues from the Statement of Operations and Changes in Net Position are deducted 

from total net cost to derive the Government’s 

“bottom line” net operating cost. Chart D shows 

that total tax and other revenue did not change 

significantly, increasing slightly by $29.3 billion or 

0.9 percent to $3.4 trillion for FY 2017. This 

increase is attributable mainly to an overall growth 

in individual income tax collections, partially offset 

by reduced estate and corporation income tax 

collections and deposit of earnings from the Federal 

Reserve System.17 Earned revenues from Table 3 

are not considered “taxes and other revenue” and, 

thus, are not shown in Chart D. Individual income 

tax and tax withholdings and corporation income 

taxes accounted for about 79.7 percent and 8.9 

percent of total revenue, respectively in FY 2017; 

other revenues from Chart D include Federal

Reserve earnings, excise taxes, unemployment 

taxes, and customs duties.

As previously shown in Table 3, the increase in net cost more than offset the slight increase in tax and other revenues, 

resulting in a slight increase in the government’s net operating cost from $ 1.1 trillion for FY 2016 to $1.2 trillion for FY 

2017.

Assets and Liabilities 

The Government’s net position at the end of the year is derived by netting the Government’s assets against its liabilities, 

as presented in the Balance Sheet (summarized in Table 4). The balance sheet does not include the financial value of the 

Government’s sovereign powers to tax, regulate commerce, or set monetary policy or value of nonoperational resources, such 

as national and natural resources, for which the Government is a steward. In addition, as is the case with the Statement of 

Operations and Changes in Net Position, the Balance Sheet includes a separate presentation of the portion of net position 

related to funds from dedicated collections. Moreover, the Government’s exposures are broader than the liabilities presented 

on the balance sheet. The Government’s future social insurance exposures (e.g., Medicare and Social Security) as well as 

other fiscal projections, commitments and contingencies, are reported in separate statements and disclosures. This 

information is discussed later in this Management Discussion and Analysis (MD&A) section, the financial statements, and 

RSI sections of this Financial Report.

 17 FY 2017 Department of the Treasury Agency Financial Report, p. 29

$ %

Assets

Cash & Other Monetary Assets $ 271.2 $ 467.9 $ (196.7) (42.0%)

Loans Receivable, Net $ 1,348.5 $ 1,277.6 $ 70.9 5.5%

Inventories & Related Property, Net $ 326.7 $ 314.3 $ 12.4 3.9%

Property, Plant & Equipment, Net $ 1,034.5 $ 979.5 $ 55.0 5.6%

Other $ 499.8 $ 495.5 $ 4.3 0.9%

Total Assets $ 3,480.7 $ 3,534.8 $ (54.1) (1.5% )

Less: Liabilities, comprised of:

Federal Debt Held by the Public & Accrued Interest $ (14,724.1) $ (14,221.1) $ 503.0 3.5%

Federal Employee & Veteran Benefits $ (7,700.1) $ (7,209.4) $ 490.7 6.8%

Other $ (1,472.7) $ (1,401.1) $ 71.6 5.1%

Total Liabilities $ (23,896.9) $ (22,831.6) $1,065.3 4.7%

Net Position (Assets Minus Liabilities) $ (20,416.2) $ (19,296.8) $1,119.4 5.8%

*Restated (See Financial Statement Note 1.V)

Table 4: Assets and Liabilities

Dollars in Billions 2017 2016* Increase / (Decrease)
 MANAGEMENT’S DISCUSSION AND ANALYSIS 18

Assets 

As of September 30, 2017, the Government’s $3.5 trillion in assets are comprised mostly of net loans receivable ($1.3 

trillion) and net property, plant, and equipment ($1.0 trillion).18 From Financial Statement Note 4, the Department of 

Education’s (Education’s) Federal Direct Student Loan Program accounted for $1.0 trillion (77.2 percent) of total net loans 

receivable. Education’s direct student loan program receivables balances have grown by more than 170 percent since FY 

2011 largely due to increased direct loan disbursements, attributable to the continued effect of 2010 legislation requiring a 

transition for new loans from guaranteed student loans to full direct lending by Education.19

Liabilities 

As indicated in Table 4 and Chart E, of the 

Government’s $23.9 trillion in total liabilities, the 

largest liability is federal debt securities held by the 

public and accrued interest, the balance of which 

increased by $503.0 billion (3.5 percent) to $14.7 

trillion as of September 30, 2017.

The other major component of the 

Government’s liabilities is federal employee and 

veteran benefits payable (i.e., the Government’s 

pension and other benefit plans for its military and 

civilian employees), which increased $490.7 billion 

(6.8 percent) during FY 2017, to $7.7 trillion. This 

total amount is comprised of $2.5 trillion in benefits 

payable for the current and retired civilian 

workforce, and $5.2 trillion for the military and 

veterans. OPM administers the largest civilian 

pension plan, covering nearly 2.7 million current 

employees and 2.6 million annuitants and 

survivors. The military pension plan covers about 

2.1 million current military personnel (including active service, reserve, and National Guard) and approximately 2.3 million 

retirees and survivors.

Federal Debt

The budget surplus or deficit is the difference between total federal spending and receipts (e.g., taxes) in a given year. 

The Government borrows from the public (increases federal debt levels) to finance deficits. During a budget surplus (i.e., 

when receipts exceed spending), the Government typically uses those excess funds to reduce the debt held by the public. The 

Statement of Changes in Cash Balance from Budget and Other Activities reports how the annual budget surplus or deficit 

relates to the federal government’s borrowing and changes in cash and other monetary assets. It also explains how a budget 

surplus or deficit normally affects changes in debt balances. 

The Government’s publicly-held debt, or federal debt held by the public, and accrued interest (balance sheet liability)

totaled $14.7 trillion as of September 30, 2017. It is comprised of Treasury securities, such as bills, notes, and bonds, net of 

unamortized discounts and premiums; and accrued interest payable. The “public” consists of individuals, corporations, state 

and local governments, Federal Reserve Banks, foreign governments, and other entities outside the federal government. As 

indicated above, budget surpluses have typically resulted in borrowing reductions, and budget deficits have conversely 

yielded borrowing increases. However, the Government’s debt operations are generally much more complex. Each year, 

trillions of dollars of debt mature and new debt is issued to take its place. In FY 2017, new borrowings were $8.7 trillion, and 

repayments of maturing debt held by the public were $8.2 trillion, both increases from FY 2016).

 18 For financial reporting purposes, other than multi-use heritage assets, stewardship assets are not recorded as part of Property, Plant, and Equipment. 

Stewardship assets are comprised of stewardship land and heritage assets. Stewardship land consists of public domain land (e.g., national parks, wildlife 

refuges). Heritage assets include national monuments and historical sites that among other characteristics are of historical, natural, cultural, educational, or 

artistic significance. See Note 24 – Stewardship Land and Heritage Assets. 19 With the enactment of the SAFRA Act, which was included as part of the Health Care and Education Reconciliation Act of 2010 (HCERA) (Pub. L. 111-

152), no new loans were originated under the Federal Family Education Loan (FFEL) Program (guaranteed loan program) since July 1, 2010. See U.S. 

Department of Education FY 2017 Agency Financial Report p. 52.
 19 MANAGEMENT’S DISCUSSION AND ANALYSIS 

Prior to 1917, Congress approved each debt 

issuance. In 1917, to facilitate planning in World 

War I, Congress and the President established a 

dollar ceiling for federal borrowing. With the 

Public Debt Act of 1941 (Public Law 77-7), 

Congress and the President set an overall limit of 

$65 billion on Treasury debt obligations that 

could be outstanding at any one time. Since then, 

Congress and the President have enacted a 

number of measures affecting the debt limit, 

including several in recent years. Congress and 

the President most recently suspended the debt 

limit from September 8, 2017 through December 

8, 2017. It is important to note that increasing or 

suspending the debt limit does not increase 

spending or authorize new spending; rather, it 

permits the United States to continue to honor 

pre-existing commitments to its citizens, 

businesses, and investors domestically and around 

the world. 

In addition to debt held by the public, the Government has 

about $5.6 trillion in intragovernmental debt outstanding, which 

arises when one part of the Government borrows from another. 

It represents debt issued by the Treasury and held by 

Government accounts, including the Social Security ($2.9 

trillion) and Medicare ($268.4 billion) trust funds. 

Intragovernmental debt is primarily held in Government trust 

funds in the form of special nonmarketable securities by various 

parts of the Government. Laws establishing Government trust 

funds generally require excess trust fund receipts (including 

interest earnings) over disbursements to be invested in these 

special securities. Because these amounts are both liabilities of 

the Treasury and assets of the Government trust funds, they are 

eliminated as part of the consolidation process for the 

governmentwide financial statements (see Note 11). When those 

securities are redeemed, e.g., to pay Social Security benefits, the 

Government will need to obtain the resources necessary to 

reimburse the trust funds. The sum of debt held by the public 

and intragovernmental debt equals gross federal debt, which 

(with some adjustments), is subject to a statutory ceiling (i.e.,

the debt limit). At the end of FY 2017, debt subject to the 

statutory limit (DSL) was $20.2 trillion (see sidebar). See Note 

25, Subsequent Events for developments since the end of the fiscal year.

 The federal debt held by the public measured as a percent of GDP (debt-to-GDP ratio) (Chart F) compares the 

country’s debt to the size of its economy, making 

this measure sensitive to changes in both. Over 

time, the debt-to-GDP ratio has varied widely:

• For most of the nation’s history, through 

the first half of the 20th century, the debtto-GDP ratio has tended to increase during 

wartime and decline during peacetime.

• Chart F shows that wartime spending and 

borrowing pushed the debt-to-GDP ratio to 

an all-time high of 106 percent in 1946, 

soon after the end of World War II, but it 

decreased rapidly in the post-war years, 

• The ratio grew rapidly from the mid-1970s 

until the early 1990s. Strong economic 

growth and fundamental fiscal decisions, 

including measures to reduce the federal 

deficit and implementation of binding 

"Pay As You Go" (PAYGO) rules (which 

require that new tax or spending laws not 

add to the deficit), generated a significant decline in the debt-to-GDP ratio, from a peak of 48 percent in 1993-1995, 

to 31 percent in 2001.

• During the first decade of the 21st century, PAYGO rules were allowed to lapse, significant tax cuts were 

implemented, entitlements were expanded, and spending related to defense and homeland security increased. By 

September 2008, the debt-to-GDP ratio was 39 percent of GDP. 

• PAYGO rules were reinstated in 2010, but the extraordinary demands of the last economic and fiscal crisis and the 

consequent actions taken by the federal government, combined with slower economic growth in the wake of the 

crisis, pushed the debt-to-GDP ratio up to 74 percent by the end of FY 2014.

• The debt was 76 percent of GDP at the end of FY 2017.20

 2010/20/2017 press release: Joint Statement of OMB Director, Mick Mulvaney and Treasury Secretary, Steven T. Mnuchin.
 MANAGEMENT’S DISCUSSION AND ANALYSIS 20

The Economy in Fiscal Year 2017 

A review of the nation’s key 

macroeconomic indicators can 

help place the discussion of the 

Government’s financial results in 

a broader context. As summarized 

in Table 5, the economic 

expansion accelerated during FY 

2017 and the economy continued 

to generate jobs, though at a 

slower pace. The unemployment 

rate trended lower, and by the end 

of the fiscal year, stood at its

lowest level since February 2001.

Real (i.e., inflation-adjusted) GDP expanded 2.3 percent during FY 2017, accelerating from the 1.5 percent advance

recorded over the four quarters of FY 2016. The acceleration reflected a rebound in business fixed investment, particularly in 

the energy sector, a significant contribution from net exports, and a small contribution from inventory investment. Growth of 

consumer spending remained strong, growing 2.6 percent in FY 2017 compared with a rise of 2.8 percent in FY 2016.

Recovery in the housing sector continued through the fiscal year, but at a slower pace, with residential fixed investment 

increasing by 1.2 percent, compared with an advance of 2.6 percent during FY 2016. Nonresidential fixed investment jumped

4.6 percent during FY 2017, reversing from a 0.7 percent decline during the previous fiscal year.

Labor market conditions improved further during FY 2017. The economy added 1.9 million nonfarm payroll jobs 

during the course of the fiscal year, compared with the 2.6 million jobs added during FY 2016. On a monthly basis, nonfarm 

payroll employment rose at an average rate of 157,000 jobs per month, somewhat less than the average monthly increase of 

219,000 in FY 2016. The number of unemployed persons declined significantly to 6.8 million in September 2017, down from 

7.9 million a year earlier. The unemployment rate declined 0.7 percentage point, from 4.9 percent in September 2016 to 4.2 

percent in September 2017. At the end of FY 2017, the unemployment rate was 5.8 percentage points lower than the peak of 

10.0 percent, reached in October 2009.

Headline inflation accelerated during FY 2017, as energy prices trended higher, but core inflation (the Consumer Price 

Index (CPI) excluding food and energy) slowed. CPI rose 2.2 percent during FY 2017, up from 1.5 percent during FY2016, 

and a flat reading in FY 2015. Underlying core inflation decelerated to 1.7 percent, compared with a reading of 2.2 percent 

during FY 2016.

Growth of real disposable (i.e., after-tax) personal income was stable during FY 2017, as a small pickup in growth of 

nominal disposable personal income was partially offset by faster inflation. The level of corporate profits grew 5.4 percent 

during FY 2017, after a decline of 1.6 percent during the previous fiscal year.
 21 MANAGEMENT’S DISCUSSION AND ANALYSIS 

The Long-Term Fiscal Outlook: “Where We Are Headed” 

An important purpose of the Financial Report is to help citizens understand current fiscal policy and the importance and 

magnitude of policy reforms necessary to make it sustainable. This Financial Report includes the Statements of Long-Term 

Fiscal Projections and a related Note Disclosure (Note 23). The Statements display the present value of 75-year projections 

of the federal government’s receipts and non-interest spending21 for FY 2017 and FY 2016. The projections and 

accompanying discussion do not reflect the Tax Cuts and Jobs Act (P.L. 115-97) enacted on December 22, 2017. Additional 

information about these projections may be found in Note 23 and the RSI section of this Financial Report; and additional 

information about the Tax Cuts and Jobs Act may be found in Note 25, Subsequent Events. 

Fiscal Sustainability

A sustainable fiscal policy is one where the debt-to-GDP ratio is stable or declining over the long term. The projections 

discussed here show the impact on the ratio if current policy (i.e., current law, with certain adjustments, such as extension of 

expiring policies that are expected to continue)22 is assumed to continue indefinitely. The projections are therefore neither 

forecasts nor predictions. As policy changes are enacted, actual financial outcomes will be different than those projected.

The projections in this Financial Report show that current policy is not sustainable. As discussed below, if current 

policy is left unchanged, the debt-to-GDP ratio is projected to fall about 4 percentage points by 2023 before commencing a 

steady rise to 297 percent in 2092 and is projected to rise continuously thereafter. Preventing the debt-to-GDP ratio from 

rising over the next 75 years is estimated to require some combination of spending reductions and revenue increases that 

amount to 2.0 percent of GDP over the period. While this estimate of the “75-year fiscal gap” is highly uncertain, it is 

nevertheless nearly certain that current fiscal policies cannot be sustained indefinitely.

Delaying action to reduce the gap increases the magnitude of spending and/or revenue changes necessary to stabilize the 

debt-to-GDP ratio. For example, reforms necessary to close the gap rises about 20 percent if reforms are delayed ten years, 

and about 50 percent larger if reform is delayed 20 years.

The estimates of the cost of policy delay assume policy does not affect GDP or other economic variables. Delaying 

fiscal adjustments for too long raises the risk that growing federal debt would increase interest rates, which would, in turn, 

reduce investment and ultimately economic growth.

The Primary Deficit, Interest, and Debt

The primary deficit – the difference between non-interest spending and receipts – is the determinant of the debt-to-GDP 

ratio over which the Government has the greatest control (the other determinants include interest rates and growth in GDP). 

Chart G shows receipts, non-interest spending, and the difference – the primary deficit – expressed as a share of GDP. The 

primary deficit-to-GDP ratio spiked during 2009 through 2012 due to the 2008-09 financial crisis and the ensuing severe 

recession, as well as the increased spending and temporary tax reductions enacted to stimulate the economy and support 

recovery. These elevated primary deficits resulted in a sharp increase in the ratio of debt to GDP, which rose from 39 percent 

at the end of 2008 to 70 percent at the end of 2012. As an economic recovery took hold, the primary deficit ratio fell, 

averaging 1.9 percent of GDP over 2013 through 2017. This primary deficit ratio was still high enough that the debt 

increased further relative to GDP, ending 2017 at 76 percent. The primary deficit is projected to shrink further through 2021

as discretionary spending limits called for in the BCA continue and the economic recovery boosts tax receipts. After 2021, 

however, increased spending for Social Security and health programs due to the ongoing retirement of the baby boom 

generation and increases in the price of health care services is projected to result in increasing primary deficits that reach 1.1

percent of GDP in 2027. The primary deficit peaks at 2.1 percent of GDP in 2037 and 2038, gradually decreases beyond that 

point as aging of the population continues at a slower pace and reaches 0.6 percent of GDP in 2088 through 2091.

Primary deficit trends are heavily influenced by tax receipts. Receipts as a share of GDP were markedly depressed in 

2009 through 2012 because of the recession and tax reductions enacted as part of the American Recovery and Reinvestment 

Act of 2009 (ARRA) and the Tax Relief, Unemployment Insurance Reauthorization, and Job Creation Act of 2010. The share 

has increased in subsequent years and was 17.2 percent in 2017, similar to its 30-year average due to continued economic 

growth and the higher tax rates enacted under the ATRA.

 21 For the purposes of the Statement of Long-Term Fiscal Projections and this analysis, spending is defined in terms of outlays. In the context of federal 

budgeting, spending can either refer to: (1) budget authority – the authority to commit the government to make a payment; (2) obligations – binding 

agreements that will result in either immediate or future payment; or (3) outlays, or actual payments made.

22 Current policy in the projections is based on current law, but includes certain adjustments, such as extension of certain policies that expire under current 

law but are routinely extended or otherwise expected to continue (e.g., reauthorization of the Supplemental Nutrition Assistance Program).
 MANAGEMENT’S DISCUSSION AND ANALYSIS 22

After 2020, receipts are projected 

to grow slightly more rapidly than 

GDP over the projection period as 

increases in real incomes cause more 

taxpayers and a larger share of income 

to fall into the higher individual 

income tax brackets.

Non-interest spending as a share 

of GDP is projected to stay at or below 

its current level of about 19 percent 

until 2025, and to then rise gradually to 

21.5 percent of GDP by 2037 and 21.8

percent of GDP in 2070 through 2092. 

Slight reductions in the non-interest 

spending share of GDP over the next 

few years are mostly due to caps on 

discretionary spending, which hold 

growth in discretionary spending 

below GDP growth. The subsequent 

increases are principally due to faster 

growth in Medicare, Medicaid, and 

Social Security spending (see Chart G). 

The aging of the baby boom generation over the next 25 years is projected to increase the Social Security, Medicare, and 

Medicaid spending shares of GDP by about 1.1 percentage points, 1.5 percentage points, and 0.5 percentage points, 

respectively. After 2042, the Social Security spending share of GDP remains relatively stable, while the combined Medicare 

and Medicaid spending share of GDP continues to increase, albeit at a slower rate, due to projected increases in health care 

costs. 

One of the most important assumptions underlying the projections is the future growth of health care costs. As 

discussed in Note 22, these future growth rates – both for health care costs in the economy generally and for Federal health 

care programs such as Medicare, Medicaid, and Affordable Care Act (ACA) exchange subsidies – are highly uncertain. In 

particular, enactment of the ACA in 2010 and the Medicare Access and CHIP Reauthorization Act (MACRA) in 2015 

established cost controls for Medicare hospital and physician payments whose long-term effectiveness is still to be 

demonstrated. The Medicare spending projections in the long-term fiscal projections are based on the projections in the 2017 

Medicare trustees’ report, which assume the ACA and MACRA cost control measures will be effective in producing a 

substantial slowdown in Medicare cost growth. As discussed in Note 22, the Medicare projections are subject to much 

uncertainty about the ultimate effects of these provisions to reduce health care cost growth. For the long-term fiscal 

projections, that uncertainty also affects the projections for Medicaid and exchange subsidies, because the cost per 

beneficiary in these programs is assumed to grow at the same reduced rate as Medicare cost growth per beneficiary.
 23 MANAGEMENT’S DISCUSSION AND ANALYSIS

The primary deficit-to-GDP projections in Chart G, projections for interest rates, and GDP growth rates are the primary 

determinants for the debt-to-GDP ratio projections shown in Chart H. That ratio was 76 percent at the end of FY 2017 and

under current policy is projected to be

74 percent in 2027, 136 percent in 

2047, and 297 percent in 2092. The 

debt-to-GDP ratio rises continually

despite primary deficits that flatten out 

because higher levels of debt lead to 

higher net interest expenditures, and 

higher net interest expenditures lead to 

higher debt.23 The continuous rise of 

the debt-to-GDP ratio after 2023 

indicates that current policy is 

unsustainable.

These debt-to-GDP projections 

are generally higher than the 

corresponding projections in both the 

FY 2016 and FY 2015 Financial 

Reports. For example, the debt-to-GDP 

projection for 2090 (the final 

projection year for the 2015 report) is 

289 percent in this year’s Financial 

Report, 249 percent in the FY 2016

Financial Report, and 223 percent in 

the FY 2015 Financial Report.

24 

Subsequent to the close of the reporting period, and after the preparation of these long-term fiscal projections, Congress 

passed and the President signed the Tax Cuts and Jobs Act (Public Law 114-411) which enacts comprehensive reforms to the 

individual and corporation income tax code. See Note 25, Subsequent Events, for more information. 

The Fiscal Gap and the Cost of Delaying Policy Reform

The 75-year fiscal gap is one measure of the degree to which current fiscal policy is unsustainable. It is the amount by 

which primary surpluses over the next 75 years must, on average, rise above current-policy levels in order for the debt-toGDP ratio in 2092 to remain at its level in 2017 (76 percent). This fiscal gap is estimated to equal 2.0 percent of GDP. The 

projections show that projected primary deficits average 1.2 percent of GDP over the next 75 years under current policies. If 

policies were adopted to eliminate the fiscal gap, the average primary surplus over the next 75 years would be 0.8 percent of

GDP, 2.0 percentage points higher than the projected present value of receipts less non-interest spending shown in the basic 

financial statement. The 75-year fiscal gap represents 10.0 percent of 75-year present value receipts and 9.4 percent of 75-

year present value non-interest spending. The fiscal gap was estimated at 1.6 percent in the 2016 Financial Report, 0.4 

percentage points lower than estimated in this Report. 

In these projections, closing the fiscal gap requires running substantially positive primary surpluses, rather than simply 

eliminating the primary deficit. The primary reason is that the projections assume future interest rates will exceed the growth 

rate of GDP. Achieving primary balance (that is, running a primary surplus of zero) implies that the debt grows each year by 

the amount of interest spending, which under these assumptions would result in debt growing faster than GDP.

Table 6 shows the 

cost of delaying policy

reform to close the fiscal 

gap by comparing policy 

reforms that begin in 

three different years. 

Immediate reform would 

require increasing 

primary surpluses by 2.0

percent of GDP on 

average between 2018

and 2092 (i.e., some combination of reducing spending and increasing revenue by a combined 2.0 percent of GDP on average

23 The change in debt each year is also affected by certain transactions not included in the budget deficit, such as changes in Treasury’s cash balances and the 

nonbudgetary activity of Federal credit financing accounts. These transactions are assumed to hold constant at about 0.4 percent of GDP each year, with the 

same effect on debt as if the primary deficit was higher by that amount.

24 See the Note 23 of the FY 2016 Financial Report of the U.S. Government for more information about changes in the long term fiscal projections between 

FY 2015 and FY 2016.
 MANAGEMENT’S DISCUSSION AND ANALYSIS 24

over the 75-year projection period). Table 6 shows that delaying policy reform forces larger and more abrupt policy reforms 

over shorter periods. For example, if policy reform is delayed by 10 years, any reforms must increase the primary surplus by 

2.4 percent of GDP on average between 2028 and 2092. Similarly, delaying reform by 20 years requires primary surplus 

increases of 3.0 percent of GDP on average between 2038 and 2092. The differences between the required primary surplus 

increases that start in 2028 and 2038 (2.4 and 3.0 percent of GDP, respectively) and that which starts in 2018 (2.0 percent of 

GDP) is a measure of the additional burden that delay would impose on future generations. Future generations are harmed by 

such a policy reform delay, because the higher the primary surplus is during their lifetimes the greater the difference is 

between the taxes they pay and the programmatic spending from which they benefit.

Conclusion

The past nine years saw the national debt nearly double as a share of GDP, bringing it to a level not seen since shortly 

after World War II. The debt-to-GDP ratio is projected to remain relatively stable over the next decade and then rise

indefinitely if current policies are unchanged, which implies that current policies are not sustainable and must ultimately 

change. As long as policy changes are not so abrupt as to hinder economic growth, the sooner policies are adopted to avert 

these trends, the smaller the changes to revenue and/or spending will need to be to achieve sustainability over the long term. 

While the estimated magnitude of the fiscal gap is subject to a substantial amount of uncertainty, there is little doubt that 

current policy is not sustainable.

These long-term fiscal projections and the topic of fiscal sustainability are discussed in further detail in Note 23 and the 

RSI section of this Financial Report.

Social Insurance 

The long-term fiscal projections reflect Government receipts and spending as a whole. The Statement of Social 

Insurance (SOSI) focuses on the Government’s “social insurance” programs: Social Security, Medicare, Railroad Retirement, 

and Black Lung. 25 For these programs, the SOSI reports: (1) the actuarial present value of all future program revenue 

(mainly taxes and premiums) - excluding interest - to be received from or on behalf of current and future participants; (2) the 

estimated future scheduled expenditures to be paid to or on behalf of current and future participants; and (3) the difference

between (1) and (2). Amounts reported in the SOSI and in the RSI section in this Financial Report are based on each 

program’s official actuarial calculations.

Table 7 summarizes amounts reported in the SOSI, showing that net social insurance expenditures are projected to be 

$49.0 trillion over 75 years as of January 1, 2017 for the “Open Group,” an increase of $2.3 billion over net expenditures of 

$46.7 trillion projected in the 2016 Financial Report.

26 The current-law 2017 amounts reported for Medicare reflect the 

physician payment levels expected under the MACRA payment rules and the ACA-mandated reductions in other Medicare 

payment rates, but not the payment reductions and/or delays that would result from trust fund depletion.27 Similarly, currentlaw projections for Social Security do not reflect benefit payment reductions and/or delays that would result from fund 

depletion. By accounting convention, the transfers of general revenues are eliminated in the consolidation of the SOSI at the 

governmentwide level and as such, the general revenues that are used to finance Medicare Parts B and D are not included in 

these calculations even though the expenditures on these programs are included. For the FY 2017 and 2016 SOSI, the 

amounts eliminated totaled $30.0 trillion and $28.7 trillion, respectively. SOSI programs and amounts are included in the 

broader fiscal sustainability analysis in the previous section, although on a slightly different basis (as described in Note 23). 

The amounts reported in the SOSI provide perspective on the Government’s long-term estimated exposures for social 

insurance programs. These amounts are not considered liabilities in an accounting context. Future benefit payments will be 

recognized as expenses and liabilities as they are incurred based on the continuation of the social insurance programs' 

provisions contained in current law. The social insurance trust funds account for all related program income and expenses. 

Medicare and Social Security taxes, premiums, and other income are credited to the funds; fund disbursements may only be 

made for benefit payments and program administrative costs. Any excess revenues are invested in special non-marketable 

U.S. Government securities at a market rate of interest. The trust funds represent the accumulated value, including interest, of 

all prior program surpluses, and provide automatic funding authority to pay cover future benefits.

 25 The Black Lung Benefits Act (BLBA) provides for monthly payments and medical benefits to coal miners totally disabled from pneumoconiosis (black 

lung disease) arising from their employment in or around the nation's coal mines. See http://www.dol.gov/owcp/regs/compliance/ca_main.htm 26'Closed' Group and 'Open' Group differ by the population included in each calculation. From the SOSI, the 'Closed' Group includes: (1) participants who 

have attained eligibility and (2) participants who have not attained eligibility. The 'Open' Group adds future participants to the 'Closed' Group. See ‘Social 

Insurance’ in the Required Supplementary Information section in this Financial Report for more information. 27 The Medicare Access and CHIP Reauthorization Act (MACRA) of 2015 permanently replaces the sustainable growth rate (SGR) formula, which was used 

to determine payment updates under the Medicare physician fee schedule with specified payment updates through 2025. The changes specified in MACRA 

also establish differential payment updates starting in 2026 based on practitioners’ participation in eligible alternative payment models; payments are also 

subject to adjustments based on the quality of care provided, resource use, use of certified electronic health records, and clinical practice improvement.
 25 MANAGEMENT’S DISCUSSION AND ANALYSIS 

 

Table 8 identifies the principal reasons for the changes in projected social insurance amounts during 2017 and 2016.

The following briefly summarizes the significant changes for the current valuation (as of January 1, 2017) as disclosed 

in Note 22, Social Insurance. See Note 22 for additional information.

• Change in valuation period (relates to both Social Security and Medicare): This change replaces a small negative net cash 

flow for 2016 with a much larger negative net cash flow for 2091. As a result, the present value of the estimated future net 

cash flows decreased (became more negative) by $2.0 trillion. 

$ %

Open Group (Net):

 Social Security (OASDI) $ (15.4) $ (14.1) $ 1.3 9.2%

Medicare (Parts A, B, & D) $ (33.5) $ (32.5) $ 1.0 3.1%

Other $ (0.1) $ (0.1) $ 0.0 0.0%

Total Social Insurance Expenditures, Net 

(Open Group) $ (49.0) $ (46.7) $ 2.3 4.9%

Total Social Insurance Expenditures, Net 

(Closed Group) $ (68.2) $ (64.9) $ 3.3 5.1%

Open Group

 Social Security (OASDI) (1.2%) (1.1%)

Medicare (Parts A, B, & D) (2.8%) (2.7%)

Other 0.0% 0.0%

Total (Open Group) (4.0% ) (3.8% )

Total (Closed Group) (5.5% ) (5.3% )

Table 7: Social Insurance Future Expenditures in Excess of Future Revenues

Dollars in Trillions 2016

Social Insurance Net Expenditures as a % of Gross Domestic Product (GDP)*

Increase / (Decrease)

Source: Statement of Social Insurance (SOSI). Amounts equal estimated present value of projected revenues 

and expenditures for scheduled benefits over the next 75 years of certain 'Social Insurance' programs (e.g., 

Social Security, Medicare). 'Open Group' totals reflect all current and projected program participants during 

the 75-year projection period. 'Closed Group' totals reflect only current participants.

2017

* GDP values used are from the 2017 & 2016 Social Security and Medicare Trustees Reports and represent the 

present value of GDP over the 75-year projection period. As the GDP used for Social Security and Medicare 

differ slightly in the Trust Fund Reports, the two values are averaged to estimate the 'Other' and Total Net 

Social Insurance Expenditures as percent of GDP.
 MANAGEMENT’S DISCUSSION AND ANALYSIS 26

• Changes in economic data and assumptions (relates to Social Security only): For the current valuation, the only change to 

any of the ultimate assumptions was to the ultimate average real wage differential,28 which was assumed to be 1.20 

percent, an approximate 0.01 percent decrease from the previous year. The assumed real-wage differential for the first 10 

years of the projection period was also lower than previous years. Otherwise, the ultimate economic assumptions for the 

current valuation period are the same as those for the prior year valuation. However, the starting economic values and the 

way these values transition to the ultimate assumptions were changed. Most significantly, an assumed weaker recovery 

from the recent recession than previously expected led to a reduction in the ultimate level of actual and potential GDP of 

about 1.0 percent for all years after the short-range period. Overall, changes to these assumptions caused the present value 

of the estimated future net cash flows to decrease (become more negative) by $576 billion.

• Change in Projection Base (relates to Medicare only): Actual income and expenditures in 2016 were different than what 

was anticipated when the 2016 Medicare Trustees Report projections were prepared. Part A income was higher and 

expenditures were lower than anticipated, based on actual experience. Part B total income and expenditures were higher 

than estimated based on actual experience. For Part D, actual income and expenditures were both lower than prior 

estimates. Actual experience of the Medicare Trust Funds between January 1, 2016 and January 1, 2017 is incorporated in 

the current valuation and is slightly more favorable than projected in the prior valuation. The net impact of the Part A, B, 

and D projection base changes is an increase (become less negative) in the estimated future net cash flow by $700 billion.

Projected net expenditures for Medicare Parts A and B declined significantly between FY 2009 and FY 2010 reflecting 

provisions of the ACA. As reported in Note 22, uncertainty remains about whether the projected cost savings and 

productivity improvements will be sustained in a manner consistent with the projected cost growth over time. Note 22

includes an alternative projection to illustrate the uncertainty of projected Medicare costs. As indicated earlier, GAO 

disclaimed opinions on the 2017, 2016, 2015, 2014 and 2013 SOSI because of these significant uncertainties.

Costs as a percent of GDP of both Medicare and Social Security, which are analyzed annually in the Medicare and 

Social Security Trustees’ Reports, are projected to increase substantially through the mid-2030s because: (1) the number of 

beneficiaries rises rapidly as the baby-boom generation retires and (2) the lower birth rates that have persisted since the baby 

boom cause slower growth in the labor force and GDP.29 According to the Medicare Trustees’ Report, spending on Medicare 

is projected to rise from its current level of 3.6 percent of GDP to 5.6 percent in 2041 and to 5.9 percent in 2091.30 As for 

Social Security, combined spending is projected to generally increase from its current level of 4.9 percent of GDP to about 

6.1 percent by 2037, declining to 5.9 percent by 2050 and then generally increase to 6.1 percent by 2091. Table 9 summarizes 

additional current status and projected trend information for the Medicare and Social Security Trust Funds.

As previously discussed and as noted in the Trustees’ Reports, it is apparent that these programs are on a fiscally 

unsustainable path. Additional information from the Trustees Reports may be found in the RSI section of this Financial 

Report.

 28 The real wage differential is the annual percentage change in the average covered wage, minus the annual percentage change in the CPI. Source: 

www.ssa.gov/oact/tr/2014/V_B_econ.html Item 4. 29 2017 Trustees Report for Medicare, pp. 5, 29. 30 Percent of GDP amounts are expressed in gross terms (including amounts financed by premiums and state transfers).
 27 MANAGEMENT’S DISCUSSION AND ANALYSIS 

Agency Audit Results, Systems, Controls, and Legal Compliance 

Audit

Since the passage of the CFO Act of 1990, the federal financial community has made significant progress in financial 

accounting and reporting. As shown in Table 10, for FY 2017, 21 of the 24 CFO Act agencies obtained an opinion from the 

independent auditors on their financial statements.

31 In addition, 45 auditor-identified material weaknesses were reported at 

the beginning of FY 2017 and 40 were reported at the end of the year. An increasing number of federal agencies have 

adopted and maintained disciplined financial reporting operations, implemented effective internal controls over financial 

reporting, and integrated transaction processing with accounting records. These efforts improved the results of financial 

statement audits. However, weaknesses in financial management practices continue to prevent three of the CFO Act agencies, 

and the Government as a whole, from achieving an audit opinion.

 31 The 21 agencies include HHS, which received unmodified (“clean”) opinions on all statements except the SOSI and the SCSIA; DOL, which received 

clean opinions on all statements except the SCSIA; and USDA, which received a clean opinion only on its balance sheet. DOE expects to issue its audited 

AFR after the release of this Financial Report. For more information, see MD&A footnote #7.
 MANAGEMENT’S DISCUSSION AND ANALYSIS 28

Systems 

Federal agencies improved, but continue to face challenges, in implementing financial management systems that meet 

federal requirements. The number of CFO Act agencies reporting lack of substantial compliance with one or more of the 

three Section 803(a) requirements of the Federal Financial Management Improvement Act (FFMIA) fell to eight in FY 2017

from nine in FY 2016, and the number of auditors reporting lack of substantial compliance with one or more of the three 

Section 803(a) FFMIA requirements fell to 10 in FY 2017 from 11 in FY 2016.32

Controls 

Federal managers are responsible for developing and maintaining effective internal controls. Internal controls help to 

ensure effective and efficient operations, reliable financial reporting, and compliance with applicable laws and regulations.

The safeguarding of assets is a goal of each of these three objectives.

In response to major management challenges to achieving their mission and goals, agencies continue to recognize the 

utility of Enterprise Risk Management (ERM) as a tool to identify, assess, mitigate, manage and prepare for risk. ERM 

contributes to risk-informed decision-making, adopting a proactive rather than a reactive approach to risk, and fostering a 

risk-aware culture. Under ERM internal controls are not limited to compliance and financial reporting. Instead, internal 

controls are a means to address management challenges that cut across multiple agency functions. ERM is currently used in 

the private and public sectors in the U.S. and internationally, including by the governments of the United Kingdom, Canada, 

and Japan. OMB has promoted ERM as a management tool and the 2016 update to OMB Circular A-123, Management’s 

Responsibility for Enterprise Risk Management and Internal Control, explains ERM and the importance of integrating ERM 

with internal control processes.

OMB Circular No. A-123 implements the requirements of 31 U.S.C. 3512 (c), (d) (commonly known as the Federal 

Managers’ Financial Integrity Act or FMFIA). The Circular’s focus for internal controls is on providing agencies a 

framework for assessing and managing risks more strategically and effectively. The Circular reflects changes incorporated in 

GAO’s updated Standards for Internal Control in the Federal Government and contains multiple appendices that address one 

or more of the objectives of effective internal control, specifically: 

• Appendix A provides a methodology for agency management to assess, document, test, and report on internal 

controls over financial reporting; 

• Appendix B requires agencies to maintain internal controls that reduce the risk of fraud, waste, and error in 

government charge card programs; 

• Appendix C implements the requirements for effective estimation and remediation of improper payments; and 

• Appendix D defines new requirements for determining compliance with the FFMIA that are intended to reduce

the cost, risk, and complexity of financial system modernizations.

As noted above, the total number of reported material weaknesses for the CFO Act agencies as of the issuance of this 

Financial Report was 4033 and 45 for FYs 2017 and 2016, respectively. Effective internal controls are a challenge at the 

agency level and at the governmentwide level, with GAO reporting that at the governmentwide level, material weaknesses 

resulted in ineffective internal control over financial reporting. While progress is being made at many agencies and across the 

Government in identifying and resolving internal control deficiencies, continued work is needed.

Legal Compliance 

Federal agencies are required to comply with a wide range of laws and regulations, including appropriations, 

employment, health and safety, among others. Responsibility for compliance rests with agency management and compliance 

is addressed as part of agency financial statement audits. Agency auditors test for compliance with selected laws and 

regulations related to financial reporting and certain individual agency audit reports contain instances of noncompliance. 

None of these instances were material to the governmentwide financial statements; however, GAO reported that its work on 

compliance with laws and regulations was limited by the material weaknesses and scope limitations discussed in its report.

 32 The FY 2017 results do not include the Department of Energy (DOE). For FY 2016, DOE and its auditor noted no lack of compliance with one or more of 

the three section 803(a) requirements of the FFMIA. The FY 2016 results include DOD, HUD, and NSF, which were pending when the FY 2016 FR was 

released; DOD, HUD, and their auditors noted lack of compliance with one or more of the FFMIA section 803(a) requirements for FY 2016. 33 The FY 2017 reported results do not include DOE, which had no material weaknesses in FY 2016. As shown in Table 10, if the number of material 

weaknesses for DOE does not change between FY 2016 and FY 2017, the total for CFO Act agencies for FY 2017 will be 40. The FY 2016 results include 

DOD, HUD, and NSF, which were pending when the FY 2016 FR was released; HUD’s material weaknesses increased by two for 2016, which was not 

reflected in the FY 2016 FR.
 29 MANAGEMENT’S DISCUSSION AND ANALYSIS 

Financial Management Progress and Priorities 

Improving the Quality, Utility, and Transparency of Federal Financial Information

The Digital Accountability and Transparency Act of 2014 (DATA Act), signed on May 9, 2014, sets forth a clear vision 

for the future of federal spending transparency. The Act amended the Federal Funding Accountability and Transparency Act 

of 2006 (FFATA) by requiring that all federal spending be displayed on a website in searchable, downloadable, and machinereadable format and by requiring publication of agency financial data.

In May 2017, OMB and Treasury launched beta.USAspending.gov, a new website connecting financial and award data 

for the first time for more than 75 federal agencies and in August 2017, OMB and Treasury submitted to Congress a report on 

the pilot to Reduce Administrative Burden required under section 5 of the DATA Act. OMB and Treasury are continuing to 

make regular improvements to the completeness of the data and quality of the display. 

In November 2017, the Government Accountability Office (GAO) and many agency Offices of Inspector General 

published audits of the quality of the data as required under the DATA Act. OMB, Treasury, and agencies are reviewing the 

results of these audits in order to make further improvements to the quality of the data and display in the coming year.

Improving the quality, utility and transparency of federal spending information reflects a commitment to openness, as 

identified in the U.S. Government’s National Action Plan for Open Government. 

Improving Program Efficiency

Payment Integrity

Addressing improper payments is necessary for legal compliance and the efficient use of financial resources. In FY 

2017, OMB analyzed program-by-program improper payment data and concluded that it was more useful than aggregate 

improper payment data. For this reason, in November 2017, PaymentAccuracy.gov was updated with program-specific 

information, and now includes both the amount of improper payments that result in a monetary loss to the government and 

the amount of improper payments that does not result in monetary loss. 

For FY 2017, there were improvements in four of the five programs with the highest payment error activity, including 

the Earned Income Tax Credit, Medicare Fee for Service (FFS), Medicaid, and Medicare Part C for both monetary and nonmonetary losses; however, in some cases these improvements were in the statistical margin of error and may not represent 

actual changes in losses. Medicare FFS showed the largest improvement, reporting $36 billion in improper payments for FY 

2017 compared to $41 billion in improper payments for FY 2016. This was primarily driven by the Centers for Medicare and 

Medicaid Services (CMS) ongoing efforts to provide more individualized provider education and clarification of Medicare 

coverage and documentation requirements. In FY 2017, agencies recovered approximately $20 billion in overpayments 

through payment recapture audits and other methods (just as in FY 2015 and 2016). 

In FY 2018, OMB will with work with agencies, the Chief Financial Officers Council (CFOC), and other stakeholders 

to develop strategies to minimize and eliminate improper payments and to develop a comprehensive strategy that finds 

customized solutions for agencies that materially contribute to improper payments rates and methods to address root causes. 

In addition, OMB will continue to rely on agency IG recommendations for additional improvements that can be made in the 

prevention of improper payments within specific programs. 

Other efforts to prevent improper payments leverage advanced data analytics and improved technologies. As part of the 

continuation of the Do Not Pay Initiative, the Treasury Working System provides agencies a single-point of entry to access 

data and matching services to help detect, prevent, and recover improper payments during the award or payment lifecycle. 

Treasury has also begun analyzing data across agencies to identify potential duplicative benefit payments in programs with 

related missions and beneficiaries. In addition, agency payment integrity tools include the CMS Fraud Prevention System 

(FPS); the Department of Defense (DOD) Business Activity Monitoring (BAM) tool; the Social Security Administration’s 

(SSA) efforts to intercept payments to beneficiaries who have died or been incarcerated; and the Department of Labor’s 

Unemployment Insurance (UI) Integrity Center of Excellence, a federal-state partnership that helps prevent, detect, and 

reduce improper payments in the UI program. 

The Treasury Working System has 56 agencies performing matches against several databases (e.g., Death Master File, 

System for Award Management, Treasury Debt Check). In FY 2017, agencies screened over $1.3 billion payments through 

the Treasury Working System using their payment integration function. While the vast majority of these payments were 

determined to be proper, the Office of Personnel Management stopped over $25 million in improper payments. In addition to 

the Treasury Working System, the agency-specific integrity centers have demonstrated solid returns. Currently, SSA has 23 

computer matching agreements that generate over $7 billion in annual savings. During FY 2016, HHS took administrative 

action against 1,044 providers and suppliers as a result of the CMS FPS, resulting in an estimated $527 million in identified

savings. For FY 2017, the DOD BAM tool prevented $1.4 billion in improper payments in DOD’s commercial payment 

systems.

Combating improper payments within the federal government is a priority for OMB and agencies who will work to 

share government data while maintaining privacy. Going forward, the goal of data transparency is to provide relevant 

granularity that makes it easier for agencies to take action on root cause issues.
 MANAGEMENT’S DISCUSSION AND ANALYSIS 30

Grants Management

The federal government awards approximately $700 billion in federal financial assistance each year to state and local 

governments and nonprofit organizations. Federal agencies have oversight responsibilities for the funds that they award to 

nonfederal entities. The effective and efficient oversight of these awards helps agencies to achieve mission success while 

protecting these resources from fraud, waste, and mismanagement and improper payment. Federal awarding agencies are 

taking measures to address areas where needed improvement in federal oversight has been identified. The Uniform 

Administrative Requirements, Cost Principles, and Audit Requirements for Federal Awards, 2 CFR 200 (Uniform Guidance), 

issued in December of 2014, is the authoritative OMB guidance governing federal financial assistance, which is comprised 

primarily of grants. 

Since adoption of the Uniform Guidance, OMB and 28 federal awarding agencies have been diligently working to 

implement these requirements. 

In addition to Uniform Guidance implementation, OMB in collaboration with the former Council on Financial 

Assistance Reform (COFAR) and the CFOC recently published the Financial Assistance Career Roadmap. This Roadmap is 

intended to serve as a resource for agencies and financial assistance professionals to ensure that they have the proper skills 

and competencies to perform their duties. OMB and COFAR also developed an interactive on-line Grant Training program, 

consisting of five modules, to aid agencies in training their staff in grant requirements and management.

Starting with FY 2015 submissions, all annual Single Audits of grantees that expend more than $750,000 in federal 

funds (approximately 38,000) have been available publicly on the Federal Audit Clearinghouse website 

(https://harvester.census.gov/facweb/Default.aspx). These compliance audits are a valuable tool for agencies and passthrough entities to monitor and manage federal funds efficiently and effectively.

OMB and the federal awarding agencies are committed to working together to continue to ensure that the government 

promotes effective stewardship over its federal financial assistance funds. 

Enhancing Program Efficiency through Mission Support 

Mission Support Services and Financial IT 

The federal financial management infrastructure exists in a complex environment of legacy information technology, 

customized tools built to unique requirements, and business processes, that do not fully leverage modern technology. The 

sharing of financial technology and services has been successful for smaller agencies, but has not met expectations for larger 

agencies. A cross-agency subgroup of the CFOC developed the core business framework for financial management that was 

used in the fall of 2017 to explore industry capabilities for smarter use of technology in federal financial management. This

information will be included in overall efforts to develop and implement recommendations and solutions that can improve 

federal financial management. 

Efficient Use of Real Property Assets 

The federal domestic building inventory is diverse and contains 252,000 buildings requiring approximately $18.8 billion 

in annual operation and maintenance expenditures, including approximately $7.3 billion in annual lease costs. The domestic 

portfolio is 2.6 billion square feet in size and the total replacement value of the government’s 232,000 owned buildings is 

approximately $1 trillion, with a repair need of $115 billion. Within both the owned and leased inventories, there are 

opportunities to realize cost savings by utilizing space more efficiently and reducing the portfolio. In 2013, the “Freeze the 

Footprint” (FTF) Policy (OMB Management Procedures Memorandum 2013-02) was issued, requiring agencies to freeze 

their real property footprint. From FY 2013 to FY 2015, when the FTF policy expired, agencies reduced their federal 

domestic office and warehouse space by 24.7 million square feet. OMB estimates that this 24.7 million square foot reduction 

will generate $370 million of annual cost avoidance for the government from FY 2016 onward. To improve the quality of 

federal real property data in annual Performance and Accountability Reports (PARs) or Agency Financial Reports (AFRs), 

agencies were required to validate and report “Freeze the Footprint” square footage and associated operations and 

maintenance costs in their 2014 through 2016 PARs or AFRs.

In FY 2017, the Government issued the National Strategy for the Efficient Use of Real Property (Strategy) and its 

companion implementation policy, the Reduce the Footprint (RTF) policy. The Strategy provides a strategic framework for 

agencies to measure the efficiency of their real property portfolios in order to identify and prioritize efficiency actions that 

reduce portfolio size and cost.

The RTF policy requires that agencies reduce the size of the federal real property portfolios to improve utilization of 

government-owned buildings and reduce reliance on leasing, lower the number of excess and underutilized properties, and 

improve the cost effectiveness and efficiency of the federal real property portfolio. Agencies have developed and annually 

update five-year Real Property Efficiency Plans (Plans) to identify reductions to their portfolios over a five-year time-period. 

In FY 2016, agencies reduced their FY 2015 RTF baselines by 11.2 million square feet, resulting in an annual estimated cost 

avoidance of $100 million. During the FY 2017 to FY 2021 timeframe, the agencies’ Plans target a net office and warehouse 

reduction of 22.4 million square feet and a reduction of 49.4 million square feet in owned space. The magnitude of the 

reduction targets indicates that the Strategy and RTF policy will be effective tools to improve the efficiency of the 
 31 MANAGEMENT’S DISCUSSION AND ANALYSIS

Government’s real property portfolio. Agencies will update their Plans and annual reduction targets in March of 2018. 

Agencies will continue to validate square footage and operations and maintenance costs in their PARs or AFRs under RTF.

Efficiency will be further improved by OMB’s implementation of the Federal Assets Sale and Transfer Act of 2016 

(FASTA) and the Federal Property Management Reform Act of 2016 (FPMRA). The RTF Plans help the agencies identify 

projects appropriate for inclusion in the FASTA process. To date, OMB has met all of its responsibilities under FASTA and 

FPMRA by the required deadlines.

To support increased reduction targets, the General Services Administration and OMB have developed a new 

management tool within the Federal Real Property Profile (FRPP) database that enables agencies to fully analyze the 

efficiency of their portfolios and to collocate with other agencies. The new management tool uses real property performance 

metrics to measure the efficiency of agencies’ portfolios and thereby enable the identification and prioritization of 

improvement opportunities. The management tool and the improved FRPP data quality resulting from the implementation of 

GSA’s technical guidance issued in FY 2017 (to establish mandatory FRPP data validation and verification requirements), 

will enhance agencies’ abilities to implement data driven decision making when developing their annual RTF reduction 

targets. Focusing policy on reducing the portfolio, improving the quality of FRPP data through mandatory data validation and 

verification procedures, and the broad use of the new FRPP management tool will support higher RTF square foot reduction

targets and efficiency gains in future years.

Conclusion 

The federal government has seen significant progress in financial management since the passage of the CFO Act more 

than 20 years ago; yet significant challenges remain. The issues that the federal government faces today require financial 

managers to move beyond the status quo and improve both the efficiency and effectiveness of financial management 

activities. The steps outlined above leverage the tools and capacities that are in place today, and refocus energies on critical 

and emerging priorities – cutting wasteful spending, improving the efficiency of our operations and information technology, 

and laying a foundation for improved data quality and collaboration.

Additional Information

This Financial Report’s Appendix contains the names and websites of the significant Government entities included in 

the Financial Report’s financial statements. Details about the information in this Financial Report can be found in these 

entities’ financial statements included in their Performance and Accountability and Agency Financial Reports. This Financial 

Report, as well as those from previous years, is also available at the Treasury, OMB, and GAO websites at: 

http://www.fiscal.treasury.gov/reports-statements/financial-report/; https://www.whitehouse.gov/omb/management/officefederal-financial-management/; and http://www.gao.gov/financial.html, respectively. Other related Government publications 

include, but are not limited to the: 

• Budget of the United States Government,

• Treasury Bulletin,

• Monthly Treasury Statement of Receipts and Outlays of the United States Government,

• Monthly Statement of the Public Debt of the United States,

• Economic Report of the President, and

• Trustees’ Reports for the Social Security and Medicare Programs.

Limitations of the Financial Statements

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

results of operations of the federal government; the financial condition and changes in financial 

condition of its social insurance programs; and the federal government’s projected long-term 

trends in receipts, spending, and debt, pursuant to the requirements of 31 U.S.C. § 331(e)(1). 

These statements are in addition to the financial reports used to monitor and control budgetary 

resources that are prepared from the same books and records.
 STATEMENT OF THE COMPTROLLER GENERAL OF THE UNITED STATES 32

February 15, 2018

The President

The President of the Senate

The Speaker of the House of Representatives

To operate as effectively and efficiently as possible, Congress, the administration, and federal 

managers must have ready access to reliable and complete financial and performance information—

both for individual federal entities and for the federal government as a whole. Our report on the U.S. 

government’s consolidated financial statements for fiscal years 2017 and 2016 underscores that much 

work remains to improve federal financial management and that the federal government continues to 

face an unsustainable long-term fiscal path.

Our audit report on the U.S. government’s consolidated financial statements is enclosed. In summary, 

we found the following: 

• Certain material weaknesses1 in internal control over financial reporting and other limitations on the 

scope of our work resulted in conditions that prevented us from expressing an opinion on the 

accrual-based consolidated financial statements as of and for the fiscal years ended September 30, 

2017, and 2016.2 About 38 percent of the federal government’s reported total assets as of 

September 30, 2017, and approximately 20 percent of the federal government’s reported net cost 

for fiscal year 2017 relate to significant federal entities that as of the date of our audit report, were 

unable to issue audited financial statements, were unable to receive audit opinions on the complete 

set of financial statements, or received a disclaimer of opinion on their fiscal year 2017 financial 

statements.3

• Significant uncertainties (discussed in Note 22 to the consolidated financial statements), primarily 

related to the achievement of projected reductions in Medicare cost growth, prevented us from 

 1

A material weakness is a deficiency, or combination of deficiencies, in internal control over financial reporting, such that there 

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

and corrected, on a timely basis. A deficiency in internal control exists when the design or operation of a control does not allow 

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

misstatements on a timely basis.

2

The accrual-based consolidated financial statements as of and for the fiscal years ended September 30, 2017, and 2016, 

consist of the (1) Statements of Net Cost, (2) Statements of Operations and Changes in Net Position, 

(3) Reconciliations of Net Operating Cost and Budget Deficit, (4) Statements of Changes in Cash Balance from Budget and 

Other Activities, and (5) Balance Sheets, including the related notes to these financial statements. Most revenues are recorded 

on a modified cash basis. 

3

As of the date of this audit report, the audited fiscal year 2017 financial statements for the Department of Energy were not 

issued. The Department of Agriculture obtained an unmodified opinion on its consolidated balance sheet as of September 30, 

2017, but its consolidated statement of net cost, consolidated statement of changes in net position, combined statement of 

budgetary resources, and the related notes for the fiscal year ended September 30, 2017, were not audited. The Department 

of Defense, the Department of Housing and Urban Development, and the Railroad Retirement Board each received a 

disclaimer of opinion on their respective fiscal year 2017 financial statements.
33 STATEMENT OF THE COMPTROLLER GENERAL OF THE UNITED STATES 

expressing an opinion on the sustainability financial statements,4 which consist of the 2017 and 

2016 Statements of Long-Term Fiscal Projections;5 the 2017, 2016, 2015, 2014, and 2013 

Statements of Social Insurance;6 and the 2017 and 2016 Statements of Changes in Social 

Insurance Amounts. About $33.7 trillion, or 68.7 percent, of the reported total present value of 

future expenditures in excess of future revenue presented in the 2017 Statement of Social 

Insurance relates to Medicare programs reported in the Department of Health and Human Services’ 

2017 Statement of Social Insurance, which received a disclaimer of opinion. A material weakness in 

internal control also prevented us from expressing an opinion on the 2017 and 2016 Statements of 

Long-Term Fiscal Projections. 

• Material weaknesses resulted in ineffective internal control over financial reporting for fiscal year 

2017.

• Material weaknesses and other scope limitations discussed in our audit report limited tests of 

compliance with selected provisions of applicable laws, regulations, contracts, and grant 

agreements for fiscal year 2017.

Overall, significant progress has been made in improving federal financial management since the 

enactment of key federal financial management reforms in the 1990s. With few exceptions, all of the 24 

Chief Financial Officers Act of 1990 (CFO Act) agencies received unmodified (“clean”) opinions on their 

respective entities’ fiscal year 2017 financial statements, up from 6 CFO Act agencies that received 

clean audit opinions for fiscal year 1996. In addition, accounting and financial reporting standards have 

continued to evolve to provide greater transparency and accountability over the federal government’s 

operations, financial condition, and fiscal outlook. Further, the preparation and audit of individual federal 

entities’ financial statements have identified numerous deficiencies, leading to corrective actions to 

strengthen federal entities’ internal controls, processes, and systems. 

However, since the federal government began preparing consolidated financial statements over 20 

years ago, three major impediments have continued to prevent us from rendering an opinion on the 

federal government’s accrual-based consolidated financial statements over this period: (1) serious 

financial management problems at the Department of Defense (DOD) that have prevented its financial 

statements from being auditable, (2) the federal government’s inability to adequately account for and 

reconcile intragovernmental activity and balances between federal entities, and (3) the federal 

government’s ineffective process for preparing the consolidated financial statements. 

 4

The sustainability financial statements are based on projections of future receipts and spending, while the accrual-based 

consolidated financial statements are based on historical information, including the federal government’s assets, liabilities, 

revenue and net cost.

5

The Statements of Long-Term Fiscal Projections for fiscal years 2017 and 2016 present, for all the activities of the federal 

government, the present value of projected receipts and non-interest spending under current policy without change, the 

relationship of these amounts to projected gross domestic product (GDP), and changes in the present value of projected 

receipts and non-interest spending from the prior year. The valuation date for the Statements of Long-Term Fiscal Projections 

is September 30.

6

Statements of Social Insurance are presented for the current year and each of the 4 preceding years as required by U.S. 

generally accepted accounting principles. For the Statements of Social Insurance, the valuation date is January 1 for the 

Social Security and Medicare programs, October 1 for the Railroad Retirement program (January 1 for fiscal years 2013, 2014, 

and 2015), and September 30 for the Black Lung program.
 STATEMENT OF THE COMPTROLLER GENERAL OF THE UNITED STATES 34

Following years of unsuccessful financial improvement efforts at DOD and consistently being unable to 

receive an audit opinion on its financial statements, the DOD Comptroller established the Financial 

Improvement and Audit Readiness (FIAR) Directorate to develop, manage, and implement a strategic 

approach for addressing internal control weaknesses and for achieving auditability, and to integrate 

those efforts with other improvement activities, such as the department’s business systems 

modernization efforts. Until recently, DOD’s FIAR strategy and methodology focused on several 

priorities with an overall goal of having its department-wide financial statements audit ready by 

September 30, 2017.7 Because budgetary information is widely and regularly used for management, 

one of DOD’s highest priorities was to improve its budgetary information and processes underlying its 

Statement of Budgetary Resources (SBR).

Because of difficulties in supporting beginning balances, DOD decided to limit the scope of the firstyear SBR audits. Specifically, the scope of these initial SBR audits focused on current-year budget 

activity, which was reported on a Schedule of Budgetary Activity (SBA).8 This was intended to be an 

interim step toward achieving the audit of multiple-year budget activity required for an audit of the SBR. 

The Departments of the Army, Navy, and Air Force underwent their first SBA audits for fiscal year 2015. 

These DOD components’ SBAs were again audited for fiscal year 2016 but with an expanded scope 

that included beginning balances carried over from fiscal year 2015. Independent public accountants 

(IPA) issued disclaimers of opinion for all three DOD components’ SBAs for both of these fiscal years 

and identified material weaknesses in internal control at all three DOD components.9

For fiscal year 2017, the Army, Navy, and Air Force underwent differing levels of financial audits or 

examinations as noted in the following. 

• The Army expanded its scope to a SBR audit for both its General Fund and Working Capital Fund. 

The Army also had line item examinations conducted for its General Equipment and Operating 

Materials and Supplies and an examination of the design of the internal controls over its system 

supporting the delivery of munitions inventory management services. The audits of the Army’s 

General Fund and Working Capital Fund SBRs and the line item examinations resulted in 

disclaimers of opinion. The internal control examination concluded that internal controls were not 

suitably designed.

• The Air Force underwent another SBA audit for fiscal year 2017, which resulted in a disclaimer of 

opinion.

• The Navy had reviews of selected closing balances as of September 30, 2017, for its General Fund 

and Working Capital Fund Balance Sheets. The IPA reported on the detailed audit procedures 

performed and the respective observations for each of the significant line items, including numerous 

findings and recommendations to address them.

 7

Section 1003 of the National Defense Authorization Act for Fiscal Year 2010, Pub. L. No. 111-84, 123 Stat. 2190, 2439-41 

(Oct. 28, 2009), made the development and maintenance of the FIAR Plan a statutory requirement. Under the act, the FIAR 

Plan must describe specific actions to be taken and the costs associated with ensuring that DOD’s financial statements are 

validated as ready for audit by September 30, 2017. In addition, section 1005 of the National Defense Authorization Act for 

Fiscal Year 2013, Pub. L. No. 112-239, 126 Stat. 1632, 1904-05 (Jan. 2, 2013), enacted a requirement for DOD’s FIAR Plan to 

describe specific actions to be taken and the costs associated with ensuring that one of DOD’s financial statements, the 

Statement of Budgetary Resources, would be validated as ready for audit by September 30, 2014, but DOD has 

acknowledged that it did not meet this target date. Subsequently, section 1003 of the National Defense Authorization Act for 

Fiscal Year 2014, Pub. L. No. 113-66, 127 Stat. 672, 842 (Dec. 26, 2013) (reprinted in 10 U.S.C. § 2222 note), mandated an 

audit of DOD’s fiscal year 2018 financial statements and that the audit results be submitted to Congress by March 31, 2019.

8

Unlike the SBR, which reflects multiple-year budget activity, the SBA reflects the balances and associated activity related only 

to funding from fiscal year 2015 forward. As a result, the SBAs exclude unobligated and unexpended amounts carried over 

from funding prior to fiscal year 2015 as well as information on the status and use of such funding (e.g., obligations incurred 

and outlays) in fiscal year 2015 and thereafter.

9

Disclaimer of opinion means that the auditors were unable to express an opinion because of a lack of sufficient evidence to 

support the amounts presented. 
35 STATEMENT OF THE COMPTROLLER GENERAL OF THE UNITED STATES 

While DOD made some progress closing notices of findings and recommendations issued in prior 

years, the IPAs that performed the above-noted fiscal year 2017 financial audits or examinations issued 

or reissued hundreds of notices of findings and recommendations for corrective actions to address 

financial reporting and information system control deficiencies.

In its November 2017 FIAR Plan Status Report, DOD stated that it will undergo a DOD-wide 

consolidated financial statement audit for fiscal year 2018. As a result, the focus of DOD’s strategy for 

achieving a clean opinion on its financial statements and improving overall financial management has 

shifted from preparing for audit readiness to undergoing a full financial statement audit and remediating 

audit findings. DOD stated that undergoing financial statement audits will be valuable for a number of 

reasons, including the following.

• Audits will provide management with independent validation and feedback on the effectiveness of 

DOD business systems, processes, and controls. 

• Component managers will use audit information to identify root causes of deficiencies and prioritize 

remediation work. 

• DOD leadership will be able to use root cause information to manage risk and make strategic 

decisions.

• Audits will ensure that DOD leadership has visibility over quantities, locations, and conditions of 

DOD property, which affects readiness, as well as programming and budgeting decisions.

DOD acknowledged that achieving a clean audit opinion will take time. However, it stated that over the 

next several years, the closure of audit findings will serve as an objective measure of progress toward 

that goal.

Various efforts are also under way to address the other two major impediments to an audit of the 

consolidated financial statements. For example, during fiscal year 2017, the Department of the 

Treasury (Treasury) continued to actively work with significant federal entities10 to resolve differences in 

intragovernmental activity and balances between federal entities through its quarterly scorecard 

process.11 This process highlights differences requiring the entities’ attention, identifies differences that 

need to be resolved through a formal dispute resolution process,12 and reinforces the entities’ 

responsibilities to resolve intragovernmental differences. Treasury also continues to develop and refine 

policies and procedures over accounting for and reporting all significant activity and balances of the 

General Fund of the U.S. Government (General Fund),13 and continues to improve its reconciliation 

process of the activity and balances between the General Fund and federal entity trading partners. 

Further, for the first time, Treasury will prepare and GAO will audit the Schedules of the General Fund, 

which will include activity and balances for fiscal year 2018. Over the past few years, Treasury’s 

corrective actions have included implementing new systems for compiling the consolidated financial 

 10The Office of Management and Budget and Treasury have identified 39 federal entities that are significant to the U.S. 

government’s fiscal year 2017 consolidated financial statements, including the 24 CFO Act agencies. See Treasury Financial 

Manual, vol. I, pt. 2, ch. 4700, for a listing of the 39 entities.

11For each quarter, Treasury produces a scorecard for each significant entity that reports various aspects of the entity’s 

intragovernmental differences with its trading partners, including the composition of the differences by trading partner and 

category. Entities are expected to resolve, with their respective trading partners, the differences identified in their scorecards.

12When an entity and its respective trading partner cannot resolve an intragovernmental difference, the entity must request that 

Treasury resolve the dispute. Treasury will review the dispute and issue a decision on how to resolve the difference, which the 

entities must follow.

13The General Fund is a component of Treasury’s central accounting function. It is a stand-alone reporting entity that 

comprises the activities fundamental to funding the federal government (e.g., issued budget authority, cash activity, and debt 

financing activities). 
 STATEMENT OF THE COMPTROLLER GENERAL OF THE UNITED STATES 36

statements, improving guidance for collecting data from component entities, and implementing new or 

enhanced procedures to address certain internal control deficiencies detailed in our previously issued 

management report.14 In addition to continued leadership by Treasury and the Office of Management 

and Budget (OMB), strong and sustained commitment by federal entities is critical to fully address 

these issues. 

The material weaknesses underlying these three major impediments have continued to 

(1) hamper the federal government’s ability to reliably report a significant portion of its assets, liabilities, 

costs, and other related information; (2) affect the federal government’s ability to reliably measure the 

full cost, as well as the financial and nonfinancial performance, of certain programs and activities; (3) 

impair the federal government’s ability to adequately safeguard significant assets and properly record 

various transactions; and (4) hinder the federal government from having reliable financial information to 

operate in an efficient and effective manner. Over the years, we have made a number of 

recommendations to OMB, Treasury, and DOD to address these issues.15 These entities have taken or 

plan to take actions to address these recommendations.

In addition to the material weaknesses referred to above, we identified three other material 

weaknesses. These are the federal government’s inability to (1) determine the full extent to which 

improper payments occur and reasonably assure that appropriate actions are taken to reduce them, (2) 

identify and resolve information security control deficiencies and manage information security risks on 

an ongoing basis, and (3) effectively manage its tax collection activities. Our audit report presents 

additional details concerning these material weaknesses and their effect on the accrual-based 

consolidated financial statements and on the management of federal government operations. Until the 

problems outlined in our audit report are adequately addressed, they will continue to have adverse 

implications for the federal government and American taxpayers.

Further, there are several issues that could impact the federal government’s financial position and 

condition and its financial management in the future, including (1) financial and other risks, (2) the 

quality of spending data, and (3) the unsustainability of the federal government’s fiscal path. Financial 

risk factors that could affect the federal government’s financial condition in the future include the 

following.

• The Pension Benefit Guaranty Corporation’s (PBGC) financial future is uncertain because of longterm challenges related to PBGC’s governance and funding structure. PBGC’s liabilities exceeded 

its assets by almost $76 billion as of the end of fiscal year 2017—an increase of about $40 billion 

from the end of fiscal year 2013. PBGC reported that it is subject to potential further losses of $252 

billion if plan terminations occur that are considered reasonably possible.

• In 2008, during the financial crisis, the federal government placed the Federal National Mortgage 

Association (Fannie Mae) and the Federal Home Loan Mortgage Corporation (Freddie Mac) under 

conservatorship and entered into preferred stock purchase agreements with these governmentsponsored enterprises (GSE) to help ensure their financial stability. The agreements with the GSEs 

could affect the federal government’s financial position. At the end of fiscal year 2017, the federal 

government continued to report about $93 billion of investments in the GSEs, which is net of about 

$102 billion in valuation losses. The GSEs paid Treasury cash dividends of $25.3 billion and $11.5 

billion during fiscal years 2017 and 2016, respectively. The reported maximum remaining 

contractual commitment to the GSEs, if needed, is $258.1 billion. Importantly, the ultimate role of 

the GSEs in the mortgage market could affect the financial condition of the Federal Housing 

 14GAO, Management Report: Improvements Needed in Controls over the Processes Used to Prepare the U.S. Consolidated 

Financial Statements, GAO-17-524 (Washington, D.C.: July 12, 2017). 

15See GAO-17-524. In addition, see GAO, DOD Financial Management – High Risk Issue, accessed February 9, 2018, 

http://www.gao.gov/key_issues/dod_financial_management/issue_summary#t=1. Further, other auditors have made 

recommendations to DOD for improving its financial management.
37 STATEMENT OF THE COMPTROLLER GENERAL OF THE UNITED STATES 

Administration, which in the past expanded its lending role in distressed housing and mortgage 

markets. 

• The U.S. Postal Service (USPS) continues to be in poor financial condition, with a reported net loss 

of $2.7 billion in fiscal year 2017, its 11th consecutive year of net losses totaling $65.1 billion over 

the period. USPS’s business model continues to put it at risk of not being able to sufficiently fund its 

services and financial obligations.16

• We have reported that the Federal Emergency Management Agency (FEMA), which administers 

the National Flood Insurance Program, likely will not be able to repay its debt to Treasury from 

premiums collected from policyholders.17 FEMA owed $30.4 billion as of the end of fiscal year 2017 

to Treasury for money borrowed to pay claims and other expenses, including $1.6 billion borrowed 

following a series of floods in 2016. In response to the disaster assistance needed as a result of the 

hurricane season in 2017, in October 2017, the Additional Supplemental Appropriations for Disaster 

Relief Requirements Act, 2017, among other things, canceled $16 billion of FEMA’s debt to 

Treasury for the National Flood Insurance Program.18

Every 2 years, GAO provides Congress with an update on its High-Risk Series, which highlights federal 

entities and program areas that are at high risk due to their vulnerabilities to fraud, waste, abuse, and 

mismanagement or are most in need of broad reform. We issued our most recently updated High-Risk 

Series on February 15, 2017.19 GAO’s High-Risk Series includes most of the above-noted issues, such 

as DOD financial management, ensuring the security of federal information systems and cyber critical 

infrastructure and protecting the privacy of personally identifiable information, the PBGC insurance 

programs, modernizing the U.S. financial regulatory system and the federal role in housing finance, 

restructuring the USPS to achieve sustainable financial viability, and the National Flood Insurance 

Program.

The Digital Accountability and Transparency Act of 2014 (DATA Act) continues to hold great promise 

for improving the transparency and accountability of federal spending data by providing consistent, 

reliable, and complete data on federal spending, which will assist decision makers in addressing the 

federal government’s fiscal challenges. Full implementation of the DATA Act will enable federal 

agencies to report information that complements the annual audited financial statements by providing 

much more detailed information on federal program spending and the activities of those programs. 

OMB and Treasury have taken significant steps toward implementing the DATA Act’s various 

requirements and addressing our related recommendations. 

In May 2017, more than 78 federal agencies, including all 24 CFO Act agencies, submitted their second 

quarter fiscal year 2017 data, as required by the DATA Act, reporting almost $3 trillion in obligations. 

However, as we reported in November 2017,20 there were issues and challenges with the 

completeness and accuracy of the data submitted, use of data elements, and presentation of the data 

on Beta.USAspending.gov. In order to fully and effectively implement the DATA Act, the federal 

 16GAO, U.S. Postal Service’s Financial Viability – High Risk Issue, accessed February 9, 2018, 

http://www.gao.gov/key_issues/us_postal_service_financial_viability/issue_summary.

17GAO, Flood Insurance: Comprehensive Reform Could Improve Solvency and Enhance Resilience, GAO-17-425 

(Washington, D.C.: Apr. 27, 2017).

18Additional Supplemental Appropriations for Disaster Relief Requirements Act, 2017, Pub. L. No. 115-72, § 308(a), 131 Stat. 

1224, 1228-29 (Oct. 26, 2017).

19GAO, High-Risk Series: Progress on Many High-Risk Areas, While Substantial Efforts Needed on Others, GAO-17-317 

(Washington, D.C.: Feb. 15, 2017).

20GAO, DATA Act: OMB, Treasury, and Agencies Need to Improve Completeness and Accuracy of Spending Data and 

Disclose Limitations, GAO-18-138 (Washington, D.C.: Nov. 8, 2017).
 STATEMENT OF THE COMPTROLLER GENERAL OF THE UNITED STATES 38

government will need to continue addressing complex policy and technical issues. These issues include 

clarifying compliance and reporting guidance and the disclosure of data quality issues on the website.

The 2017 Statement of Long-Term Fiscal Projections and related information in Note 23 and in the 

unaudited Required Supplementary Information section of the Fiscal Year 2017 Financial Report of the 

United States Government (2017 Financial Report) show that absent policy changes, the federal 

government continues to face an unsustainable long-term fiscal path. Over the long term, the 

imbalance between spending and revenue that is built into current law and policy is projected to lead to 

continued growth of the deficit and debt held by the public as a share of gross domestic product (GDP). 

This situation—in which debt grows faster than GDP—means the current federal fiscal path is 

unsustainable.21

GAO and the Congressional Budget Office (CBO) prepare long-term federal fiscal simulations, which 

also continue to show debt held by the public rising as a share of GDP in the long term.22 GAO, CBO, 

and the 2017 Statement of Long-Term Fiscal Projections all project that debt held by the public as a 

share of GDP will surpass its historical high (106 percent in 1946) within the next 14 to 22 years. The 

Tax Cuts and Jobs Act will hold important implications for this timeframe. Health care spending is a key 

programmatic and policy driver of the long-term outlook on the spending side of the budget. Eventually, 

however, spending on net interest is projected to become the largest category of spending in both the 

Statement of Long-Term Fiscal Projections and GAO’s simulations.

All of these long-term projections each use somewhat different assumptions, but their results are the 

same; absent policy changes, the federal government’s fiscal path is unsustainable. Reliable and 

complete financial information for federal entities will be needed for making policy changes that 

effectively address the unsustainable long-term fiscal path. GAO plans to issue an update to its report 

on the fiscal health of the federal government.23

One cannot overstate the importance of preserving the confidence that investors have that debt backed 

by the full faith and credit of the United States will be honored. Failure to increase (or suspend) the debt 

limit in a timely manner could have serious negative consequences for the Treasury market and 

increase borrowing costs. Since December 9, 2017, Treasury had been taking extraordinary actions to 

continue funding government activities until the debt limit was addressed.24 The Bipartisan Budget Act 

of 2018 temporarily suspended the debt limit from February 9, 2018, through March 1, 2019.25

As we have previously reported, the debt limit does not restrict Congress’s ability to enact spending and 

revenue legislation that affects the level of federal debt; nor does it otherwise constrain fiscal policy. 

 21The 2017 Statement of Long-Term Fiscal Projections is based on current policy as of September 30, 2017. Therefore, the 

2017 projections, related footnotes, and Required Supplementary Information do not reflect the effects of the Tax Cuts and 

Jobs Act, Pub. L. No. 115-97, 131 Stat. 2054, enacted on December 22, 2017, or any other legislation enacted after 

September 30, 2017 that changes policy that was in effect as of the end of the fiscal year. Management notes that next year’s

2018 Statement of Long-Term Fiscal Projections in the Financial Report will incorporate the effects of such legislation enacted 

after September 30, 2017, based on an updated economic forecast and other economic developments.

22Similar to the 2017 Statement of Long-Term Fiscal Projections, GAO and CBO simulations also do not reflect the effects of 

the Tax Cuts and Jobs Act or other legislation enacted after September 30, 2017. For more information on GAO’s simulations, 

see GAO, The Nation’s Fiscal Health: Action is Needed to Address the Federal Government’s Fiscal Future, GAO-17-237SP 

(Washington, D.C.: Jan. 17, 2017). For more information on CBO’s simulations, see Congressional Budget Office, The 2017 

Long-Term Budget Outlook (Washington, D.C.: March 2017). 

23GAO-17-237SP.

24Actions that are not part of Treasury’s normal cash and debt management operations are considered “extraordinary actions” 

by Treasury.

25Section 30301 of Division C, “Temporary Extension of the Public Debt Limit,” of the Bipartisan Budget Act of 2018, Pub. L. 

No. 115-123, div. C, tit. III, § 30301, 132 Stat. 64 (Feb. 9, 2018), temporarily suspended the statutory debt limit.
39 STATEMENT OF THE COMPTROLLER GENERAL OF THE UNITED STATES 

Rather, the debt limit is an after-the-fact measure; the spending and tax laws that result in debt have 

already been enacted. In other words, the debt limit restricts Treasury’s authority to borrow to finance 

the decisions already enacted by Congress and the President.26 U.S. Treasury securities play a vital 

role in the U.S. and global financial markets, to a great extent because of their large, liquid, and 

transparent market and because investors are confident that debt backed by the full faith and credit of 

the United States will be honored. Because Treasury securities are viewed as one of the safest assets 

in the world, they are broadly held by individuals—often in pension funds or mutual funds—and by 

institutions and central banks for use in everyday transactions. 

Treasury securities serve as a close substitute for cash for financial institutions and corporate 

treasurers, are one of the cheapest and most widely used forms of collateral for financial transactions, 

and are the basis for pricing many financial products, such as corporate bonds, derivatives, and 

mortgages. In many ways, U.S. Treasury securities are the underpinning of the world financial system. 

As we have also previously reported, delays in raising the debt limit can create uncertainty in the 

Treasury market. To avoid such uncertainty and the disruption to the Treasury market that it creates, as 

well as to help inform the fiscal policy debate in a timely way, we have suggested that Congress should 

consider ways to better link decisions about the debt limit with decisions about spending and revenue at 

the time those decisions are made.27

_________________________

Our audit report on the U.S. government’s consolidated financial statements would not be possible 

without the commitment and professionalism of inspectors general throughout the federal government 

who are responsible for annually auditing the financial statements of individual federal entities. We also 

appreciate the cooperation and assistance of Treasury and OMB officials as well as the federal entities’ 

chief financial officers. We look forward to continuing to work with these individuals, the administration, 

and Congress to achieve the goals and objectives of federal financial management reform.

Our audit report begins on page 218. Our guide, Understanding the Financial Report of the United 

States Government, is intended to help those who seek to obtain a better understanding of the 

Financial Report and is available on GAO’s website at http://www.gao.gov.

28 In addition, the website 

includes a guide to understanding the differences between accrual and generally cash-based budget 

measures and provides a useful perspective on the different purposes that cash and accrual measures 

serve in providing a comprehensive picture of the federal government’s fiscal condition today and over 

time.29

 26GAO, Debt Limit: Analysis of 2011-2012 Actions Taken and Effect of Delayed Increase on Borrowing Costs, GAO- 12-701 

(Washington, D.C.: July 23, 2012), and Debt Limit: Delays Create Debt Management Challenges and Increase Uncertainty in 

the Treasury Market, GAO-11-203 (Washington, D.C.: Feb. 22, 2011).

27GAO-12-701 and GAO-11-203.

28GAO, Understanding the Financial Report of the United States Government, GAO-18-239SP (Washington, D.C.: Feb. 15, 

2018).

29GAO, Fiscal Outlook & the Debt, accessed on Feb. 9, 2018, https://www.gao.gov/fiscal_outlook/overview, which is based on 

information in GAO, Understanding Similarities and Differences between Accrual and Cash Deficits, GAO-07-117SP 

(Washington, D.C.: December 2006). In January 2007 and 2008, we issued updates to this guide for fiscal years 2006 and 

2007; see GAO-07-341SP (Washington, D.C.: January 2007) and GAO-08-410SP (Washington, D.C.: January 2008).
 STATEMENT OF THE COMPTROLLER GENERAL OF THE UNITED STATES 40

Our audit report was prepared under the direction of Robert F. Dacey, Chief Accountant; J. Lawrence 

Malenich, Director, Financial Management and Assurance; and Dawn Simpson, Director, Financial 

Management and Assurance. If you have any questions, please contact me on (202) 512-5500 or them 

on (202) 512-3406.

Gene L. Dodaro

Comptroller General

of the United States

cc: The Majority Leader of the Senate

The Minority Leader of the Senate

The Majority Leader of the House of Representatives

The Minority Leader of the House of Representatives
41 FINANCIAL STATEMENTS 

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T
 FINANCIAL STATEMENTS 42 

Financial Statements

of the United States Government

for the Fiscal Years Ended September 30, 

2017, and 2016

The consolidated financial statements of the United States Government (Government) were prepared using U.S. 

Generally Accepted Accounting Principles (GAAP). The consolidated financial statements include the accrual-based 

financial statements and the sustainability financial statements, which are discussed in more detail below, and the related 

notes to the consolidated financial statements. Collectively, the accrual-based financial statements, the sustainability financial 

statements, and the notes represent basic information that is deemed essential for the consolidated financial statements to be 

presented in conformity with GAAP. 

ACCRUAL-BASED FINANCIAL STATEMENTS

The accrual-based financial statements present historical information on what the federal government owns (assets) and 

owes (liabilities) at the end of the year, what came in (revenues) and what went out (net costs) during the year, and how 

accrual-based net operating costs of the federal government reconcile to the budget deficit and changes in its cash balance 

during the year. The following sections discuss each of the accrual-based financial statements.

Statements of Net Cost 

These statements present the net cost of the Government operations for fiscal years 2017 and 2016, including the 

operations related to funds from dedicated collections. Costs and earned revenues are categorized on the Statement of Net 

Cost by significant entity, providing greater accountability by showing the relationship of the agencies’ net cost to the 

governmentwide net cost. Costs and earned revenues are presented in this Financial Report on an accrual basis, while the 

budget presents outlays and receipts, generally on a cash basis. The focus of the budget of the United States is by agency. 

Budgets are prepared, defended, and monitored by agency. In reporting by agency, we are assisting the external users in 

assessing the budget integrity, operating performance, stewardship, and systems and controls of the Government.

The Statements of Net Cost contain the following four components:

• Gross cost—is the full cost of all the departments and entities excluding (gain)/loss from changes in assumptions. 

These costs are assigned on a cause-and-effect basis, or reasonably allocated to the corresponding entities.

• Earned revenue—is exchange revenue resulting from the Government providing goods and services to the public at 

a price.

• (Gain)/loss from changes in assumptions—is the gain or loss from changes in long-term assumptions used to 

measure the liabilities reported for federal civilian and military employee pensions, other post-employment benefits, 

and other retirement benefits, including veterans’ compensation.

• Net cost—is computed by subtracting earned revenue from gross cost, adjusted by the (gain)/loss from changes in 

assumptions.

Individual agency net cost amounts will differ from the agency’s financial statements primarily because of reallocations 

completed at the governmentwide level which are listed below. 

• Benefit program costs.

• Intragovernmental eliminations, as adjusted for buy/sell costs and related revenues.

• Imputed costs.

Because of its specific function, most of the benefit program costs originally associated with the Office of Personnel 

Management (OPM) have been reallocated to the user agencies for governmentwide reporting purposes. The remaining costs 

for OPM on the Statements of Net Cost are the administrative operating costs, the expenses from prior costs from health and 

pension plan amendments, and the actuarial gains and losses, if applicable. 
43 FINANCIAL STATEMENTS 

General Services Administration (GSA) is the primary provider of goods and services to federal agencies. GSA’s net 

cost is adjusted for its intragovernmental buy/sell costs and related revenues. The remaining costs for GSA on the Statements 

of Net Cost are administrative operating costs. With regard to intragovernmental buy/sell costs and related revenues, the 

amounts recognized by each agency are added to, and subtracted from, respectively, the individual agency non-federal net 

cost amounts. In addition, the intragovernmental imputed costs recognized for the receipt of goods and services, financed in 

whole or part by the providing agencies, are added to the individual agency non-federal net cost amounts. 

The interest on securities issued by the Department of the Treasury (Treasury) and held by the public is reported on 

Treasury’s financial statements, but, because of its importance and the dollar amounts involved, it is reported separately in

these statements.

Statements of Operations and Changes in Net Position

These statements report the results of Government operations, net operating costs, which include the results of

operations for funds from dedicated collections. They include non-exchange revenues, which are generated from transactions

that do not require a Government entity to give value directly in exchange for the inflow of resources. The Government does

not “earn” the non-exchange revenue. These are generated principally by the Government’s sovereign power to tax, levy

duties, and assess fines and penalties. These statements also include the net cost reported in the Statements of Net Cost. They

further include certain adjustments and unreconciled transactions that affect the net position.

Revenue

Inflows of resources to the government that the government demands or that it receives by donations are identified as

non-exchange revenue. The inflows that it demands include individual income tax and tax withholdings, excise taxes,

corporation income taxes, unemployment taxes, custom duties, and estate and gift taxes. The non-exchange revenue is

recognized when collected and adjusted for the change in net measurable and legally collectable amounts receivable.

Individual income tax and tax withholdings include Federal Insurance Contributions Act (FICA)/Self-Employment

Contributions Act (SECA) taxes and other taxes.

Excise taxes consist of taxes collected for various items, such as airline tickets, gasoline products, distilled spirits and

imported liquor, tobacco, firearms, and other items.

Other taxes and receipts include Federal Reserve Banks (FRBs) earnings, tax related fines, penalties and interest, and

railroad retirement taxes.

Miscellaneous earned revenues consist of earned revenues received from the public with virtually no associated cost.

These revenues include rents and royalties on the Outer Continental Shelf Lands resulting from the leasing and development

of mineral resources on public lands.

Generally, funds from dedicated collections are financed by specifically identified revenues, provided to the

government by non-federal sources, often supplemented by other financing sources, which remain available over time. These

specifically identified revenues and other financing sources are required by statute to be used for designated activities,

benefits or purposes, and must be accounted for separately from the Government’s general revenue. See Note 20—Funds

from Dedicated Collections for detailed information.

Intragovernmental interest represents interest earned from the investment of surplus dedicated collections, which

finance the deficit spending of all other fund’s non-dedicated operations. These investments are recorded as

intragovernmental debt holdings and are included in Note 11—Federal Debt Securities Held by the Public and Accrued

Interest, in the table titled Intragovernmental Debt Holdings: Federal Debt Securities Held as Investments by Government

Accounts. These interest earnings and the associated investments are eliminated in the consolidation process.

Net Cost of Government Operations

The net cost of Government operations—gross cost (including gains/losses from changes in assumptions) less earned

revenue—flows through from the Statements of Net Cost. The net cost and intragovernmental net cost associated with funds

from dedicated collections activities are separately reported.
 FINANCIAL STATEMENTS 44 

Intragovernmental Transfers

Intragovernmental transfers reflect budgetary and other financing sources for funds from dedicated collections,

excluding financing sources related to non-exchange revenues, intragovernmental interest, and miscellaneous revenues.

These intragovernmental transfers include appropriations, transfers, and other financing sources. These amounts are labeled

as “other changes in fund balance” in Note 20—Funds from Dedicated Collections. Some transfers reflect amounts required

by statute to be transferred from the General Fund of the U.S. Government (General Fund) to funds from dedicated

collections. For Supplementary Medical Insurance (SMI), transfers from the General Fund financed 74 percent and 76

percent of 2017 program costs to Part B and D, respectively.

Unmatched Transactions and Balances

Unmatched transactions and balances are adjustments needed to bring the change in net position into balance due

primarily to unreconciled intragovernmental differences. See Note 1.S—Unmatched Transactions and Balances for detailed

information.

The unmatched transactions and balances are included in net operating cost to make the sum of net operating costs and

prior period adjustments for the year equal to the change in the net position balance.

Net Operating Cost

 The net operating cost equals revenue less net cost of Government operations (that flows from the Statement of Net

Cost) adjusted by unmatched transactions and balances. See Note 1.S—Unmatched Transactions and Balances for detailed

information.

Net Position, Beginning of Period

The net position, beginning of period, reflects the amount reported on the prior year’s balance sheet as of the end of that

fiscal year. The net position for funds from dedicated collections is shown separately.

Prior-period adjustments are revisions to the beginning net position presented on the prior year financial statements due

to corrections of material errors or certain changes in accounting principles. See Note 1.T—Prior-Period Adjustments for

detailed information.

Net Position, End of Period

The net position, end of period, reflects the amount as of the end of the fiscal year. The net position for funds from

dedicated collections is separately shown.

Reconciliations of Net Operating Cost and Budget Deficit

These statements reconcile the results of operations (net operating cost) on the Statements of Operations and Changes in

Net Position (SOCNP) to the budget deficit. The premise of the reconciliation is that the accrual and budgetary accounting

basis share transaction data.

Receipts and outlays in the budget are measured primarily on a cash basis and differ from the accrual basis of

accounting used in the Financial Report. Refer to Note 1.B—Basis of Accounting and Revenue Recognition for details.

These statements begin with the net results of operations (net operating cost) and report activities where the basis of

accounting for the components of net operating cost and the budget deficit differ.
45 FINANCIAL STATEMENTS 

Some presentations of the budget deficit make the distinction between on-budget and off-budget totals. On-budget totals

reflect the transactions of all Government entities, except those excluded from the budget by law. Off-budget totals reflect the

transactions of Government entities that are excluded from the on-budget totals by law. Under current law, the off-budget

totals include the Social Security trust funds and the Postal Service. The budget deficit, as presented in the Financial Report,

combines the on-budget and off-budget totals to derive consolidated totals for federal activity.

Components of Net Operating Cost Not Part of the Budget Deficit

This information includes the operating components, such as the changes in benefits payable for veterans, military and

civilian employees, environmental and disposal liabilities, and depreciation expense, not included in the budget results.

Components of the Budget Deficit Not Part of Net Operating Cost

This information includes the budget components, such as capitalized fixed assets (that are recorded as outlays in the

budget when purchased and reflected in net operating cost through depreciation expense over the useful life of the asset) and

increases in other assets that are not included in the operating results.

Statements of Changes in Cash Balance from Budget and Other

Activities

The primary purpose of these statements is to report how the annual budget deficit relates to the change in the

Government’s cash and other monetary assets, as well as debt held by the public. It explains why the budget deficit normally

would not result in an equivalent change in the Government’s cash and other monetary assets.

These statements reconcile the budget deficit to the change in cash and other monetary assets during the fiscal year.

They also serve to explain how the budget deficits were financed. A budget deficit is the result of outlays exceeding receipts

during a particular fiscal year.

The budget deficit is primarily financed through borrowings from the public. Other transactions, such as the payment

of interest on Treasury securities held by the public, also require cash disbursements and are not part of the deficit.

Additionally, the budget deficit includes certain amounts that are recognized in the budget, but will be disbursed in a

future period, or are adjustments that did not affect the cash balance. These amounts include interest accrued on Treasury

securities held by the public, as well as subsidy expense related to direct and guaranteed loans.

These statements show the adjustments for non-cash outlays included in the budget, and items affecting the cash

balance not included in the budget, to explain the change in cash and other monetary assets.

In fiscal year 2017, additional lines were included in the presentation of this statement to provide further breakdown of

certain categories of transactions. This presentation change did not affect the fiscal year 2016 totals related to cash and other

monetary assets balances.

Balance Sheets

The balance sheets show the Government’s assets, liabilities, and net position. When combined with stewardship

information, this information presents a more comprehensive understanding of the Government’s financial position. The net

position for funds from dedicated collections is shown separately.

Assets

Assets included on the balance sheets are resources of the Government that remain available to meet future needs. The

most significant assets that are reported on the balance sheets are loans receivable, net; property, plant, and equipment

(PP&E), net; inventories and related property, net; and cash and other monetary assets. There are, however, other significant
 FINANCIAL STATEMENTS 46 

resources available to the Government that extend beyond the assets presented in these balance sheets. Those resources

include Stewardship Land and Heritage Assets in addition to the Government’s sovereign powers to tax and set monetary

policy.

Liabilities and Net Position

Liabilities are obligations of the Government resulting from prior actions that will require financial resources. The most

significant liabilities reported on the balance sheets are federal debt securities held by the public and accrued interest, and

federal employee and veteran benefits payable. Liabilities also include environmental and disposal liabilities, benefits due

and payable, as well as insurance and guarantee program liabilities.

As with reported assets, the Government’s responsibilities, policy commitments, and contingencies are much broader

than these reported balance sheet liabilities. They include the social insurance programs reported in the Statements of Social

Insurance and disclosed in the Required Supplementary Information (RSI)—Social Insurance section, fiscal long-term

projections of non-interest spending reported in the Statements of Long-Term Fiscal Projections, and a wide range of other

programs under which the Government provides benefits and services to the people of this Nation, as well as certain future

loss contingencies.

The Government has entered into contractual commitments requiring the future use of financial resources and has

unresolved contingencies where existing conditions, situations, or circumstances create uncertainty about future losses.

Contingencies and commitments that do not meet the criteria for recognition as liabilities on the balance sheets, but for which

there is at least a reasonable possibility that losses have been incurred, are disclosed in Note 18—Contingencies and Note

19—Commitments.

The collection of certain taxes and other revenue is credited to the corresponding funds from dedicated collections that

will use these funds to meet a particular Government purpose. If the collections from taxes and other sources exceed the

payments to the beneficiaries, the excess revenue is invested in Treasury securities or deposited in the General Fund;

therefore, the trust fund balances do not represent cash. An explanation of the trust funds for social insurance is included in

Note 20—Funds from Dedicated Collections. That note also contains information about trust fund receipts, disbursements,

and assets.

Due to its sovereign power to tax and borrow, and the country’s wide economic base, the Government has unique access

to financial resources through generating tax revenues and issuing federal debt securities. This provides the Government with

the ability to meet present obligations and those that are anticipated from future operations, and are not reflected in net

position.

The net position is the residual difference between assets and liabilities and is the cumulative results of operations since

inception. For detailed components that comprise the net position, refer to the section “Statement of Operations and Changes

in Net Position.”

SUSTAINABILITY FINANCIAL STATEMENTS

The sustainability financial statements are comprised of the Statements of Long-Term Fiscal Projections, covering all

federal government programs, and the Statements of Social Insurance and the Statement of Changes in Social Insurance

Amounts, covering social insurance programs (Social Security, Medicare, Railroad Retirement, and Black Lung programs).

The sustainability financial statements are designed to illustrate the relationship between projected receipts and expenditures

if current policy is continued over a 75 year time horizon1

. For this purpose, the projections assume that scheduled social

insurance benefit payments would continue after related trust funds are projected to be exhausted, contrary to current law,

and that debt could continue to rise indefinitely without severe economic consequences. The sustainability financial

statements are intended to help citizens understand current policy and the importance and magnitude of policy reforms

necessary to make it sustainable.

By accounting convention, the Statements of Social Insurance do not include projected general revenues that, under

current law, would be used to finance the remainder of the expenditures in excess of revenues for Medicare Parts B and D

reported in the Statements of Social Insurance. The Statements of Long-Term Fiscal Projections include all revenues

(including general revenues) of the federal government.

 1 With the exception of the Black Lung program, which has a rolling 25-year projection period through September 30, 2042.
47 FINANCIAL STATEMENTS 

Statements of Long-Term Fiscal Projections

The Statements of Long-Term Fiscal Projections are intended to assist readers of the Government’s financial statements

in assessing the financial condition of the federal government and how the Government’s financial condition has changed

(improved or deteriorated) during the year and may change in the future. They are also intended to assist readers in assessing

whether future budgetary resources of the Government will likely be sufficient to sustain public services and to meet

obligations as they come due, assuming that current policy for Federal Government public services and taxation is continued

without change.

The Statements of Long-Term Fiscal Projections display the present value of 75-year projections by major category of

the Federal Government’s receipts and non-interest spending. These projections show the extent to which future receipts of

the Government exceed or fall short of the Government’s non-interest spending. The projections are presented both in terms

of present value dollars and in terms of present value dollars as a percent of present value Gross Domestic Product (GDP).

The projections are on the basis of policies currently in place and are neither forecasts nor predictions. These projections are

consistent with the projections for Social Security and Medicare presented in the Statements of Social Insurance and are

based on the same economic and demographic assumptions as underlie the Statements of Social Insurance. These statements

also display the fiscal gap, which is a summary measure of the combination of non-interest spending reductions and receipt

increases necessary to hold the ratio of debt held by the public to GDP at the end of the projection period to its value at the

beginning of the period. Note 23—Long-Term Fiscal Projections, further explains the methods used to prepare these

projections and provides additional information. Unaudited required supplementary information further assesses the

sustainability of current fiscal policy and provides results based on alternative assumptions to those used in the basic

statement.

As discussed further in Note 23, a sustainable policy is one where the ratio of debt held by the public to GDP (the debtto-GDP ratio) is stable or declining over the long term. GDP measures the size of the Nation’s economy in terms of the total

value of all final goods and services that are produced in a year. Considering financial results relative to GDP is a useful

indicator of the economy’s capacity to sustain the Government’s many programs.

Statements of Social Insurance and Changes in Social Insurance

Amounts

The Statements of Social Insurance provide estimates of the status of the most significant social insurance programs:

Social Security, Medicare, Railroad Retirement, and Black Lung2

. They are administered by the Social Security

Administration (SSA), U.S. Department of Health and Human Services (HHS), the Railroad Retirement Board (RRB), and

the Department of Labor (DOL), respectively. The estimates are actuarial present values3 of the projections and are based on

the economic and demographic assumptions representing the trustees’ reasonable estimates as set forth in the relevant Social

Security and Medicare trustees’ reports as well as in the agency financial reports of HHS, SSA, and DOL (Black Lung) and

in the relevant agency performance and accountability report for the RRB. The SOSI projections, with one exception related

to Medicare Part A and OASDI, are based on current law; that is, they assume that scheduled social insurance benefit

payments would continue after related trust funds are projected to be depleted, contrary to current law. By law, once assets

are exhausted, expenditures cannot be made except to the extent covered by ongoing tax receipts and other trust fund income.

The magnitude and complexity of social insurance programs, coupled with the extreme sensitivity of projections

relating to the many assumptions of the programs, produce a wide range of possible results. In preparing the Statements of

Social Insurance, Government management considers and selects assumptions and data that it believes provide a reasonable

basis for the assertions in the statements. However, because of the large number of factors that affect the Statements of Social

Insurance, plus the fact that such assumptions are inherently subject to substantial uncertainty (arising from the likelihood of

future events, significant uncertainties, and contingencies), there will be differences between the estimates in the Statements

of Social Insurance and the actual results, and those differences may be material. Note 22—Social Insurance describes the

social insurance programs, reports long-range estimates that can be used to assess the financial condition of the programs,

 2 In relation to the amounts presented in the Statements of Social Insurance and Changes in Social Insurance Amounts, the combined Railroad Retirement

and Black Lung programs account for less than a quarter of one percent of the statement totals, and therefore, are not material from the consolidated

perspective.

3 Present values recognize that a dollar paid or collected in the future is worth less than a dollar today, because a dollar today could be invested and earn

interest. To calculate a present value, future amounts are thus reduced using an assumed interest rate, and those reduced amounts are summed.
 FINANCIAL STATEMENTS 48 

and explains some of the factors that impact the various programs. The Statements of Changes in Social Insurance Amounts

reconcile the change between the current valuation period and the prior valuation period.
49 FINANCIAL STATEMENTS 

United States Government

Statement of Net Cost

for the Year Ended September 30, 2017 (Gain)/Loss

from

Gross Earned Changes in Net

(In billions of dollars) Cost Revenue Subtotal Assumptions Cost

Department of Health and Human Services ............. 1,186.8 101.1 1,085.7 0.4 1,086.1

Social Security Administration............................... 999.1 0.3 998.8 - 998.8

Department of Defense ....................................... 718.7 77.4 641.3 24.1 665.4

Department of Veterans Affairs ............................. 254.8 4.8 250.0 229.7 479.7

Interest on Treasury Securities Held by the Public .... 296.3 - 296.3 - 296.3

Office of Personnel Management .......................... 90.1 22.3 67.8 102.5 170.3

Department of the Treasury.................................. 179.5 37.9 141.6 - 141.6

Department of Agriculture .................................... 142.9 8.1 134.8 - 134.8

Department of Transportation ............................... 79.6 0.9 78.7 - 78.7

Department of Housing and Urban Development ...... 70.9 1.7 69.2 - 69.2

Department of Homeland Security ......................... 77.3 12.3 65.0 (0.5) 64.5

Department of Education ..................................... 84.4 30.6 53.8 - 53.8

Department of Labor........................................... 43.5 - 43.5 - 43.5

Department of Energy ......................................... 46.9 5.6 41.3 - 41.3

Defense Security Cooperation Agency ................... 36.7 - 36.7 - 36.7

Department of Justice ......................................... 34.2 1.6 32.6 - 32.6

Department of State ........................................... 31.3 4.8 26.5 0.3 26.8

Federal Communications Commission.................... 20.7 0.4 20.3 - 20.3

National Aeronautics and Space Administration........ 19.6 0.2 19.4 - 19.4

Department of the Interior .................................... 20.2 2.7 17.5 - 17.5

U.S. Agency for International Development ............. 13.2 - 13.2 - 13.2

Department of Commerce.................................... 12.9 3.3 9.6 - 9.6

Railroad Retirement Board................................... 13.0 3.8 9.2 - 9.2

Environmental Protection Agency .......................... 8.8 0.4 8.4 - 8.4

National Science Foundation................................ 7.1 - 7.1 - 7.1

U.S. Postal Service ............................................ 71.9 68.7 3.2 - 3.2

Smithsonian Institution ........................................ 0.9 - 0.9 - 0.9

Millennium Challenge Corporation ......................... 0.7 - 0.7 - 0.7

U.S. Nuclear Regulatory Commission..................... 0.9 0.8 0.1 - 0.1

Overseas Private Investment Corporation ............... - 0.1 (0.1) - (0.1)

Securities and Exchange Commission.................... 1.9 2.1 (0.2) - (0.2)

Small Business Administration.............................. 0.1 0.3 (0.2) - (0.2)

Farm Credit System Insurance Corporation ............. - 0.4 (0.4) - (0.4)

General Services Administration ........................... 0.2 0.6 (0.4) - (0.4)

National Credit Union Administration...................... (0.1) 0.7 (0.8) - (0.8)

Tennessee Valley Authority.................................. 9.9 10.7 (0.8) - (0.8)

Export-Import Bank of the United States ................. 0.4 1.2 (0.8) - (0.8)

Pension Benefit Guaranty Corporation.................... 9.8 14.1 (4.3) - (4.3)

Federal Deposit Insurance Corporation................... 1.5 10.6 (9.1) - (9.1)

All other entities ................................................. 22.7 1.4 21.3 - 21.3

Total................................................................ 4,609.3 431.9 4,177.4 356.5 4,533.9

The accompanying notes are an integral part of these financial statements.
 FINANCIAL STATEMENTS 50 

United States Government

Statement of Net Cost

for the Year Ended September 30, 2016 (Restated) (Gain)/Loss

from

Gross Earned Changes in Net

(In billions of dollars) Cost Revenue Subtotal Assumptions Cost

Department of Health and Human Services ............. 1,170.0 96.1 1,073.9 0.4 1,074.3

Social Security Administration............................... 982.1 0.3 981.8 - 981.8

Department of Defense ....................................... 721.9 55.1 666.8 (57.6) 609.2

Department of Veterans Affairs ............................. 276.5 4.9 271.6 377.5 649.1

Interest on Treasury Securities Held by the Public .... 273.0 - 273.0 - 273.0

Office of Personnel Management .......................... 60.2 21.3 38.9 (47.1) (8.2)

Department of the Treasury.................................. 148.7 19.4 129.3 - 129.3

Department of Agriculture .................................... 142.1 8.5 133.6 - 133.6

Department of Transportation ............................... 80.7 0.9 79.8 - 79.8

Department of Housing and Urban Development ...... 31.2 1.7 29.5 - 29.5

Department of Homeland Security ......................... 66.5 13.1 53.4 0.2 53.6

Department of Education ..................................... 103.1 29.9 73.2 - 73.2

Department of Labor........................................... 46.4 - 46.4 - 46.4

Department of Energy ......................................... 68.6 4.3 64.3 - 64.3

Defense Security Cooperation Agency ................... 36.0 - 36.0 - 36.0

Department of Justice ......................................... 38.7 1.6 37.1 - 37.1

Department of State ........................................... 32.6 4.7 27.9 (0.1) 27.8

Federal Communications Commission.................... 10.4 0.5 9.9 - 9.9

National Aeronautics and Space Administration........ 20.0 0.2 19.8 - 19.8

Department of the Interior .................................... 19.2 2.5 16.7 - 16.7

U.S. Agency for International Development ............. 12.6 - 12.6 - 12.6

Department of Commerce.................................... 12.5 3.3 9.2 - 9.2

Railroad Retirement Board................................... 15.3 3.9 11.4 - 11.4

Environmental Protection Agency .......................... 9.0 0.4 8.6 - 8.6

National Science Foundation................................ 7.0 - 7.0 - 7.0

U.S. Postal Service ............................................ 77.2 70.4 6.8 - 6.8

Smithsonian Institution ........................................ 0.8 - 0.8 - 0.8

Millennium Challenge Corporation ......................... 0.6 - 0.6 - 0.6

U.S. Nuclear Regulatory Commission..................... 0.9 0.8 0.1 - 0.1

Overseas Private Investment Corporation ............... - 0.1 (0.1) - (0.1)

Securities and Exchange Commission.................... 1.7 2.0 (0.3) - (0.3)

Small Business Administration.............................. 0.5 0.3 0.2 - 0.2

Farm Credit System Insurance Corporation ............. - 0.3 (0.3) - (0.3)

General Services Administration ........................... 0.6 0.7 (0.1) - (0.1)

National Credit Union Administration...................... (0.7) 0.1 (0.8) - (0.8)

Tennessee Valley Authority.................................. 9.3 10.6 (1.3) - (1.3)

Export-Import Bank of the United States ................. (0.2) 1.2 (1.4) - (1.4)

Pension Benefit Guaranty Corporation.................... 19.4 14.0 5.4 - 5.4

Federal Deposit Insurance Corporation................... 0.2 9.5 (9.3) - (9.3)

All other entities ................................................. 21.1 1.3 19.8 - 19.8

Total................................................................ 4,515.7 383.9 4,131.8 273.3 4,405.1

The accompanying notes are an integral part of these financial statements.
51 FINANCIAL STATEMENTS 

United States Government

Statement of Operations and Changes in Net Position

for the Year Ended September 30, 2017

Funds other than Funds from

those from Dedicated

Dedicated Collections

Collections (Note 20)

(Combined) (Combined) Eliminations Consolidated

(In billions of dollars) 2017

Revenue (Note 17):

Individual income tax and tax withholdings ........ 1,560.1 1,127.8 - 2,687.9

Corporation income taxes.............................. 299.1 - - 299.1

Excise taxes ............................................... 24.7 62.6 - 87.3

Unemployment taxes.................................... - 44.1 - 44.1

Customs duties ........................................... 33.2 - - 33.2

Estate and gift taxes..................................... 22.8 - - 22.8

Other taxes and receipts ............................... 135.9 36.2 - 172.1

Miscellaneous earned revenues...................... 24.0 4.1 - 28.1

Intragovernmental interest ............................. - 99.6 (99.6) -

Total Revenue ............................................ 2,099.8 1,374.4 (99.6) 3,374.6

Net Cost of Government Operations:

Net cost ..................................................... 2,885.8 1,648.1 - 4,533.9

Intragovernmental net cost ............................ (8.5) 8.5 - -

Intragovernmental interest ............................. 99.6 - (99.6) -

Total net cost .............................................. 2,976.9 1,656.6 (99.6) 4,533.9

Intragovernmental transfers........................... (327.1) 327.1 - -

Unmatched transactions and balances

(Note 1.S) ................................................. 2.6 - - 2.6

Net operating (cost)/revenue.......................... (1,201.6) 44.9 - (1,156.7)

Net position, beginning of period.................... (22,671.1) 3,374.3 - (19,296.8)

Prior period adjustments–changes in 

accounting principles (Note 1.T) .................. 37.1 0.2 - 37.3

Net operating (cost)/revenue.......................... (1,201.6) 44.9 - (1,156.7)

Net position, end of period............................. (23,835.6) 3,419.4 - (20,416.2)

The accompanying notes are an integral part of these financial statements.
 FINANCIAL STATEMENTS 52 

United States Government

Statement of Operations and Changes in Net Position

for the Year Ended September 30, 2016 (Restated)

Funds other than Funds from

those from Dedicated

Dedicated Collections

Collections (Note 20)

(Combined) (Combined) Eliminations Consolidated

(In billions of dollars) 2016

Revenue (Note 17):

Individual income tax and tax withholdings ........ 1,525.5 1,077.7 - 2,603.2

Corporation income taxes.............................. 294.3 - - 294.3

Excise taxes ............................................... 42.1 58.3 - 100.4

Unemployment taxes.................................... - 46.9 - 46.9

Customs duties ........................................... 33.3 - - 33.3

Estate and gift taxes..................................... 21.0 - - 21.0

Other taxes and receipts ............................... 185.1 42.9 - 228.0

Miscellaneous earned revenues...................... 15.3 2.9 - 18.2

Intragovernmental interest ............................. - 102.8 (102.8) -

Total Revenue ............................................ 2,116.6 1,331.5 (102.8) 3,345.3

Net Cost of Government Operations:

Net cost ..................................................... 2,799.4 1,605.7 - 4,405.1

Intragovernmental net cost ............................ (8.7) 8.7 - -

Intragovernmental interest ............................. 102.8 - (102.8) -

Total net cost .............................................. 2,893.5 1,614.4 (102.8) 4,405.1

Intragovernmental transfers........................... (409.5) 409.5 - -

Unmatched transactions and balances

(Note 1.S) ................................................. 8.1 - - 8.1

Net operating (cost)/revenue.......................... (1,178.3) 126.6 - (1,051.7)

Net position, beginning of period.................... (21,491.3) 3,247.7 - (18,243.6)

Prior period adjustments

(Note 1.T, 1.V and 20) ............................... (1.5) - - (1.5)

Net operating (cost)/revenue.......................... (1,178.3) 126.6 - (1,051.7)

Net position, end of period............................. (22,671.1) 3,374.3 - (19,296.8)

The accompanying notes are an integral part of these financial statements.
53 FINANCIAL STATEMENTS 

United States Government

Reconciliations of Net Operating Cost and Budget Deficit

for the Years Ended September 30, 2017, and 2016

Restated

(In billions of dollars) 2017 2016

Net operating cost ...................................................................................................... (1,156.7) (1,051.7)

Components of net operating cost not part of the budget deficit

Excess of accrual-basis expenses over budget outlays

* Federal employee and veteran benefits payable

Pension and accrued benefits ............................................................................... 180.5 (106.9)

Veterans compensation and burial benefits .............................................................. 313.7 477.7

Post-retirement health and accrued benefits............................................................. 5.3 56.8

Other benefits .................................................................................................... (8.8) 9.4

Subtotal - federal employee and veteran benefits payable ........................................ 490.7 437.0

* Insurance and guarantee program liabilities ............................................................... 15.5 16.7

* Environmental and disposal liabilities......................................................................... 17.9 35.0

* Accounts payable ................................................................................................. 8.4 (5.9)

* Benefits due and payable ....................................................................................... 0.6 4.3

* Other liabilities ..................................................................................................... 4.5 13.8

Subtotal - excess of accrual-basis expenses over budget outlays ............................... 537.6 500.9

Amortized expenses not included in budget outlays

Property, plant, and equipment depreciation expense .................................................. 33.6 52.2

Other expenses that are not reported as budget outlays

Property, plant, and equipment disposals and revaluations ........................................... (10.0) (24.9)

Agencies year-end credit reform subsidy re-estimates .................................................. 28.5 10.4

Excess of accrual-basis revenue over budget receipts

Accounts receivable, net ........................................................................................ (7.3) (7.3)

Taxes receivable, net ............................................................................................. (2.8) (8.1)

Other losses/(gains) and cost/(revenue) that are not budget receipts

* Investments in government-sponsored enterprises ...................................................... 16.0 (2.3)

Deposit fund balances............................................................................................ 11.4 20.3

Subtotal - components of net operating cost not part of budget deficit ......................... 607.0 541.2

Components of the budget deficit that are not part of net operating cost

Budget receipts not included in net operating cost

Credit reform and other loan activities ....................................................................... (25.8) 9.5

Budget outlays not included in net operating cost

Acquisition of capital assets..................................................................................... (78.6) (81.5)

* Debt and equity securities ...................................................................................... (8.0) (3.8)

* Inventories and related property .............................................................................. (12.4) 6.3

Effect of prior year agencies credit reform subsidy re-estimates ...................................... (10.4) 2.3

* Other assets ........................................................................................................ (2.2) 20.2

Subtotal - components of the budget deficit that are not part of net operating cost ......... (137.4) (47.0)

Other

All other reconciling items ....................................................................................... 21.4 (29.9)

Budget deficit............................................................................................................. (665.7) (587.4)

* The amounts represent the year over year net change in the Balance Sheet line items. 

The accompanying notes are an integral part of these financial statements. 
 FINANCIAL STATEMENTS 54 

United States Government

Statements of Changes in Cash Balance from Budget and Other Activities

for the Years Ended September 30, 2017, and 2016

Restated

(In billions of dollars) 2017 2016

Cash flow from budget activities

Total budget receipts .......................................................................................... 3,314.9 3,266.7

Total budget outlays .......................................................................................... (3,980.6) (3,854.1)

Budget deficit.................................................................................................... (665.7) (587.4)

Adjustments for non-cash outlays included in the budget

Interest accrued on Treasury securities held by the public .......................................... 279.3 264.1

Net amortization on Treasury securities held by the public.......................................... 17.0 8.9

Agencies year-end credit reform subsidy re-estimates ............................................... (18.1) (12.7)

Subsidy expense accrued under direct loan & guarantee programs ............................. 20.3 19.0

Subtotal - adjustments for non-cash transactions in the budget ................................... 298.5 279.3

Cash flow from activities not included in the budget

Cash flow from non-budget activities

Interest paid on Treasury securities held by the public ............................................... (241.6) (244.3)

Direct loans

 Loan disbursements ........................................................................................ (224.2) (211.5)

 Repayment of loans......................................................................................... 167.6 122.7

Loan guarantees

 Default payment/claims .................................................................................... (106.9) (122.5)

 Fees and recoveries on defaulted loans ............................................................... 120.5 101.9

Miscellaneous liabilities....................................................................................... (1.0) 1.1

Deposit fund liability balances .............................................................................. 8.9 (9.6)

Loans to the IMF ............................................................................................... 2.3 0.9

Investments in non-federal securities ..................................................................... (0.1) 3.4

Seigniorage ...................................................................................................... 0.3 0.6

Subtotal - cash flow from non-budget activities......................................................... (274.2) (357.3)

Cash flow from monetary transactions

Reserve position in the IMF ................................................................................. - 1.2

Subtotal - cash flow from monetary transactions....................................................... - 1.2

Cash flow from financing

Borrowing from the public ................................................................................... 8,703.6 8,390.4

Repayment of debt held by the public .................................................................... (8,226.0) (7,352.2)

Effect of uninvested principal from the Thrift Savings Plan (TSP) G Fund ...................... - (203.2)

Agency securities .............................................................................................. - 0.1

Subtotal - cash flow from financing ........................................................................ 477.6 835.1

Other................................................................................................................. (32.9) (8.1)

Change in cash and other monetary assets balance ................................................... (196.7) 162.8

Beginning cash and other monetary assets balance .................................................... 467.9 305.1

Ending cash and other monetary assets balance ....................................................... 271.2 467.9

The accompanying notes are an integral part of these financial statements.
55 FINANCIAL STATEMENTS 

United States Government

Balance Sheets

as of September 30, 2017, and 2016

 Restated

(In billions of dollars) 2017 2016

Assets:

Cash and other monetary assets (Note 2).......................................................... 271.2 467.9

Accounts and taxes receivable, net (Note 3)....................................................... 143.3 133.2

Loans receivable, net (Note 4)......................................................................... 1,348.5 1,277.6

Inventories and related property, net (Note 5) ..................................................... 326.7 314.3

Property, plant and equipment, net (Note 6) ....................................................... 1,034.5 979.5

Debt and equity securities (Note 7)................................................................... 116.2 108.2

Investments in government-sponsored enterprises (Note 8)................................... 92.6 108.6

Other assets (Note 9) .................................................................................... 147.7 145.5

Total assets .............................................................................................. 3,480.7 3,534.8

Stewardship land and heritage assets (Note 24)

Liabilities:

Accounts payable (Note 10)............................................................................ 70.8 62.4

Federal debt securities held by the public and accrued interest (Note 11) ................. 14,724.1 14,221.1

Federal employee and veteran benefits payable (Note 12) .................................... 7,700.1 7,209.4

Environmental and disposal liabilities (Note 13)................................................... 464.5 446.6

Benefits due and payable (Note 14).................................................................. 218.8 218.2

Insurance and guarantee program liabilities (Note 15) .......................................... 202.5 187.0

Loan guarantee liabilities (Note 4) .................................................................... 42.9 18.2

Other liabilities (Note 16)................................................................................ 473.2 468.7

Total liabilities............................................................................................ 23,896.9 22,831.6

Contingencies (Note 18) and Commitments (Note 19)

Net Position:

Funds from Dedicated Collections (Note 20)....................................................... 3,419.4 3,374.3

Funds other than those from Dedicated Collections ............................................. (23,835.6) (22,671.1)

Total net position........................................................................................ (20,416.2) (19,296.8)

Total liabilities and net position...................................................................... 3,480.7 3,534.8

The accompanying notes are an integral part of these financial statements.
 FINANCIAL STATEMENTS 56 

United States Government

Statements of Long-Term Fiscal Projections (Note 23)

Present Value of 75 Year Projections as of September 30, 2017 and 20161

In trillions of dollars Percent of GDP2

2017 2016 Change 2017 2016 Change

Receipts:

Social Security Payroll Taxes................ 58.0 56.3 1.7 4.3 4.3 -

Medicare Payroll Taxes ....................... 19.4 18.8 0.6 1.4 1.4 -

Individual Income Taxes ...................... 141.9 139.0 2.9 10.5 10.7 (0.1)

Other Receipts................................... 49.0 47.5 1.6 3.6 3.6 -

Total Receipts ........................................ 268.4 261.6 6.8 19.9 20.1 (0.2)

Non-interest spending:

Social Security................................... 78.7 75.6 3.0 5.8 5.8 -

Medicare Part A3................................ 26.6 26.5 0.1 2.0 2.0 (0.1)

Medicare Parts B & D4......................... 32.3 31.3 1.1 2.4 2.4 -

Medicaid........................................... 32.1 31.7 0.4 2.4 2.4 -

Other Mandatory ................................ 40.5 41.6 (1.1) 3.0 3.2 (0.2)

Defense Discretionary ......................... 39.1 32.0 7.2 2.9 2.5 0.5

Non-defense Discretionary ................... 35.3 33.6 1.7 2.6 2.6 -

Total Non-interest Spending ...................... 284.6 272.2 12.4 21.1 20.9 0.2

Receipts less non-interest spending........ (16.2) (10.6) (5.6) (1.2) (0.8) (0.4)

Fiscal gap5.................................................................................................. (2.0) (1.6) (0.4)

1

75-year present value projections for 2017 are as of 9/30/2017 for the period FY 2018-2092; projections for 2016 are as of 9/30/2016 for the

period FY 2017-2091. 2

The 75-year present value of nominal Gross Domestic Product (GDP), which drives the calculations above is $1,347.0 trillion starting in FY

2018, and was $1,302.8 trillion starting in FY 2017. 3

Represents portions of Medicare supported by payroll taxes. 4

Represents portions of Medicare supported by general revenues. Consistent with the President's Budget, outlays for Parts B & D are

presented net of premiums. 5

To prevent the debt-to-GDP ratio from rising over the next 75 years, a combination of non-interest spending reductions and receipts increases

that amounts to 2.0 percent of GDP on average is needed (1.6 percent of GDP on average in 2016). See Financial Statement Note 23.

Totals may not equal the sum of components due to rounding. 

The accompanying notes are an integral part of these financial statements.
57 FINANCIAL STATEMENTS 

United States Government

Statements of Social Insurance (Note 22)

Present Value of Long-Range (75 Years, except Black Lung) Actuarial Projections

(In trillions of dollars) 2017 2016 2015 2014 2013

Federal Old-age, Survivors and Disability Insurance (Social 

Security):11

Revenue (Contributions and Dedicated Taxes) from:

Participants who have attained eligibility age (age 62 and over) .. 1.4 1.3 1.2 1.0 0.9

Participants who have not attained eligibility age...................... 30.3 29.3 27.8 25.4 24.6

Future participants............................................................. 30.5 29.7 26.6 24.6 23.4

All current and future participants ......................................... 62.1 60.3 55.5 51.0 48.9

Expenditures for Scheduled Future Benefits for:

Participants who have attained eligibility age (age 62 and over) .. (14.7) (13.6) (12.8) (11.9) (11.0)

Participants who have not attained eligibility age...................... (50.2) (48.4) (45.3) (42.4) (40.6)

Future participants............................................................. (12.6) (12.4) (10.9) (10.0) (9.6)

All current and future participants ......................................... (77.5) (74.4) (69.0) (64.3) (61.2)

Present value of future expenditures in excess of future

revenue ............................................................................. (15.4)1 (14.1)2 (13.4)3 (13.3)4 (12.3)5

Federal Hospital Insurance (Medicare Part A):11

Revenue (Contributions and Dedicated Taxes) from:

Participants who have attained eligibility age (age 65 and over) .. 0.5 0.5 0.4 0.3 0.3

Participants who have not attained eligibility age...................... 10.7 10.3 9.1 8.4 8.1

Future participants............................................................. 10.6 10.0 8.4 7.8 7.7

All current and future participants ......................................... 21.7 20.7 17.9 16.5 16.2

Expenditures for Scheduled Future Benefits for:

Participants who have attained eligibility age (age 65 and over) .. (4.5) (4.3) (3.8) (3.5) (3.4)

Participants who have not attained eligibility age...................... (17.2) (16.8) (14.5) (14.1) (14.6)

Future participants............................................................. (3.5) (3.4) (2.8) (2.8) (2.9)

All current and future participants ......................................... (25.3) (24.5) (21.1) (20.4) (21.0)

Present value of future expenditures in excess of future 

revenue ............................................................................. (3.5)1 (3.8)2 (3.2)3 (3.8)4 (4.8)5

Federal Supplementary Medical Insurance (Medicare Part B):11

Revenue (Premiums) from:

Participants who have attained eligibility age (age 65 and over) .. 1.1 1.0 0.9 0.8 0.7

Participants who have not attained eligibility age...................... 5.9 5.3 4.6 4.5 4.1

Future participants............................................................. 1.4 1.2 1.0 1.1 0.9

All current and future participants ......................................... 8.4 7.5 6.5 6.5 5.7

Expenditures for Scheduled Future Benefits for:

Participants who have attained eligibility age (age 65 and over) .. (4.5) (4.0) (3.6) (3.2) (2.9)

Participants who have not attained eligibility age...................... (21.4) (19.2) (16.8) (17.0) (15.1)

Future participants............................................................. (4.9) (4.3) (3.5) (4.1) (3.4)

All current and future participants ......................................... (30.8) (27.5) (24.0) (24.3) (21.4)

Present value of future expenditures in excess of future 

revenue 6 ........................................................................... (22.4)1 (20.0)2 (17.5)3 (17.9)4 (15.7)5

Totals may not equal the sum of components due to rounding.

The accompanying notes are an integral part of these financial statements.
 FINANCIAL STATEMENTS 58 

United States Government

Statements of Social Insurance (Note 22), continued

Present Value of Long-Range (75 Years, except Black Lung) Actuarial Projections

(In trillions of dollars) 2017 2016 2015 2014 2013

Federal Supplementary Medical Insurance (Medicare Part D):11

Revenue (Premiums and State Transfers) from:

Participants who have attained eligibility age (age 65 and over) .. 0.3 0.3 0.3 0.2 0.2

Participants who have not attained eligibility age...................... 2.0 2.2 1.8 1.6 1.5

Future participants............................................................. 0.8 1.0 0.8 0.7 0.7

All current and future participants ......................................... 3.1 3.5 2.9 2.5 2.3

Expenditures for Scheduled Future Benefits for:

Participants who have attained eligibility age (age 65 and over) .. (1.0) (1.0) (0.9) (0.8) (0.7)

Participants who have not attained eligibility age...................... (6.9) (7.7) (6.4) (5.9) (5.9)

Future participants............................................................. (2.9) (3.6) (2.8) (2.6) (2.6)

All current and future participants ......................................... (10.8) (12.2) (10.2) (9.3) (9.2)

Present value of future expenditures in excess of future 

revenue 6 ........................................................................... (7.6)1 (8.7)2 (7.3)3 (6.8)4 (6.9)5

Other:7

Present value of future expenditures in excess of future 

revenues 8, 9, 10.................................................................. (0.1) (0.1) (0.1) (0.1) (0.1)

Total present value of future expenditures in excess of future 

revenue ............................................................................. (49.0) (46.7) (41.5) (41.9) (39.7)

Totals may not equal the sum of components due to rounding.

The accompanying notes are an integral part of these financial statements.
59 FINANCIAL STATEMENTS 

United States Government

Statements of Social Insurance (Note 22), continued

Present Value of Long-Range (75 Years, except Black Lung) Actuarial Projections

(In trillions of dollars) 2017 2016 2015 2014 2013

Social Insurance Summary11

Participants who have attained eligibility age:

Revenue (e.g., contributions and dedicated taxes) ................. 3.3 3.1 2.8 2.3 2.1

Expenditures for scheduled future benefits ........................... (24.7) (22.9) (21.3) (19.4) (18.2)

Present value of future expenditures in excess of 

future revenue.............................................................. (21.4) (19.8) (18.5) (17.1) (16.1)

Participants who have not attained eligibility age:

Revenue (e.g., contributions and dedicated taxes) ................. 48.9 47.1 43.4 40.0 38.4

Expenditures for scheduled future benefits ........................... (95.7) (92.2) (83.1) (79.6) (76.3)

Present value of future expenditures in excess of 

future revenue.............................................................. (46.8) (45.1) (39.7) (39.6) (37.9)

Closed-group - Total present value of future expenditures 

in excess of future revenue............................................. (68.2) (64.9) (58.2) (56.7) (54.0)

Future participants:

Revenue (e.g., contributions and dedicated taxes) ................. 43.3 41.9 36.8 34.3 32.9

Expenditures for scheduled future benefits ........................... (24.0) (23.7) (20.1) (19.6) (18.6)

Present value of future revenue in excess of future 

expenditure ................................................................. 19.3 18.2 16.8 14.8 14.3

Open-group - Total present value of future expenditures in 

excess of future revenue ..................................................... (49.0) (46.7) (41.5) (41.9) (39.7)

1 The projection period for Social Security and Medicare is 1/1/2017-12/31/2091 and the valuation date is 1/1/2017. 2 The projection period for Social Security and Medicare is 1/1/2016-12/31/2090 and the valuation date is 1/1/2016. 3 The projection period for Social Security and Medicare is 1/1/2015-12/31/2089 and the valuation date is 1/1/2015. 4 The projection period for Social Security and Medicare is 1/1/2014-12/31/2088 and the valuation date is 1/1/2014. 5 The projection period for Social Security and Medicare is 1/1/2013-12/31/2087 and the valuation date is 1/1/2013. 6 These amounts represent the present value of the future transfers from the General Fund to the Supplementary Medical Insurance Trust 

Fund. These future intragovernmental transfers are included as income in both HHS’ and the Centers for Medicare & Medicaid Services’ 

Financial Reports but are not income from the governmentwide perspective of this report. 7 Includes Railroad Retirement and Black Lung. 8 These amounts do not include the present value of the financial interchange between the railroad retirement and social security systems, 

which is included as income in the Railroad Retirement Financial Report, but is not included from the governmentwide perspective of this 

report. (See discussion of Railroad Retirement Program in the unaudited required supplementary information section of this report). 9 Does not include interest expense accruing on the outstanding debt of the Black Lung Disability Trust Fund. 10 For information on the projection periods and valuation dates for the Railroad Retirement and Black Lung programs, refer to the financial

statements of RRB and DOL, respectively. 11 Current participants for the Social Security and Medicare programs are assumed to be the “closed-group” of individuals who are at least

15 years of age at the start of the projection period, and are participating as either taxpayers, beneficiaries, or both.

Totals may not equal the sum of components due to rounding.

The accompanying notes are an integral part of these financial statements.
 FINANCIAL STATEMENTS 60 

United States Government

Statement of Changes in Social Insurance Amounts

for the Year Ended September 30, 2017 (Note 22)

Social Medicare Medicare

(In trillions of dollars) Security1 HI1 SMI1 Other2 Total

Net present value (NPV) of future revenue less 

future expenditures for current and future 

participants (the “open group”) over the next 75 

years, beginning of the year ................................. (14.1) (3.8) (28.7) (0.1) (46.7)

Reasons for changes in the NPV during the year:

Changes in valuation period.................................. (0.6) (0.2) (1.2) - (2.0)

Changes in demographic data, assumptions, and 

methods ........................................................... (0.1) (0.1) - - (0.2)

Changes in economic data, assumptions, and 

methods ........................................................... (0.6) - - - (0.6)

Changes in law or policy ...................................... - - - - -

Changes in economic and other health care 

assumptions ................................................... - 0.2 (0.5) - (0.3)

Change in projection base .................................... - 0.3 0.4 - 0.7

Net change in open group measure........................ (1.2) 0.3 (1.4) - (2.3)

Open group measure, end of year............................. (15.4) (3.5) (30.0) (0.1) (49.0)

1

 Amounts represent changes between valuation dates 1/1/2016 and 1/1/2017.

2

 Includes Railroad Retirement changes between valuation dates 10/1/2015 and 10/1/2016 and Black Lung changes between 9/30/2016 and 

9/30/2017.

Totals may not equal the sum of components due to rounding. 

The accompanying notes are an integral part of these financial statements. 
61 FINANCIAL STATEMENTS 

United States Government

Statement of Changes in Social Insurance Amounts

for the Year Ended September 30, 2016 (Note 22)

Social Medicare Medicare

(In trillions of dollars) Security1 HI1 SMI1 Other2 Total

Net present value (NPV) of future revenue less 

future expenditures for current and future 

participants (the “open group”) over the next 75 

years, beginning of the year ................................. (13.4) (3.2) (24.8) (0.1) (41.5)

Reasons for changes in the NPV during the year:

Changes in valuation period.................................. (0.5) (0.1) (1.1) - (1.7)

Changes in demographic data, assumptions, and

methods ........................................................... 0.6 0.2 0.3 - 1.1

Changes in economic data, assumptions, and ..........

methods ........................................................... (0.9) - - - (0.9)

Changes in law or policy ...................................... 0.1 - 0.2 - 0.3

Changes in economic and other health care 

assumptions ..................................................... - (0.4) (3.0) - (3.4)

Change in projection base .................................... - (0.3) (0.3) - (0.6)

Net change in open group measure........................ (0.7) (0.6) (3.9) - (5.2)

Open group measure, end of year............................. (14.1) (3.8) (28.7) (0.1) (46.7)

1

 Amounts represent changes between valuation dates 1/1/2015 and 1/1/2016.

2

 Includes Railroad Retirement changes between valuation dates 1/1/2015 and 10/1/2015 and Black Lung changes between 9/30/2015 and 

9/30/2016.

Totals may not equal the sum of components due to rounding.

The accompanying notes are an integral part of these financial statements.
 NOTES TO THE FINANCIAL STATEMENTS 62

United States Government

Notes to the Financial Statements

for the Fiscal Years Ended September 30,

2017, and 2016

Note 1. Summary of Significant Accounting Policies

A. Reporting Entity

This Financial Report includes the financial status and activities of the executive branch, the legislative branch, and the

judicial branch of the government. The financial reporting period ends September 30 and is the same as used for the annual

budget. The legislative and judicial branches are not required by law to submit financial statement information to Treasury;

however, these branches are included in the Financial Report. Appendix A of this report lists the organizations and agencies

(entities) included in the U.S. Government’s consolidated reporting entity for the Financial Report, as well as some entities

not included in the reporting entity. Federal Accounting Standards Advisory Board’s (FASAB) Statement of Federal

Financial Accounting Concepts (SFFAC) 2, Entity and Display, provides criteria for determining which entities are included

in the reporting entity. Such criteria are summarized in Appendix A. Also, as discussed further in Appendix A, certain

entities are excluded from the Financial Report because they do not meet the criteria, such as Federal Home Loan Banks, or

were specifically excluded from the consolidated reporting entity in accordance with SFFAC 2, such as the Board of

Governors of the Federal Reserve System and bailout entities. Examples of bailout entities include the Federal Home Loan

Mortgage Corporation (Freddie Mac) and Federal National Mortgage Association (Fannie Mae).

During fiscal year 2008, the government began a number of emergency economic measures relating to the economy that

involved various financing programs. Key initiatives beginning in fiscal year 2008 involved programs concerning Fannie

Mae and Freddie Mac (Government-Sponsored Enterprises [GSEs]), provision of a credit facility for GSEs and Federal

Home Loan Banks, purchase of Mortgage-Backed Securities (MBSs), see Note 1.H—Investments in Government-Sponsored

Enterprises and Note 8—Investments in Government-Sponsored Enterprises for detailed information.

Following GAAP for federal entities, the government has not consolidated into its financial statements the assets,

liabilities, or results of operations of any financial organization or commercial entity in which Treasury holds either a direct,

indirect, or beneficial equity investment. Even though some of the equity investments are significant, under SFFAC 2, these

entities meet the criteria of paragraph 50 and do not appear in the federal budget section “Federal Programs by Agency and

Account.” As such, these entities are not consolidated into the financial reports of the government. However, the values of

the investment in such entities are presented on the balance sheet.

Intragovernmental transactions are eliminated in consolidation, except as described in the Other Information—

Unmatched Transactions and Balances, see Note 1.S—Unmatched Transactions and Balances for detailed information.

B. Basis of Accounting and Revenue Recognition

Consolidated Financial Statements

The consolidated financial statements of the government were prepared using GAAP, primarily based on FASAB’s 

Statement of Federal Financial Accounting Standards (SFFAS). The consolidated financial statements include accrual-based 

financial statements and sustainability financial statements, which are discussed in more detail below, and the related notes to 

the consolidated financial statements. Collectively, the accrual-based financial statements, the sustainability financial 

statements, and the notes represent basic information that is deemed essential for the financial statements and notes to be 

presented in conformity with GAAP.
63 NOTES TO THE FINANCIAL STATEMENTS 

Accrual-Based Financial Statements

The accrual-based financial statements were prepared under the following principles:

• Expenses are generally recognized when incurred.

• Non-exchange revenue, including taxes, duties, fines, and penalties, are recognized when collected and adjusted for 

the change in net measurable and legally collectible amounts receivable. Related refunds and other offsets, including 

those that are measurable and legally payable, are netted against non-exchange revenue.

• Exchange (earned) revenue is recognized when the government provides goods and services to the public for a price. 

Exchange revenue includes user charges such as admission to federal parks and premiums for certain federal 

insurance.

The basis of accounting used for budgetary purposes, which is primarily on a cash basis (budget deficit) and follows 

budgetary concepts and policies, differs from the basis of accounting used for the financial statements which follow U.S. 

GAAP. See the Reconciliations of Net Operating Cost and Budget Deficit in the Financial Statements section.

Sustainability Financial Statements

The sustainability financial statements were prepared based on the projected present value of the estimated future 

revenue and estimated future expenditures, primarily on a cash basis, for a 75 year period1

. They include the Statements of 

Long-Term Fiscal Projections, covering all federal government programs, and the Statements of Social Insurance and the 

Statements of Changes in Social Insurance Amounts, covering social insurance programs (Social Security, Medicare, 

Railroad Retirement, and Black Lung programs). These estimates are based on economic as well as demographic 

assumptions presented in Notes 22 and 23. The sustainability financial statements are not forecasts or predictions. The 

sustainability financial statements are designed to illustrate the relationship between receipts and expenditures, if current

policy is continued. For this purpose, the projections assume that scheduled social insurance benefit payments would 

continue after related trust funds are projected to be exhausted, contrary to current law, and that debt could continue to rise 

indefinitely without severe economic consequences.

By accounting convention, the Statements of Social Insurance do not include projected general revenues that, under 

current law, would be used to finance the remainder of the expenditures in excess of revenues for Medicare Parts B and D 

that is reported in the Statements of Social Insurance. The Statements of Long-Term Fiscal Projections include all revenues 

(including general revenues) of the federal government.

New Standards Issued in Prior Years and Implemented in Current Year

Beginning in fiscal year 2016, the government implemented the requirements of new standards related to the reporting 

for: Inventories and Related Property and Property, Plant, and Equipment. The standards being implemented are: 

• FASAB issued SFFAS No. 48, Opening Balances for Inventory, Operating Materials and Supplies, and Stockpile 

Materials. SFFAS No. 48 permits a reporting entity to apply an alternative valuation method in establishing opening 

balances and applies when a reporting entity is presenting financial statements or one or more line items addressed 

by this statement. This method is permitted when presenting financial statements or one or more line items 

addressed in the standard. This standard can be applied for the first time or after a period during which existing 

systems could not provide the information necessary for producing GAAP-based financial statements without use of 

the alternative valuation methods. This is intended to provide an alternative method to adoption of GAAP when 

historical records and systems do not provide a basis for valuation of opening balances in accordance with SFFAS 

No. 3, Accounting for Inventory and Related Property. Reporting entities that meet either condition and elect to 

apply this statement should follow the guidance in SFFAS No. 21, Reporting Corrections of Errors and Changes in 

Accounting Principles. SFFAS No. 48 is effective beginning in fiscal year 2017. Early implementation was 

permitted. DOD did partially implement in 2016 and select component entities have continued to implement in 

2017. DOD has not declared full implementation yet.

• FASAB issued SFFAS No. 50, Establishing Opening Balances for General Property, Plant and Equipment. SFFAS 

No. 50 permits a reporting entity to apply an alternative valuation method in establishing opening balances and 

applies when a reporting entity is presenting financial statements or one or more line items addressed by this 

statement. This standard can be applied for the first time or after a period during which existing systems could not 

provide the information necessary for producing GAAP-based financial statements without use of the alternative 

valuation methods. This is intended to provide an alternative method to adoption of GAAP when historical records 

and systems do not provide a basis for valuation of opening balance in accordance with SFFAS No. 6, Accounting 

for Property, Plant, and Equipment. This application is available to each reporting entity only once per line item 

 1 With the exception of the Black Lung program, which has a rolling 25-year projection period through September 30, 2042.
 NOTES TO THE FINANCIAL STATEMENTS 64

addressed in this statement. Reporting entities meeting the conditions and electing to apply this statement should 

follow the guidance in SFFAS No. 21, Reporting Corrections of Errors and Changes in Accounting Principles.

SFFAS No. 50 is effective beginning in fiscal year 2017. Early implementation was permitted. DOD did partially 

implement in 2016 and select component entities have continued to implement in 2017. DOD has not declared full 

implementation yet.

New Standards Issued and Not Yet Implemented

FASAB issued the following new standards that are applicable to the Financial Report, but are not yet implemented at 

the governmentwide level for fiscal year 2017:

• In December 2014, FASAB issued SFFAS No. 47, Reporting Entity. SFFAS No. 47 establishes principles to 

identify organizations for which elected officials are accountable. The standard also guides preparers of general 

purpose federal financial reports in determining what organizations to report upon, whether such organizations are 

considered “consolidation entities” or “disclosure entities,” and what information should be presented about those

organizations. An organization is considered a consolidation entity if, based on assessment of the following 

characteristics as a whole, the organization: is financed through taxes and other non-exchange revenues, is governed 

by the Congress and/or President, imposes or may impose risks and rewards to the federal government, and provides 

goods and services on a non-market basis. Organizations listed in the budget, except for non-federal organizations 

receiving federal assistance, would generally qualify as consolidation entities (Consolidation aggregates the 

individual financial statements of organizations that constitute a reporting entity and results in presentation of 

information for a single economic entity representing consolidated activities supported by taxes and other nonexchange revenue, resources, and obligations). A disclosure entity has a greater degree of autonomy with the federal 

government than a consolidation entity. To avoid obscuring information about these more autonomous organizations 

while still providing accountability, certain information for each disclosure entity (such as the nature of the federal 

government’s relationship to the disclosure entity, magnitude of relevant activity, and future exposure) and the 

aggregation of the disclosure entities are only going to be disclosed at the governmentwide level. The standard also 

requires information to be provided about related party relationships (organizations are considered related parties if 

one party has the ability to exercise significant influence over the other party in making policy decisions). SFFAS 

No. 47 is effective for periods beginning after September 30, 2017 and early implementation is not permitted.

• In April 2016, FASAB issued SFFAS No. 49, Public-Private Partnerships Disclosure Requirements. SFFAS No. 49 

establishes principles to ensure disclosure about Public-Private Partnerships (P3s) are presented in the reporting 

entity’s general purpose federal financial reports (GPFFRs). P3s are defined as “risk sharing” arrangements or 

transactions lasting more than five years between public and private sector entities. Disclosure requirements 

comprise quantitative and qualitative information to assist users in understanding the nature of P3s. P3s disclosures 

help achieve the operating performance and budgetary integrity objectives outlined in SFFAC No. 1. P3s are a form 

of investments. They should be adequately disclosed in order to assist report users in determining: (a) the important 

assets of the U.S. government and how effectively they are being managed and (b) the identification of risks. SFFAS 

No. 49 is effective for periods beginning after September 30, 2018 and early implementation is permitted; however, 

it is not being early implemented in fiscal year 2017.

• In January 2017, FASAB issued SFFAS No. 51, Insurance Programs. SFFAS No. 51 establishes accounting and 

financial reporting standards to ensure that insurance programs are adequately defined and report consistent 

information about the liabilities for losses incurred and claimed as well as expected losses during remaining 

coverage. These will replace the insurance guarantee program standards provided in paragraphs 97-121 of SFFAS 

No. 5, Accounting for Liabilities of the Federal Government. To support consistency, it identifies three categories: 

1) exchange transaction insurance programs other than life insurance, 2) nonexchange transaction insurance 

programs and 3) life insurance programs. Insurance programs are categorized based upon the type of revenue 

received as defined by SFFAS No. 7, Accounting for Revenue and Other Financing and Concepts for Reconciling 

Budgetary and Financial Accounting, as amended. This provides guidance as to how and when insurance programs 

should recognize revenue, expenses and liabilities according to the aforementioned categories. The recognition 

measurement, and disclosure guidance provides for concise, meaningful and transparent information regarding the 

operating performance of insurance programs. SFFAS No. 51 is effective for periods beginning after September 30, 

2018 and early implementation is not permitted. 

• In May 2017, FASAB issued SFFAS 52, Tax Expenditures. SFFAS No. 52 requires certain information on tax 

expenditures to assist users of the Financial Report in understanding the existence, purpose, and impact of tax 

expenditures. It requires that the Financial Report include narrative disclosures and information regarding tax 

expenditures, the general purpose of tax expenditures, the impact on and treatment of tax expenditures within the 

federal budget process, and the impact of tax expenditures on the government’s financial position and condition. It 
65 NOTES TO THE FINANCIAL STATEMENTS 

also requires that the Financial Report alert readers regarding the availability of published information on tax 

expenditure estimates, such as those published annually by the Department of the Treasury’s Office of Tax Policy. 

SFFAS No. 52 also encourages presentation of tax expenditures as other information (OI) in the Financial Report. 

SFFAS No. 52 is effective for periods beginning after September 30, 2017 and early implementation is permitted; 

however, it is not being early implemented. 

C. Accounts and Taxes Receivable

Accounts receivable represent claims to cash or other assets from entities outside the government that arise from the

sale of goods or services, duties, fines, certain license fees, recoveries, or other provisions of the law. Accounts receivable are

reported net of an allowance for uncollectible amounts. An allowance is established when it is more likely than not the

receivables will not be totally collected. The allowance method varies among the agencies in the government and is usually

based on past collection experience and is re-estimated periodically as needed. Methods include statistical sampling of

receivables, specific identification and intensive analysis of each case, aging methodologies, and percentage of total

receivables based on historical collection.

Taxes receivable consist primarily of uncollected tax assessments, penalties, and interest when taxpayers have agreed or

a court has determined the assessments are owed. Taxes receivable do not include unpaid assessments when taxpayers or a

court have not agreed that the amounts are owed (compliance assessments) or the government does not expect further

collections due to factors such as the taxpayer’s death, bankruptcy, or insolvency (write-offs). Taxes receivable are reported

net of an allowance for the estimated portion deemed to be uncollectible. The majority of the allowance for uncollectible

amounts is based on projections of collectible amounts from a statistical sample of unpaid assessments.

D. Loans Receivable and Loan Guarantee Liabilities

Direct loans obligated and loan guarantees committed after fiscal year 1991 are reported based on the present value of

the net cash flows estimated over the life of the loan or guarantee. The difference between the outstanding principal of the

direct loans and the present value of their net cash inflows is recognized as a subsidy cost allowance. The present value of

estimated net cash flows of the loan guarantees is recognized as a liability for loan guarantees.

The subsidy expense for direct or guaranteed loans disbursed during a fiscal year is the present value of estimated net

cash flows for those loans or guarantees. A subsidy expense also is recognized for modifications made during the year to

loans and guarantees outstanding and for re-estimates made as of the end of the fiscal year to the subsidy allowances or loan

guarantee liability for loans and guarantees outstanding.

Direct loans obligated and loan guarantees committed before fiscal year 1992 are valued under two different

methodologies within the government: the allowance-for-loss method and the present-value method. Under the allowancefor-loss method, the outstanding principal of direct loans is reduced by an allowance for uncollectible amounts; the liability

for loan guarantees is the amount the agency estimates would more likely than not require future cash outflow to pay default

claims. Under the present-value method, the outstanding principal of direct loans is reduced by an allowance equal to the

difference between the outstanding principal and the present value of the expected net cash flows. The liability for loan

guarantees is the present value of expected net cash outflows due to the loan guarantees.

E. Inventories and Related Property

Inventory is tangible personal property that is (1) held for sale, principally to federal agencies, (2) in the process of

production for sale, or (3) to be consumed in the production of goods for sale or in the provision of services for a fee. SFFAS

No. 3, Accounting for Inventory and Related Property, requires inventories held for sale and held in reserve for future sale

within the government to be valued using either historical cost or a method that reasonably approximates historical cost.

Historical cost methods include first-in-first-out, weighted average, and moving average. Any other valuation method may be

used if the results reasonably approximate one of the historical cost methods. FASAB issued additional guidance SFFAS No.

48, which permits a reporting entity to apply an alternative valuation method in establishing opening balances for inventory,

operating materials and supplies and stockpile materials and is intended to provide an alternative valuation method when

historical records and systems do not provide a basis for valuation of opening balances in accordance with SFFAS No. 3.
 NOTES TO THE FINANCIAL STATEMENTS 66

DOD values approximately 98 percent of resale inventory using the moving average cost method. Additionally, DOD

reports the remaining 2 percent of resale inventories at an approximation of historical cost using latest acquisition cost (LAC)

adjusted for holding gains and losses. DOD continues to implement SFFAS No. 48. Some components within DOD used the

deemed cost measures from this standard for fiscal year 2016; additional components used the deemed cost measure from the

standard in fiscal year 2017 using a combination of standard price (selling price), latest acquisition cost, estimated historical

cost, and historical cost as the basis for valuation.

Related property includes commodities, seized monetary instruments, forfeited and foreclosed property, raw materials

and work in process. Operating materials and supplies are valued at historical cost or on a basis that reasonably approximates

historical cost using the purchase and consumption method of accounting. Operating materials and supplies that are valued at

latest acquisition cost and standard pricing are not adjusted for holding gains and losses.

F. Property, Plant, and Equipment

Property, Plant and Equipment (PP&E) consists of tangible assets including buildings, equipment, construction in

progress, internal use software, assets acquired through capital leases (including leasehold improvements), and other assets

used to provide goods and services.

SFFAS No. 6 requires general PP&E to be recorded at cost. Cost shall include all costs incurred to bring the PP&E to a

form and location suitable for its intended use. PP&E used in government operations are carried at acquisition cost, with the

exception of some DOD equipment. In some instances, DOD equipment is valued at estimated historical costs, which are

calculated using internal DOD records. To establish a baseline, DOD accumulated information relating to program funding

and associated equipment, equipment useful life, program acquisitions, as well as disposals. The equipment baseline is

updated using expenditure information and information related to acquisitions and disposals. FASAB issued additional

guidance, SFFAS No. 50, which permits a reporting entity to apply an alternative method to establish opening balances for

general PP&E and is intended to provide an alternative valuation method when existing systems do not provide a basis for

valuation of opening balances in accordance with SFFAS No. 6. During fiscal year 2016, select DOD components

implemented this standard; additional components used the alternative valuation methods under the standard in fiscal year

2017 using historical records such as expenditure data, contracts, budget information, and engineering documentation as the

method of valuation. SFFAS No. 50 also permits a reporting entity to apply an alternative method to establish opening

balances for land and land rights which includes excluding land and land rights from the PP&E opening balance. If this

method is applied, future land and land right acquisitions should be expensed. DOD has extensive efforts underway to change

asset values to include the exclusion of land and land rights from opening balances in fiscal year 2018.

All PP&E is capitalized if the acquisition costs (or estimated acquisition cost for DOD) are in excess of capitalization

thresholds that vary considerably between the federal entities. Depreciation and amortization expense applies to PP&E

reported on the balance sheets except for land, unlimited duration land rights, and construction in progress. Depreciation and

amortization are recognized using the straight-line method over the estimated useful lives of the assets. All PP&E are

assigned useful lives depending on their category. The cost of acquisition, betterment, or reconstruction of all multi-use

heritage assets is capitalized as general PP&E and is depreciated. Construction in progress is used for the accumulation of the

cost of construction or major renovation of fixed assets during the construction period. The assets are transferred out of

construction in progress when the project is substantially completed. Internal use software includes purchased commercial offthe-shelf software, contractor-developed software, and software internally developed.

For financial reporting purposes, other than multi-use heritage assets, stewardship assets are not recorded as part of

PP&E. Stewardship assets consist of public domain land (stewardship land) and heritage assets. Examples of stewardship

land include national parks, wildlife refuges, national forests, and other lands of national and historical significance. Heritage

assets include national monuments, and historical sites that among other characteristics are of historical, natural, cultural,

educational, or artistic significance. Stewardship land and most heritage assets are considered priceless and irreplaceable, and

as such they are measured in physical units with no financial value assigned to them. Some heritage assets have been

designated as multi-use heritage assets, for example the White House, the predominant use of which is in government

operations. For more details on stewardship assets, see Note 24—Stewardship Land and Heritage Assets.
67 NOTES TO THE FINANCIAL STATEMENTS 

G. Debt and Equity Securities

Debt and equity securities are classified as held-to-maturity, available-for-sale, and trading. Held-to-maturity debt and

equity securities are reported at amortized cost, net of unamortized premiums and discounts. Available-for-sale debt and

equity securities are reported at fair value. Trading debt and equity securities are reported at fair value.

H. Investments in Government-Sponsored Enterprises

The senior preferred stock and associated common stock warrants in GSEs are presented at their fair value. The annual

valuation to estimate the asset’s fair value incorporates various forecasts, projections, and cash flow analyses. These

valuations are performed on the senior preferred stock and warrants and any changes in valuation, including impairment, are

recorded and disclosed in accordance with SFFAS No. 7, Accounting for Revenue and Other Financing Sources and

Concepts for Reconciling Budgetary and Financial Accounting, as amended. Since the valuation is an annual process, the

changes in valuation of the senior preferred stock and warrants are deemed usual and recurring. Accordingly, changes in

valuation are recorded as an exchange transaction which is either an expense or revenue. Since the costs of the senior

preferred stock and warrants are reflected in exchange transactions, any change in valuation is also recorded as an exchange

transaction.

The Housing and Economic Recovery Act of 2008 (HERA) established the Federal Housing Finance Agency (FHFA),

which was created to enhance authority over the GSEs, and provide the Secretary of the Treasury with certain authorities to

support the financial stability of the GSEs. In September 2008, Treasury entered into a Senior Preferred Stock Purchase

Agreement (SPSPA) with each GSE. The GSEs were placed under conservatorship and require that Treasury increase their

investment in the GSEs’ senior preferred stock if, at the end of any quarter, the FHFA, acting as the conservator, determines

that the liabilities of either GSE exceed its respective assets. The potential liabilities to the GSEs, if any, are assessed

annually and recorded at the gross estimated amount. For more detailed information on investments in GSEs, refer to Note

8—Investments in Government-Sponsored Enterprises.

I. Federal Debt

Accrued interest on Treasury securities held by the public is recorded as an expense when incurred, instead of when

paid. Certain Treasury securities are issued at a discount or premium. These discounts and premiums are amortized over the

term of the security using an interest method for all long-term securities and the straight line method for short-term securities.

Treasury also issues Treasury Inflation-Protected Securities (TIPS). The principal for TIPS is adjusted daily over the life of

the security based on the Consumer Price Index for all Urban Consumers (CPI-U).

J. Federal Employee and Veteran Benefits Payable

Generally, federal employee and veteran benefits payable are recorded during the time employee services are rendered.

The related liabilities for defined benefit pension plans, veterans’ compensation, burial and education benefits, postretirement health benefits, and post-retirement life insurance benefits, are recorded at estimated present value of future

benefits, less any estimated present value of future normal cost contributions. Normal cost is the portion of the actuarial

present value of projected benefits allocated as an expense for employee services rendered in the current year. Actuarial gains

and losses (as well as prior service cost, if any) are recognized immediately in the year they occur without amortization.

The Department of Veterans Affairs (VA) also provides certain veterans and/or their dependents with pension benefits,

based on annual eligibility reviews, if the veteran died or was disabled for nonservice-related causes. The actuarial present

value of the future liability for these VA pension benefits is a non-exchange transaction and is not required to be recorded on

the Balance Sheet. These benefits are expenses when benefits are paid rather than when employee services are rendered.

The liabilities for Federal Employees’ Compensation Act (workers compensation) benefits are recorded at estimated

present value of future benefits for injuries and deaths that have already been incurred.

Gains and losses from changes in long-term assumptions used to estimate federal employee pensions, Other Retirement

Benefits (ORB), and Other Postemployment Benefits (OPEB) liabilities are reflected separately on the Statement of Net Cost
 NOTES TO THE FINANCIAL STATEMENTS 68

and the components of the expense related to federal employee pension, ORB, and OPEB liabilities are disclosed in Note

12—Federal Employee and Veteran Benefits Payable as prescribed by 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 addition, SFFAS No. 33 also provides a standard for selecting the discount rate assumption for

present value estimates of federal employee pension, ORB, and OPEB liabilities.

K. Environmental and Disposal Liabilities

Environmental and disposal liabilities are recorded at the estimated current cost of removing, containing, treating,

and/or disposing of radioactive waste, hazardous waste, chemical and nuclear weapons, as well as other environmental

contaminations (including asbestos), assuming the use of current technology. Hazardous waste is a solid, liquid, or gaseous

waste that, because of its quantity or concentration, presents a potential hazard to human health or the environment.

Remediation consists of removal, decontamination, decommissioning, site restoration, site monitoring, closure as well as

post-closure cost, treatment, and/or safe containment. Where technology does not exist to clean up radioactive or hazardous

waste, only the estimable portion of the liability (typically monitoring and safe containment) is recorded.

L. Insurance and Guarantee Program Liabilities

Insurance and guarantee programs (such as Federal Crop Insurance Program and Benefit Pension Plans Program)

provide protection to individuals or entities against specified risks except for those specifically covered by federal employee

and veteran benefits, social insurance, and loan guarantee programs. Insurance and guarantee program funds are commonly

held in revolving funds in the government and losses sustained by participants are paid from these funds. Many of these

programs receive appropriations to pay excess claims and/or have authority to borrow from the Treasury. The values of

insurance and guarantee program liabilities are particularly sensitive to changes in underlying estimates and assumptions.

Insurance and guarantee programs with recognized liabilities in future periods (i.e., liabilities that extend beyond one year)

are reported at their actuarial present value.

M. Deferred Maintenance and Repairs

Deferred maintenance and repairs are maintenance and repairs that were not performed when they should have been or

scheduled maintenance and repairs that were delayed or postponed. Maintenance is the act of keeping fixed assets in

acceptable condition, including preventative maintenance, normal repairs, and other activities needed to preserve the assets,

so they continue to provide acceptable service and achieve their expected life. Maintenance and repairs exclude activities

aimed at expanding the capacity of assets or otherwise upgrading them to serve needs different from those originally

intended. Deferred maintenance and repairs expenses are not accrued in the Statements of Net Cost or recognized as

liabilities on the Balance Sheet. However, deferred maintenance and repairs information is disclosed in the unaudited RSI

section of this report. Please see unaudited RSI, Deferred Maintenance & Repairs for additional information including

measurement methods.

N. Contingencies

Liabilities for contingencies are recognized on the Balance Sheet when both:

• A past transaction or event has occurred, and

• A future outflow or other sacrifice of resources is probable and measurable.

The estimated contingent liability may be a specific amount or a range of amounts. If some amount within the range is a 

better estimate than any other amount within the range, then that amount is recognized. If no amount within the range is a 

better estimate than any other amount, then the minimum amount in the range is recognized and the range is disclosed.

Contingent liabilities that do not meet the above criteria for recognition, but for which there is at least a reasonable 

possibility that a loss may be incurred, are disclosed in Note 18—Contingencies. 
69 NOTES TO THE FINANCIAL STATEMENTS 

O. Commitments

In the normal course of business, the government has a number of unfulfilled commitments that may require the use of

its financial resources. Note 19—Commitments describes the components of the government’s actual commitments that are

disclosed due to their nature and/or their amount. They include long-term leases, undelivered orders, and other commitments.

P. Social Insurance

A liability for social insurance programs (Social Security, Medicare, Railroad Retirement, Black Lung, and

Unemployment) is recognized for any unpaid amounts currently due and payable to beneficiaries or service providers as of

the reporting date. No liability is recognized for future benefit payments not yet due. For further information, see Note 22—

Social Insurance and the unaudited RSI—Social Insurance section.

Q. Funds from Dedicated Collections

Generally, funds from dedicated collections are financed by specifically identified revenues, provided to the 

government by non-federal sources, often supplemented by other financing sources that remain available over time. These 

specifically identified revenues and other financing sources are required by statute to be used for designated activities, 

benefits, or purposes, and must be accounted for separately from the government’s general revenues. The three required 

criteria for a fund from dedicated collections are:

• A statute committing the government to use specifically identified revenues and/or other financing sources that are 

originally provided to the government by a non-federal source only for designated activities, benefits, or purposes;

• Explicit authority for the fund to retain revenues and/or other financing sources not used in the current period for 

future use to finance the designated activities, benefits, or purposes; and

• A requirement to account for and report on the receipt, use, and retention of the revenues and/or other financing 

sources that distinguishes the fund from the government’s general revenues.

For more details on funds from dedicated collections, see Note 20—Funds from Dedicated Collections.

R. Related Party Transactions

Federal Reserve System

The Federal Reserve System (FR System) was created by Congress under the Federal Reserve Act of 1913. The FR 

System consists of the Federal Reserve Board of Governors (Board), the Federal Open Market Committee (FOMC), and the 

Federal Reserve Banks (FRBs). Collectively, the FR System serves as the nation’s central bank and is responsible for 

formulating and conducting monetary policy, issuing and distributing currency (Federal Reserve Notes), supervising and 

regulating financial institutions, providing nationwide payment systems (including large-dollar transfers of funds, Automated 

Clearing House (ACH) operations, and check collection), providing certain financial services to federal agencies and fiscal 

principals, and serving as the U.S. government’s bank. Monetary policy includes actions undertaken by the FR System that 

influence the availability and cost of money and credit as a means of helping to promote national economic goals. The FR 

System also conducts operations in foreign markets in order to counter disorderly conditions in exchange markets or to meet 

other needs specified by the FOMC to carry out its central bank responsibilities. The FR System is not included in the federal 

budget. It is considered an independent central bank, and its decisions are not ratified by the executive branch of the federal 

government.

The government interacts with the FRBs in a variety of ways, including the following:

• The FRBs serve as the government’s fiscal agent and depositary, executing banking and other financial transactions 

on the government’s behalf. The government reimburses the FRBs for these services, the cost of which is included 

on the Statements of Net Cost;

• The FRBs hold Treasury and other federal securities in the FRBs’ System Open Market Account (SOMA) for the 

purpose of conducting monetary policy (Note 11—Federal Debt Securities Held by the Public and Accrued Interest);
 NOTES TO THE FINANCIAL STATEMENTS 70

• The FRBs hold gold certificates issued by the government in which the certificates are collateralized by gold (Note 

2—Cash and Other Monetary Assets);

• The FRBs hold Special Drawing Rights (SDR) certificates issued by the government which are collateralized by 

SDRs (see Note 2—Cash and Other Monetary Assets); and,

• The FRBs are required by Board policy to transfer their excess earnings to the government, which are included in Other 

Taxes and Receipts on the Statements of Operations and Changes in Net Position.

The government also consults with the FR System on matters affecting the economy and certain financial stabilization 

activities (Note 4—Loans Receivable and Loan Guarantee Liabilities, Net). The above financial activities involving the 

government are accounted for and disclosed in the government consolidated financial statements. In accordance with SFFAC 

No. 2, Entity and Display, the FR System’s assets, liabilities, and operations are not consolidated into the government’s 

financial statements, and are, therefore, not a part of the reporting entity.

Federal Reserve System Structure

The Board is an independent organization governed by seven members who are appointed by the President and 

confirmed by the Senate. The full term of a Board member is 14 years, and the appointments are staggered so that one term 

expires on January 31 of each even-numbered year. The Board has a number of supervisory and regulatory responsibilities 

for institutions including, among others, state-chartered banks that are members of the FR System, bank holding companies, 

and savings and loan holding companies. In addition, the Board has general supervisory responsibilities for the 12 FRBs, and 

issues currency (Federal Reserve Notes) to the FRBs for distribution.

The FOMC is comprised of the seven Board members and five of the 12 FRB presidents, and is charged with 

formulating and conducting monetary policy primarily through open market operations (the purchase and sale of certain

securities in the open market), the principal tool of national monetary policy. These operations affect the amount of reserve

balances available to depository institutions, thereby influencing overall monetary and credit conditions. The 12 FRBs are 

chartered under the Federal Reserve Act, which requires each member bank to own the capital stock of its FRB. Supervision 

and control of each FRB is exercised by a board of directors, of which three are appointed by the Board of Governors of the 

FR System, and six are elected by their member banks.

The FRBs participate in formulating and conducting monetary policy, distribute currency and coin, and serve as fiscal 

agents for the government, other federal agencies, and fiscal principals. Additionally, the FRBs provide short-term loans to 

depository institutions and loans to participants in programs or facilities with broad-based eligibility in unusual and exigent 

circumstances when approved by the Board and the Treasury Secretary.

Federal Reserve System Assets and Liabilities

The FRBs hold Treasury and other securities in the SOMA for the purpose of conducting monetary policy. Treasury 

securities held by the FRBs totaled $1,964.7 billion and $1,750.2 billion at September 30, 2017 and 2016, respectively (Note 

11—Federal Debt Securities Held by the Public and Accrued Interest). These assets are generally subject to the same market 

(principally interest-rate) and credit risks as other financial instruments. In the open market, the FR System purchases and 

sells Treasury securities as a mechanism for controlling the money supply.

The FRBs have deposit liabilities with Treasury and depository institutions. The FRBs issue Federal Reserve Notes, the 

circulating currency of the United States, which are collateralized by the Treasury securities and other assets held by the 

FRBs. Financial and other information concerning the FR System, including financial statements for the Board and the FRBs, 

may be obtained at https://www.federalreserve.gov.

FRB Residual Earnings Transferred to the Government

FRBs generate income from interest earned on securities, reimbursable services provided to federal agencies, and the 

provision of priced services to depository institutions, as specified by the Monetary Control Act of 1980. Although the FRBs 

generate earnings from carrying out open market operations (via the earnings on securities held in the SOMA account), their 

execution of these operations is for the purpose of accomplishing monetary policy rather than generating earnings. Each FRB 

is required by Board policy to transfer to the government its residual (or excess) earnings, after providing for the cost of 

operations, payment of dividends, and surplus funds not to exceed an FRB’s allocated portion of an aggregate of $10 billion 

for all FRBs. This is in accordance with the provisions of a new statute, Fixing America’s Surface Transportation Act of 2015 

(P.L. 114-94). These residual earnings may vary due to, among other things, changes in the SOMA balance levels that may 

occur in conducting monetary policy. Under P.L. 114-94, if an FRB’s earnings for the year are not sufficient to provide for 

the cost of operations, payment of dividends, or allocated portion of $10 billion aggregate surplus funds limitation, an FRB 

will suspend its payments to the government until such earnings become sufficient. The FRB residual earnings of $81.3

billion and $115.7 billion for fiscal years ended September 30, 2017 and 2016, respectively, are reported as other taxes and 

receipts on the Statements of Operations and Changes in Net Position. Accounts and taxes receivables, net, includes a 
71 NOTES TO THE FINANCIAL STATEMENTS 

receivable for FRB’s residual earnings which represents the earnings due to the General Fund as of September 30, but not 

collected by the General Fund until after the end of the month. As of September 30, 2017 and 2016, interest receivable on 

FRB’s residual earnings are $0.3 billion and $0.4 billion, respectively (Note 3—Accounts and Taxes Receivables, Net).

Other Related Parties

The federal government, through the FHFA is the conservator for Fannie Mae and Freddie Mac. See Note 8—

Investments in Government-Sponsored Enterprises.

The Secretary of Transportation has possession of two long term notes with the National Railroad Passenger Service 

Corporation (more commonly referred to as Amtrak). The first note is for $4 billion and matures in 2975 and the second note 

is for $1.1 billion and matures in 2082 with renewable 99 year terms. Interest is not accruing on these notes as long as the 

current financial structure of Amtrak remains unchanged. If the financial structure of Amtrak changes, both principal and 

accrued interest are due and payable. The Department of Transportation (DOT) does not record the notes in its financial 

statements since the notes, with maturity dates of 2975 and 2082, are considered fully uncollectible due to the lengthy terms 

and Amtrak’s history of operating losses.

In addition, DOT has possession of all the preferred stock shares (109.4 million) of Amtrak. Congress, through DOT, 

has continued to fund Amtrak since approximately 1972; originally through grants, then, beginning in 1981, through the 

purchase of preferred stock, and then through grants again after 1997. The Amtrak Reform and Accountability Act of 1997

changed the structure of the preferred stock by rescinding the voting rights with respect to the election of the Board of 

Directors and by eliminating the preferred stock’s liquidation preference over the common stock. The Act also eliminated 

further issuance to DOT of preferred stock. DOT does not record the Amtrak preferred stock in its financial statements 

because, under the Corporation's current financial structure, the preferred shares do not have a liquidation preference over the 

common shares, the preferred shares do not have any voting rights, and dividends are neither declared nor in arrears.

In general, Amtrak is not a department, agency, or instrumentality of the government or DOT. Of the 10 members of 

Amtrak’s Board of Directors, eight are appointed by the President and are subject to confirmation by the United States 

Senate. Once appointed, board members, as a whole, act independently without the consent of the government or any of its 

officers to set Amtrak policy, determine its budget, and decide operational issues. The Secretary of Transportation and the 

President of Amtrak (a nonvoting member) are statutorily appointed to the 10 member board. Traditionally, the Secretary of 

Transportation has designated the FRA Administrator to represent the Secretary at Board meetings.

The Export-Import Bank of the United States (Ex-Im Bank) has contractual agreements with the Private Export Funding 

Corporation (PEFCO). PEFCO, which is owned by a consortium of private-sector banks, industrial companies, and financial 

services institutions, makes and purchases from private sector lenders, medium-term and long-term fixed-rate and variablerate loans guaranteed by Ex-Im Bank to foreign borrowers to purchase U.S. made equipment “export loans”.

Ex-Im Bank’s credit and guarantee agreement with PEFCO provides that Ex-Im Bank will guarantee the due and 

punctual payment of interest on PEFCO’s secured debt obligations which Ex-Im Bank has approved, and grants to Ex-Im 

Bank a broad measure of supervision over PEFCO’s major financial management decisions, including entitlement to have 

representatives and attend and participate in all meetings of PEFCO’s board of directors, advisory board, and exporters’ 

council, and to review PEFCO’s financials and other records. This agreement extends through December 31, 2020.

The contractual agreements provide that Ex-Im Bank will (1) guarantee the due and punctual payment of principal, as 

well as interest on export loans made by PEFCO and (2) guarantee the due and punctual payment of interest on PEFCO’s 

long-term secured debt obligations when requested by PEFCO. Related to the amounts for Ex-Im Bank as shown in Note 4—

Loans Receivable and Loan Guarantee Liabilities, Net, these guarantees to PEFCO, aggregating $6.4 billion and $5.7 billion 

at September 30, 2017, and 2016, respectively, are included within the principal amounts guaranteed by the United States. 

The estimated losses related to these transactions is included within the guaranteed loan liability. Ex-Im Bank received fees 

for the agreements totaling $0.07 billion and $0.05 billion for fiscal years 2017 and 2016, respectively, which are included as 

earned revenue on the Statements of Net Cost. 

S. Unmatched Transactions and Balances

The reconciliation of the change in net position requires that the difference between ending and beginning net position 

equals the difference between revenue and cost, plus or minus prior-period adjustments.

The unmatched transactions and balances are needed to bring the change in net position into balance. The primary 

factors affecting this out of balance situation are:

• Unmatched intragovernmental transactions and balances between federal agencies; and

• Errors and restatements in federal agencies’ reporting.
 NOTES TO THE FINANCIAL STATEMENTS 72

As intragovernmental transactions and balances reduce to immaterial amounts, the corresponding individual lines in the 

Unmatched Transactions and Balances table are adjusted to remove the differences for the fiscal year. Please refer to the table 

of Unmatched Transactions and Balances in Other Information (Unaudited) for examples of the individual lines. Materiality 

for these adjustments is considered in the absolute value, when at or below $0.1 billion.

Refer to the Other Information (unaudited)—Unmatched Transactions and Balances for detailed information.

T. Prior-Period Adjustments

During fiscal years 2016 and 2017, the Pension Benefit Guaranty Corporation (PBGC) and DOD reported prior period

adjustments impacting the financial statements. DOD reported an increase of over $37 billion and a $1.5 billion decrease in

fiscal year 2017 and 2016, respectively, to beginning net position due to implementation of SFFAS No. 48, Opening

Balances for Inventory, Operating Materials and Supplies, and Stockpile Materials and SFFAS No. 50 Establishing Opening

Balances for General Property, Plant and Equipment. DOD adopted SFFAS No. 48 for stockpile materials for selected

components, which is reported in Inventories and Related Property. In addition, DOD adopted SFFAS No. 50 for PP&E for

selected components, which is reported in PP&E.

In fiscal year 2016, PBGC’s trust fund was reported as a fiduciary activity. During fiscal year 2017, the trust fund was

reassessed for fiduciary fund reporting in the Financial Report. Based on the reassessment of the guidance within the federal

accounting standards and the guidance provided by the establishment of PBGC under the Employee Retirement Income

Security Act (ERISA), as amended, and the U.S. Code it was determined that PBGC’s trust fund assets and liabilities should

be consolidated in the financial statements and not reported as fiduciary activity in the notes. As a result the prior year

financial statements were restated thus reversing the change in accounting principle of an increase of $0.1 billion to net

position previously reported in fiscal year 2016.

Note 20—Funds from Dedicated Collections included $0.2 billion in prior-period adjustments for Gulf Coast

Ecosystem Restoration Council and Department of Housing and Urban Development for fiscal year 2017.

U. Reclassifications

The Railroad Retirement and Black Lung programs are combined on the Statements of Social Insurance (SOSI) in

2016. In previous years, these programs were broken out and displayed separately.

In fiscal year 2017, additional lines were included in the presentation of the Statement of Changes in Cash Balance from

Budget and Other Activities to provide a further breakdown of certain categories of transactions.

A review was done to enhance the format and readability of the Financial Report leading to consolidation of immaterial

lines within tables and removal of information not required by FASAB.

V. Restatements

In fiscal year 2017, the assets and liabilities of PBGC were reassessed for reporting purposes. In fiscal year 2016

PBGC’s revolving fund was consolidated in the financial statements and the trust fund was reported as fiduciary activity in

the notes. For fiscal year 2017, both funds were consolidated in the financial statements. This change resulted in a correction

of errors for the prior fiscal year 2016 financial statements which is reported as a restatement of the amounts on the Balance

Sheet, Statement of Net Cost, Statement of Operations and Changes in Net Position, Reconciliations of Net Operating Cost

and Budget Deficit, Statements of Changes in Cash Balance from Budget and Other Activities, Note 2—Cash and Other

Monetary Assets ($3.3 billion increase), Note 3—Accounts and Taxes Receivable ($0.1 billion decrease), Net, Note 7—Debt

and Equity Securities ($60.0 billion increase), Note 9—Other Assets ($1.1 billion increase), Note 15—Insurance and

Guarantee Program Liabilities ($64.7 billion increase), and Note 16—Other Liabilities ($4.0 billion increase).

In fiscal year 2017, errors were noted in the presentation of Federal Housing Administration’s (FHA) fiscal year 2016

Note 4—Loans Receivable and Loan Guarantee Liabilities, Net that required correction of balances reported in fiscal year

2017. The corrections resulted in the restatement of the prior year amounts for FHA’s principal amount of loans under

guarantee ($2.9 billion increase), principal amount guaranteed by the United States ($2.5 billion increase), and subsidy

expense (income) for the fiscal year ($8.1 billion increase).
73 NOTES TO THE FINANCIAL STATEMENTS 

W. Fiduciary Activities

Fiduciary activities are the collection or receipt, as well as the management, protection, accounting, investment and

disposition by the government of cash or other assets in which non-federal individuals or entities have an ownership interest

that the government must uphold. Fiduciary cash and other fiduciary assets are not assets of the government and are not

recognized on the Balance Sheet. See Note 21—Fiduciary Activities, for further information.

X. Use of Estimates

The government has made certain estimates and assumptions relating to the reporting of assets, liabilities, revenues,

expenses, and the disclosure of contingent liabilities to prepare these financial statements. There are a large number of factors

that affect these assumptions and estimates, which are inherently subject to substantial uncertainty arising from the likelihood

of future changes in general economic, regulatory, and market conditions. As such, actual results will differ from these

estimates and such differences may be material.

Significant transactions subject to estimates include loans and credit program receivables, federal employee and veteran

benefits payable, credit reform subsidy costs, investments in GSEs, and other non-federal securities and related impairment,

tax receivables, loan guarantees, depreciation, imputed costs, other actuarial liabilities, cost and earned revenue allocations,

as well as contingencies and any related recognized liabilities.

The government recognizes the sensitivity of credit reform modeling to slight changes in some model assumptions and

uses regular review of model factors, statistical modeling, and annual re-estimates to reflect the most accurate cost of the

credit programs to the U.S. Government. Federal Credit Reform Act of 1990 (FCRA) loan receivables and loan guarantees

are disclosed in Note 4—Loans Receivable and Loan Guarantee Liabilities, Net.

The forecasted future cash flows used to determine credit reform amounts are sensitive to slight changes in model

assumptions, such as general economic conditions, specific stock price volatility of the entities in which the government has

an equity interest, estimates of expected default, and prepayment rates. Therefore, forecasts of future financial results have

inherent uncertainty.

The annual valuation performed as of September 30 on the preferred stock and warrants comprising the Investments in

GSEs line item on the Balance Sheets incorporates various forecasts, projections, and cash flow analyses to develop an

estimate of the asset’s fair value. The value of the senior preferred stock is estimated by first estimating the fair value of the

total equity of each GSE (which, in addition to the senior preferred stock, is comprised of other equity instruments including

common stock, common stock warrants, and junior preferred stock). The fair value of the total equity is based on a

discounted cash flow valuation methodology, whereby the primary input is the present value of the projected quarterly

dividend payments. The fair value of the GSE’s other equity instruments are then deducted from its total equity, with the

remainder representing the fair value of the senior preferred stock. The primary input into the warrants valuation is the

market value of the shares of common stock of the GSEs which, along with the junior preferred stock, are traded on the overthe-counter (OTC) Bulletin Board. Treasury evaluates the need for adjusting the OTC market-based valuation of the warrants

for the effects, if any, of significant events occurring after the close of the market but before the end of the measurement date.

Treasury records any changes in valuation, including impairment, and discloses changes in accordance with SFFAS No. 7,

Accounting for Revenue and Other Financing Sources and Concepts for Reconciling Budgetary and Financial Accounting, as

amended. Since the valuation is an annual process, Treasury deems changes in valuation of the preferred stock and warrants

as usual and recurring.

Treasury performs annual calculations, as of September 30, to assess the need for recording an estimated liability in

accordance with SFFAS No. 5, Accounting for Liabilities of The Federal Government, related to the government’s funding

commitment to the GSEs under the SPSPAs. Liability recognition is predicated on the probable future occurrence of an

excess of liabilities and minimum capital reserve amounts, as defined, over the assets of either GSE at the end of any

reporting quarter. The occurrence of future GSE deficits, which ultimately determines the liability to the GSEs, is most

sensitive to future changes in the housing price index and, to a lesser extent, future changes in guarantee fees received by the

GSEs on single family mortgages and interest rates. For more detailed information on investments in GSEs and the amended

SPSPAs, see Note 8—Investments in Government-Sponsored Enterprises.

The government offers its employees’ pension and other post-employment retirement benefits, as well as life and health

insurance. The Office of Personnel Management administers the largest civilian plan and the Department of Defense and

Department of Veterans Affairs administer the military plans. Generally the benefits payable are recorded during the time

employee services are rendered. The related liabilities for defined benefit pension plans, veterans’ compensation and burial
 NOTES TO THE FINANCIAL STATEMENTS 74

benefits, post-retirement health benefits, life insurance benefits, education benefits, and Federal Employees’ Compensation

Act benefits are recorded at estimated present value of future benefits, less any estimated present value of future normal cost

contributions. See Note 12—Federal Employee and Veteran Benefits Payable for additional information.

Y. Credit Risk

Credit risk is the potential, no matter how remote, for financial loss from a failure of a borrower or counterparty to

perform in accordance with underlying contractual obligations. The government takes on credit risk when it makes direct

loans or guarantees to non-federal entities, provides credits to foreign entities, or becomes exposed to institutions which

engage in financial transactions with foreign countries.

The government also takes on credit risk related to committed, but undisbursed direct loans, funding commitments to

GSEs, guarantee of money market funds, and other activities. These activities generally focus on the underlying problems in

the credit markets. These programs were developed to provide credit where borrowers are not able to get access to credit with

reasonable terms and conditions. Because these programs attempt to correct for a market imperfection, it can expose the

government to potential costs and losses. The extent of the risk assumed is described in more detail in the notes to the

financial statements, and where applicable, is factored into credit reform models and reflected in fair value measurements.
75 NOTES TO THE FINANCIAL STATEMENTS 

Note 2. Cash and Other Monetary Assets

Cash and Other Monetary Assets as of September 30, 2017, and 2016

Restated

(In billions of dollars) 2017 2016

Unrestricted cash:

Cash held by Treasury for governmentwide operations ................................. 153.3 347.0

Other......................................................................................................... 3.7 11.6

Restricted..................................................................................................... 26.1 25.6

Total cash ............................................................................................... 183.1 384.2

International monetary assets ........................................................................ 63.3 59.6

Gold and silver ............................................................................................. 11.1 11.1

Foreign currency........................................................................................... 13.7 13.0

Total cash and other monetary assets ....................................................... 271.2 467.9

Unrestricted cash includes cash held by Treasury for governmentwide operations (Operating Cash) and all other

unrestricted cash held by the federal agencies. Operating Cash represents balances from tax collections, other revenue, federal

debt receipts, and other various receipts net of cash outflows for budget outlays and other payments. Treasury checks

outstanding are netted against Operating Cash until they are cleared by the Federal Reserve System. Other unrestricted cash

not included in Treasury’s Operating Cash balance includes balances representing cash, cash equivalents, and other funds

held by agencies, such as undeposited collections, deposits in transit, demand deposits, amounts held in trust, and imprest

funds. Operating Cash held by the Treasury decreased by $193.7 billion (a decrease of approximately 56 percent) in fiscal

year 2017 due to Treasury’s investment and borrowing decisions to manage the balance and timing of the Government’s cash

position.

Restrictions on cash are due to the imposition on cash deposits by law, regulation, or agreement. Restricted cash is

primarily composed of cash held by the DSCA. The Foreign Military Sales Program - DSCA included $21.3 billion and

$20.7 billion as of September 30, 2017, and 2016, respectively.

International monetary assets include the United States (U.S.) reserve position in the International Monetary Fund

(IMF) and U.S. holdings of Special Drawing Rights (SDRs). The U.S. reserve position in the IMF is an interest-bearing claim

on the IMF that includes the reserve asset portion of the financial subscription that the U.S. has paid in as part of its

participation in the IMF as well as any amounts drawn by the IMF from a letter of credit made available by the U.S. as part of

its financial subscription to the IMF. The IMF promotes international monetary cooperation and a stable payments system to

facilitate growth in the world economy. Its primary activities are surveillance of members’ economies, financial assistance, as

appropriate, and technical assistance.

Only a portion of the U.S. financial subscription to the IMF is made in the form of reserve assets; the remainder is

provided in the form of a letter of credit from the U.S. to the IMF. The balance available under the letter of credit totaled

$105.3 billion and $105.8 billion as of September 30, 2017, and 2016 respectively. The current participation in the IMF is

authorized in accordance with the Consolidated Appropriations Act of 2016 (P.L. 114-113). The U.S. reserve position in the

IMF had a U.S. dollar equivalent of $11.5 billion and $9.6 billion as of September 30, 2017, and 2016, respectively.

The SDR is an international reserve asset created by the IMF to supplement the existing reserve assets of its members.

These interest-bearing assets can be obtained by IMF allocations, transactions with IMF member countries, or in the form of

interest earnings on SDR holdings and reserve positions in the IMF. U.S. SDR holdings are an interest-bearing asset of

Treasury’s Exchange Stabilization Fund (ESF). The total amount of SDR holdings of the U.S. was the equivalent of $51.5

billion and $50.1 billion as of September 30, 2017, and 2016, respectively.

The IMF allocates SDRs to its members in proportion to each member’s quota in the IMF. The SDR Act, enacted in

1968, authorized the Secretary of the Treasury to issue SDR Certificates (SDRCs) to the Federal Reserve in exchange for

dollars. The amount of SDRCs outstanding cannot exceed the dollar value of SDR holdings. The Secretary of the Treasury
 NOTES TO THE FINANCIAL STATEMENTS 76

determines when Treasury will issue or redeem SDRCs. SDRCs outstanding totaled $5.2 billion as of September 30, 2017,

and 2016, and are included in Note 16—Other Liabilities.

As of September 30, 2017, and 2016, other liabilities included $49.9 billion and $49.3 billion, respectively, of interestbearing liability to the IMF for SDR allocations. The SDR allocation item represents the cumulative total of SDRs distributed

by the IMF to the U.S. in allocations. The U.S. has received no SDR allocations since 2009.

Gold is valued at the statutory price of $42.2222 per fine troy ounce. The number of fine troy ounces of gold was

261,498,927 as of September 30, 2017, and 2016. The market value of gold on the London Fixing was $1,283 and $1,323 per

fine troy ounce as of September 30, 2017, and 2016, respectively. In addition, silver is valued at the statutory price of 

$1.2929 per fine troy ounce. The number of fine troy ounces of silver was 16,000,000 as of September 30, 2017, and 2016.

The market value of silver on the London Fixing was $16.86 and $19.35 per fine troy ounce as of September 30, 2017, and

2016, respectively. Gold totaling $11.0 billion as of September 30, 2017, and 2016, was pledged as collateral for gold

certificates issued and authorized to the FRBs by the Secretary of the Treasury. Gold certificates were valued at $11.0 billion

as of September 30, 2017, and 2016, which are included in Note 16—Other Liabilities. Treasury may redeem the gold

certificates at any time. Foreign currency is translated into U.S. dollars at the exchange rate at fiscal year-end. The foreign

currency is maintained by the ESF and various U.S. federal agencies as well as foreign banks.

Certain PBGC amounts have been restated. Refer to Note 1.V—Restatements for more information.
77 NOTES TO THE FINANCIAL STATEMENTS 

Note 3. Accounts and Taxes Receivable, Net

Accounts and Taxes Receivable as of September 30, 2017, and 2016

Restated

(In billions of dollars) 2017 2016

Accounts receivable:

Gross accounts receivable.......................................................................... 117.9 110.9

Allowance for uncollectible amounts ............................................................ (29.8) (30.1)

Accounts receivable, net............................................................................. 88.1 80.8

Taxes receivable:

Gross taxes receivable ............................................................................... 203.8 184.7

Allowance for uncollectible amounts ............................................................ (148.6) (132.3)

Taxes receivable, net.................................................................................. 55.2 52.4

Total accounts and taxes receivable, net ................................................... 143.3 133.2

Gross accounts receivable include related interest receivable of $3.4 billion and $3.5 billion as of September 30, 2017, 

and 2016, respectively.

Treasury comprises approximately 37.3 percent of the Government’s reported accounts and taxes receivable, net, as of 

September 30, 2017. The following list of agencies comprise 97.3 percent of the Government’s accounts and taxes 

receivable, net, of $143.3 billion as of September 30, 2017. Please refer to the following financial statements for details on 

gross accounts and taxes receivable and the related allowance for uncollectible amounts:

• Treasury

• HHS

• SSA

• Department of the Interior (DOI)

• DHS

• DOD

• PBGC

• DOE

• Federal Deposit Insurance Corporation (FDIC)

• VA

• OPM 

• Tennessee Valley Authority (TVA)

• DOL

• Department of Agriculture (USDA)

• United States Postal Service (USPS)

• HUD

Accounts and taxes receivable, net have historically included amounts related to criminal restitution owed to the 

government. Beginning in fiscal year 2017, additional information is disclosed related to these amounts for the current fiscal 

year. Included in accounts and taxes receivable, net is $8.8 billion of gross receivables related to criminal restitution orders 

monitored by the responsible agencies, of which $0.6 billion is determined to be collectible. Of this gross receivable amount, 

Treasury, HHS, and SSA collectively account for $8.0 billion of which $0.5 billion is determined to be collectible as of 

September 30, 2017. 

Certain PBGC amounts have been restated. Refer to Note 1.V— Restatements for more information.
 NOTES TO THE FINANCIAL STATEMENTS 78

Note 4. Loans Receivable and Loan Guarantee Liabilities, Net

Loans Receivable as of September 30, 2017, and 2016

Face Value of 

Loans 

Outstanding

Long-term Cost 

of (income from) 

Loans 

Outstanding

Loans Receivable, 

Net

Subsidy 

Expense 

(Income) for the 

Fiscal Year

(In billions of dollars) 2017 2016 2017 2016 2017 2016 2017 2016

Federal Direct Student Loans -

Education .................................... 1,058.4 953.6 16.8 (5.3) 1,041.6 958.9 5.3 16.1

Federal Family Education Loans -

Education .................................... 120.9 128.0 18.5 13.1 102.4 114.9 2.4 3.5

Electric Loans - USDA.................. 48.2 47.3 1.8 2.1 46.4 45.2 - -

Rural Housing Services - USDA .... 24.7 25.1 1.9 2.0 22.8 23.1 0.1 -

Export-Import Bank Loans ............ 21.9 25.3 1.6 1.6 20.3 23.7 0.1 (0.3)

Housing and Urban Development 

Loans .......................................... 26.3 22.4 7.5 5.7 18.8 16.7 (3.5) (0.7)

All other programs ........................ 110.0 110.9 13.8 15.8 96.2 95.1 - (0.7)

Total loans receivable ................ 1,410.4 1,312.6 61.9 35.0 1,348.5 1,277.6 4.4 17.9
79 NOTES TO THE FINANCIAL STATEMENTS 

Loan Guarantee Liabilities as of September 30, 2017, and 2016

Principal Amount 

of Loans Under 

Guarantee

Principal Amount 

Guaranteed by the 

United States

Loan Guarantee 

Liabilities

Subsidy Expense 

(Income) for the 

Fiscal Year

Restated Restated Restated

(In billions of dollars) 2017 2016 2017 2016 2017 2016 2017 2016

Federal Housing Administration 

Loans - HUD.............................. 1,409.5 1,338.6 1,277.6 1,215.9 20.6 (0.8) 13.0 (17.8)

Veterans Housing Benefit 

Programs - VA ........................... 596.5 517.2 151.9 132.8 10.4 10.0 (0.6) (1.1)

Rural Housing Services - USDA .. 120.4 114.8 108.3 103.3 0.1 0.7 (0.5) (4.3)

Small Business Loans - SBA....... 121.0 113.1 99.5 93.8 2.6 2.4 (0.9) (0.4)

Federal Family Education Loans 

- Education ................................ 176.4 196.9 172.7 192.7 3.7 1.4 1.0 6.7

All other guaranteed loan 

programs ................................... 111.1 119.2 106.5 114.0 5.5 4.5 0.5 0.6

Total loan guarantee liabilities... 2,534.9 2,399.8 1,916.5 1,852.5 42.9 18.2 12.5 (16.3)

The government has two types of loan programs: direct loans and loan guarantees. One major type of loan is direct

loans such as the Department of Education’s (Education) Federal Direct Student Loans. The second type is loan guarantee

programs, such as the Department of Housing and Urban Development’s (HUD’s) Federal Housing Administration Loans

program.

Direct loans and loan guarantee programs are used to promote the Nation’s welfare by making financing available to

segments of the population not served adequately by non-federal institutions, or otherwise providing for certain activities or

investments. For those unable to afford credit at the market rate, federal credit programs provide subsidies in the form of

direct loans offered at an interest rate lower than the market rate. For those to whom non-federal financial institutions are

reluctant to grant credit because of the high risk involved, federal credit programs guarantee the payment of these non-federal

loans and absorb the cost of defaults.

The amount of the long-term cost of post-1991 direct loans and loan guarantees outstanding equals the subsidy cost

allowance for direct loans and the liability for loan guarantees (including defaulted guaranteed loans) as of September 30.

The amount of the long-term cost of pre-1992 direct loans and loan guarantees equals the allowance for uncollectible

amounts (or present value allowance) for direct loans and the liability for loan guarantees. The long-term cost is based on all

direct loans and guaranteed loans disbursed in this fiscal year and previous years that are outstanding as of September 30. It

includes the subsidy cost of these loans and guarantees estimated as of the time of loan disbursement and subsequent

adjustments such as modifications, re-estimates, amortizations, and write-offs.

Net loans receivable includes related interest and foreclosed property. Foreclosed property is property that is transferred

from borrowers to a federal credit program, through foreclosure or other means, in partial or full settlement of post-1991

direct loans or as a compensation for losses that the government sustained under post-1991 loan guarantees. Please refer to

the financial statements of the United States Department of Agriculture (USDA), VA, and HUD for significant detailed

information regarding foreclosed property. The total subsidy expense/(income) is the cost of direct loans and loan guarantees

recognized during the fiscal year. It consists of the subsidy expense/(income) incurred for direct and guaranteed loans

disbursed during the fiscal year, for modifications made during the fiscal year of loans and guarantees outstanding, and for

upward or downward re-estimates as of the end of the fiscal year of the cost of loans and guarantees outstanding. This

expense/(income) is included in the Statements of Net Cost.
 NOTES TO THE FINANCIAL STATEMENTS 80

Loan Programs

The majority of the loan programs are provided by Education, HUD, USDA, Small Business Administration (SBA),

VA, and Export-Import Bank. For significant detailed information regarding the direct and guaranteed loan programs listed in

the tables above, please refer to the financial statements of the agencies.

Education has two major loan programs, authorized by Title IV of the Higher Education Act of 1965 (HEA). The first

program is the William D. Ford Federal Direct Loan Program, (referred to as the Direct Loan Program) that was established

in fiscal year 1994. The Direct Loan Program offered four types of educational loans: Stafford, Unsubsidized Stafford, PLUS

for parents and/or graduate or professional students, and consolidation loans. With this program, the government makes loans

directly to students and parents through participating institutions of higher education. Direct loans are originated and serviced

through contracts with private vendors. Education disbursed approximately $142.5 billion in Direct Loans to eligible

borrowers in fiscal year 2017 and approximately $140.5 billion in fiscal year 2016. The second program is the Federal

Family Education Loan (FFEL) Program. This program was established in fiscal year 1965, and is a guaranteed loan

program. Like the Direct Loan Program, it offered four types of loans: Stafford, Unsubsidized Stafford, PLUS for parents

and/or graduate or professional students, and consolidation loans. The Student Aid and Fiscal Responsibility Act (SAFRA),

which was enacted as part of the Health Care Education and Reconciliation Act of 2010 (P.L. 111-152), eliminated the

authority to guarantee new FFEL after June 30, 2010. During fiscal year 2017, Education net loans receivable increased by

$70.1 billion, largely the result of increased Direct Loan Program disbursements for new loan originations and FFEL

consolidations, net of borrower principal and interest collections.

HUD’s Federal Housing Administration (FHA) provides mortgage insurance to encourage lenders to make credit

available to expand home ownership. FHA serves many borrowers that the conventional market does not serve adequately.

This includes first-time homebuyers, minorities, low-income, and other underserved households to realize the benefits of

home ownership. Borrowers obtain an FHA insured mortgage and pay an upfront premium as well as an annual premium to

FHA. The proceeds from those premiums are used to fund FHA program costs, including claims on defaulted mortgages and

holding costs, property management fees, property sales, and other associated costs. Certain FHA amounts have been

restated. Refer to Note 1.V—Restatements for more information.

USDA’s Rural Development offers both direct and guaranteed loans with unique missions to bring prosperity and

opportunity to rural areas. The Rural Housing programs provide affordable, safe, and sanitary housing and essential

community facilities to rural communities. Rural Utility programs help improve the quality of life in rural areas through a

variety of loan programs for electric energy, telecommunications, and water and environmental projects.

The Export-Import Bank aids in financing and promoting U.S. exports. Loans and guarantees extended under the

medium-term loan program typically have repayment terms of one to seven years, while loans and guarantees extended under

the long-term program usually have repayment terms in excess of seven years. Generally, both the medium-term and the

long-term loan and guarantee programs cover up to 85 percent of the U.S. contract value of shipped goods.

The SBA provides guarantees that help small businesses obtain bank loans and licensed companies to make investments

in qualifying small businesses. The SBA also makes loans to microloan intermediaries and provides a direct loan program

that assists homeowners, renters and businesses recover from disasters.

VA operates the following direct loan and loan guaranty programs: Home Loans, Insurance Policy Loans, and

Vocational Rehabilitation and Employment Loans. The VA Home Loans program is the largest of the VA loan programs.

The Home Loans program provides loan guarantees and direct loans to veterans, service members, qualifying dependents,

and limited non-veterans to purchase homes and retain homeownership with favorable market terms. During fiscal year 2017,

the face value of outstanding principal on loans guaranteed by the VA increased by $79.3 billion. This increase was primarily

due to $161.8 billion in new loans guaranteed by the VA, partially offset by $80.8 billion in guaranteed loan terminations.
81 NOTES TO THE FINANCIAL STATEMENTS 

Note 5. Inventories and Related Property, Net

Inventories and Related Property, Net as of September 30, 2017, and 2016

Defense

 

All 

Others Total Defense

 

All 

Others Total

(In billions of dollars) 2017 2016

Inventory purchased for resale ............................... 61.3 0.5 61.8 61.9 0.5 62.4

Inventory and operating material and supplies held 

for repair................................................................ 65.8 1.3 67.1 88.1 1.2 89.3

Inventory—excess, obsolete, and unserviceable ..... 0.9 - 0.9 1.1 - 1.1

Operating materials and supplies held for use ......... 140.3 3.5 143.8 105.0 3.5 108.5

Operating materials and supplies held in reserve for 

future use ............................................................. - 0.2 0.2 - 0.2 0.2

Operating materials and supplies-excess, obsolete, 

and unserviceable ................................................. 2.5 - 2.5 2.1 - 2.1

Stockpile materials held in reserve for future use...... 0.8 48.5 49.3 1.1 47.3 48.4

Stockpile materials held for sale ............................. - 5.1 5.1 - 5.6 5.6

Other related property ............................................ 2.7 1.1 3.8 2.4 1.2 3.6

Allowance for loss ................................................. (7.3) (0.5) (7.8) (6.4) (0.5) (6.9)

Total inventories and related property, net.............. 267.0 59.7 326.7 255.3 59.0 314.3

Inventory purchased for resale is the cost or value of tangible personal property purchased by an agency for resale. As 

of September 30, 2017, DOD values approximately 98 percent of its resale inventory using the moving average cost (MAC) 

method. DOD reports the remaining 2 percent of resale inventories at an approximation of historical cost using LAC adjusted 

for holding gains and losses. DOD continues to implement SFFAS No. 48, Opening Balances for Inventory, Operating 

Materials and Supplies, and Stockpile Materials, permitting alternative methods in establishing opening balances. Please 

refer to the financial statements of DOD for more information on its inventories.

Inventory and operating materials and supplies held for repair are damaged inventory that require repair to make them 

suitable for sale (inventory) or is more economical to repair than to dispose of (operating materials and supplies). Excess, 

obsolete, and unserviceable inventory is reported at net realizable value. Inventory—excess, obsolete, and unserviceable 

consists of:

• Excess inventory that exceeds the demand expected in the normal course of operations and which does not meet 

management’s criteria to be held in reserve for future sale.

• Obsolete inventory that is no longer needed due to changes in technology, laws, customs, or operations.

• Unserviceable inventory that is damaged beyond economic repair.

Operating materials and supplies held for use are tangible personal property to be consumed in normal operations.

Operating materials and supplies held in reserve for future use are materials retained because they are not readily 

available in the market or because they will not be used in the normal course of operations, but there is more than a remote 

chance they will eventually be needed. DOD, which accounts for most of the reported operating materials and supplies held 

for use, uses both the consumption method and the purchase method of accounting for operating materials and supplies, and 

expenses a significant amount when purchased instead of when consumed.

Operating materials and supplies—excess, obsolete, and unserviceable consists of:

• Excess operating materials and supplies are materials that exceed the demand expected in the normal course of 

operations, and do not meet management’s criteria to be held in reserve for future use.
 NOTES TO THE FINANCIAL STATEMENTS 82

• Obsolete operating materials and supplies are materials no longer needed due to changes in technology, laws, 

customs, or operations.

• Unserviceable operating materials and supplies are materials damaged beyond economic repair. 

DOD, which accounts for most of the reported excess, obsolete, and unserviceable operating materials and supplies, 

revalues it to a net realizable value of zero through the allowance account. Please refer to the financial statements of DOD for 

more information on its operating materials and supplies. Stockpile materials include strategic and critical materials held in 

reserve for use in national defense, conservation, or national emergencies due to statutory requirements; for example, nuclear 

materials and oil, as well as stockpile materials that are authorized to be sold. The majority of the stockpile materials held for 

sale and stockpile materials held in reserve for future use were reported by the Department of Energy (DOE). Please refer to 

the financial statements of DOE for more information on stockpile materials.

Other related property consists of the following:

• Commodities include items of commerce or trade that have an exchange value used to stabilize or support market 

prices. Please refer to the financial statements of the USDA for detailed information regarding commodities.

• Seized monetary instruments are comprised only of monetary instruments that are awaiting judgment to determine 

ownership. The related liability is included in other liabilities. Other property seized by the government, such as real 

property and tangible personal property, is not considered a government asset. It is accounted for in agency 

property-management records until the property is forfeited, returned, or otherwise liquidated. Please refer to the 

financial statements of the Department of Justice (DOJ), Treasury, and the Department of Homeland Security (DHS) 

for detailed information regarding seized property.

• Forfeited property is comprised of monetary instruments, intangible property, real property, and tangible personal 

property acquired through forfeiture proceedings; property acquired by the government to satisfy a tax liability; 

and/or unclaimed/abandoned merchandise. Please refer to the financial statements of DOJ, Treasury, and DHS for 

detailed information regarding forfeited property.

• Foreclosed property is comprised of assets received in satisfaction of a loan receivable or as a result of payment of a 

claim under a guaranteed or insured loan (excluding commodities acquired under price support programs). All 

properties included in foreclosed property are assumed to be held for sale. Please refer to the financial statements of 

USDA and HUD for detailed information regarding foreclosed property.
83 NOTES TO THE FINANCIAL STATEMENTS 

Note 6. Property, Plant, and Equipment, Net

Property, Plant, and Equipment as of September 30, 2017

Accumulated

Depreciation/

Cost Amortization Net

(In billions of dollars) Defense

All 

Others Defense

All 

Others Defense

All 

Others

Buildings, structures, and facilities .......................... 407.1 284.3 248.3 158.6 158.8 125.7

Furniture, fixtures, and equipment .......................... 1,103.5 185.9 637.2 115.4 466.3 70.5

Construction in progress ........................................ 110.0 38.2 N/A N/A 110.0 38.2

Land..................................................................... 10.6 13.4 N/A N/A 10.6 13.4

Other property, plant, and equipment...................... 21.3 62.7 5.3 37.7 16.0 25.0

Subtotal ............................................................. 1,652.5 584.5 890.8 311.7 761.7 272.8

Total property, plant, and equipment, net ........... 2,237.0 1,202.5 1,034.5

Property, Plant, and Equipment as of September 30, 2016

Accumulated

Depreciation/

Cost Amortization Net

(In billions of dollars) Defense

All 

Others Defense

All 

Others Defense

All 

Others

Buildings, structures, and facilities .......................... 384.1 275.3 230.1 150.8 154.0 124.5

Furniture, fixtures, and equipment .......................... 1,054.5 172.7 639.7 113.3 414.8 59.4

Construction in progress ........................................ 118.1 46.5 N/A N/A 118.1 46.5

Land..................................................................... 10.7 13.0 N/A N/A 10.7 13.0

Other property, plant, and equipment...................... 20.8 58.4 6.5 34.2 14.3 24.2

Subtotal ............................................................. 1,588.2 565.9 876.3 298.3 711.9 267.6

Total property, plant, and equipment, net ........... 2,154.1 1,174.6 979.5
 NOTES TO THE FINANCIAL STATEMENTS 84

DOD comprises approximately 73.6 percent of the government’s reported property, plant, and equipment, net, as of 

September 30, 2017. DOD continues to implement SFFAS No. 50 which permits alternative methods in establishing opening 

balances for general property, plant and equipment. 

The following agencies comprise over 97 percent of the government’s reported property, plant, and equipment net of 

$1,034.5 billion as of September 30, 2017. Refer to each agencies’ financial statements for details.

• DOD

• DOE

• GSA

• VA

• TVA

• DOI

• Department of State (DOS)

• Department of Transportation (DOT)

• USPS

• DHS

• National Aeronautics and Space Administration (NASA)

• Department of Commerce (DOC)

• DOJ

See Note 24—Stewardship Land and Heritage Assets for additional information on multi-use heritage assets.
85 NOTES TO THE FINANCIAL STATEMENTS 

Note 7. Debt and Equity Securities

Debt and Equity Securities as of September 30, 2017

Book 

(In billions of dollars) Cost Adjustment Value

Held-To Maturity

Debt securities:

Non-US Government ........................ - - -

Mortgage/asset backed .................... 0.2 - 0.2

Equity Securities:

All other equity securities .................. 3.6 - 3.6

Total Held-To-Maturity (Net Investment) 3.8 - 3.8

Available-for-Sale:

Debt Securities: 5.4 0.2 5.6

Total Available-for-Sale (Fair Value) 5.4 0.2 5.6

Trading Securities:

Debt Securities:

Non-U.S. Government ...................... 12.2 0.6 12.8

Commercial .................................... 0.2 - 0.2

Mortgage/asset backed..................... 3.9 - 3.9

Corporate and other bonds ............... 16.4 0.6 17.0

All other debt securities..................... 4.0 (0.1) 3.9

Equity Securities:

Unit Trust......................................... 18.0 8.2 26.2

Common Stocks............................... 2.1 0.1 2.2

All other equity securities .................. 15.2 (0.1) 15.1

Total Trading Securities (Fair Value) 72.0 9.3 81.3

Total

Total debt and equity securities categorized

as held-to-maturity, available-for-sale or trading........................................................................... 90.7

Total RRB debt and equity securities........................................................................................... 25.5

Total debt and equity securities................................................................................................... 116.2
 NOTES TO THE FINANCIAL STATEMENTS 86

Debt and Equity Securities as of September 30, 2016 Restated

Restated Restated Book 

(In billions of dollars) Cost Adjustment Value

Held-To Maturity

Debt securities:

Non-US Government ........................ 0.1 - 0.1

Mortgage/asset backed .................... 0.3 - 0.3

Equity Securities:

All other equity securities .................. 11.0 - 11.0

Total Held-To-Maturity (Net Investment) 11.4 - 11.4

Available-for-Sale:

Debt Securities: 9.5 0.4 9.9

Total Available-for-Sale (Fair Value) 9.5 0.4 9.9

Trading Securities:

Debt Securities:

Non-U.S. Government ...................... 11.4 0.3 11.7

Commercial .................................... 0.1 0.1

Mortgage/asset backed .................... 3.9 0.1 4.0

Corporate and other bonds ............... 11.9 0.8 12.7

All other debt securities..................... 2.4 - 2.4

Equity Securities:

Unit Trust......................................... 19.4 4.6 24.0

Common Stocks............................... 0.3 0.1 0.4

All other equity securities .................. 7.4 (0.1) 7.3

Total Trading Securities (Fair Value) 56.8 5.8 62.6

Total

Total debt and equity securities categorized

as held-to-maturity, available-for-sale or trading.......................................................................... 83.9

Total RRB debt and equity securities.......................................................................................... 24.3

Total debt and equity securities.................................................................................................. 108.2
87 NOTES TO THE FINANCIAL STATEMENTS 

Debt and Equity Securities as of September 30, 2017, and 2016

(In billions of dollars) 2017 2016 Restated

Pension Benefit Guaranty Corporation....................................... 66.7 60.0

Railroad Retirement Board........................................................ 25.5 24.3

Tennessee Valley Authority....................................................... 11.4 9.8

Department of the Treasury ...................................................... 8.6 9.9

All other................................................................................... 4.0 4.2

Total securities and investments ............................................. 116.2 108.2

These debt and equity securities do not include nonmarketable Treasury securities that have been eliminated in

consolidation. Held-to-maturity debt and equity securities are reported as total net investment, net of unamortized discounts

and premiums. Available-for-sale debt and equity securities are reported at fair value, net of unrealized gain or loss. Trading

debt and equity securities are reported at fair value, net of unrealized gain or loss. PBGC and TVA invest primarily in fixed

maturity and equity securities, classified as trading. PBGC reported gains related to trading securities held as of September

30, 2017 and September 30, 2016 of $3.3 billion and $2.2 billion, respectively. TVA reported gains related to trading

securities held as of September 30, 2017 and 2016 of $1.2 billion and $0.9 billion, respectively. Treasury invests primarily in

fixed maturity and equity securities, classified as available-for-sale and trading securities. Treasury’s Exchange Stabilization

Fund invests in among other things, foreign fixed maturity debt, with a fair value of $8.5 billion and $9.8 billion as of

September 30, 2017, and 2016, respectively. The National Railroad Retirement Investment Trust (NRRIT), on behalf of the

RRB, manages and invests railroad retirement assets that are to be used to pay retirement benefits to the Nation’s railroad

workers under the Railroad Retirement Program. As an investment company, NRRIT is subject to different accounting

standards that do not require the classifications presented above. Please refer to NRRIT’s financial statements for more

detailed information concerning this specific investment. The TVA balance includes $8.5 billion and $7.3 billion as of

September 30, 2017, and 2016, respectively, for the Tennessee Valley Authority Retirement System (TVARS). TVARS

includes unrealized gains of $0.8 billion and $0.5 billion as of September 30, 2017 and 2016, respectively. The Department

of the Defense reflects the majority of all other total securities and investments. PBGC, NRRIT, Treasury and TVA base

market values on the last sale of a listed security, on the mean of the “bid-and-ask” for nonlisted securities, or on a valuation

model in the case of fixed income securities that are not actively traded. These valuations are determined as of the end of

each fiscal year. Purchases and sales of securities are recorded on the trade date. Please refer to the individual financial

statements of PBGC, NRRIT, TVA, Treasury and DOD for more detailed information related to debt and equity securities.

These agencies comprise 99.6 percent of the total reported debt and equity securities of $116.2 billion as of September 30,

2017.

Certain PBGC amounts have been restated. Refer to Note 1.V— Restatements for more information.
 NOTES TO THE FINANCIAL STATEMENTS 88

Note 8. Investments in Government-Sponsored Enterprises

Congress established Fannie Mae and Freddie Mac as GSEs to support mortgage lending. A key function of the GSEs is

to purchase mortgages, package those mortgages into securities, which are subsequently sold to investors, and guarantee the

timely payment of principal and interest on these securities.

Leading up to the financial crisis, increasingly difficult conditions in the housing market challenged the soundness and

profitability of the GSEs, thereby threatening to undermine the entire housing market. In response Congress passed HERA

(P.L.110-289) in July 2008. This act created FHFA, with enhanced regulatory authority over the GSEs, and provided the

Secretary of the Treasury with certain authorities intended to ensure the financial stability of the GSEs, if necessary. In

September 2008, FHFA placed the GSEs under conservatorship and Treasury invested in the GSEs by entering into a SPSPA

with each GSE. These actions were taken to preserve the GSEs’ assets, ensure a sound and solvent financial condition, and

mitigate systemic risks that contributed to market instability.

The purpose of such actions is to maintain the solvency of the GSEs so they can continue to fulfill their vital roles in

the home mortgage market while the Administration and Congress determine what structural changes should be made to the

housing finance system. Draws under the SPSPAs result in an increased investment in the GSEs as further discussed below.

Per SFFAC No. 2, Entity and Display, these entities meet the criteria of “bailed out” entities. Accordingly, the government

has not consolidated them into the financial statements, but included disclosure of the relationship(s) with the bailed out

entities and any actual or potential material costs or liabilities in the consolidated financial statements.

Senior Preferred Stock Purchase Agreements

Under the SPSPAs, Treasury initially received from each GSE: 1) 1,000,000 shares of non-voting variable liquidation

preference senior preferred stock with a liquidation preference value of $1,000 per share and 2) a non-transferable warrant for

the purchase, at a nominal cost, of 79.9 percent of common stock on a fully-diluted basis. The warrants expire on September

7, 2028. Under the amended SPSPAs, the quarterly dividend payment changed from a 10.0 percent per annum fixed rate

dividend on the total liquidation preference to an amount equivalent to the GSE’s positive net worth above a capital reserve

amount. The capital reserve amount, which was initially set at $3.0 billion for calendar year 2013, declines by $600 million at

the beginning of each calendar year thereafter until it reaches zero by calendar year 2018. On January 1, 2017, and 2016, the

capital reserve amount had declined to $600 million and $1.2 billion for calendar years 2017 and 2016, respectively. The

GSEs will not pay a quarterly dividend if their positive net worth is below the required capital reserve threshold. Cash

dividends of $25.3 billion and $11.5 billion were received during fiscal years ended September 30, 2017, and 2016,

respectively.

The SPSPAs, which have no expiration date, provide that Treasury will disburse funds to the GSEs if at the end of any

quarter, the FHFA determines that the liabilities of either GSE exceed its assets. Draws from Treasury under the SPSPAs are

designed to ensure that the GSEs maintain positive net worth, with a fixed maximum amount available to each GSE under

this agreement established as of December 31, 2012 (refer to the “Contingent Liability to GSEs” section below). Draws

against the funding commitment of the SPSPAs do not result in the issuance of additional shares of senior preferred stock;

instead, it increases the liquidation preference of the initial 1,000,000 shares by the amount of the draw. The combined

cumulative liquidation preference totaled $189 billion as of September 30, 2017 and 2016. There were no payments to the

GSEs for the fiscal years ended September 30, 2017 and 2016. Refer to Note 25—Subsequent Events for additional

information.

Senior Preferred Stock and Warrants for Common Stock

In determining the fair value of the senior preferred stock and warrants for common stock, Treasury relied on the GSEs’

public filings and press releases concerning their financial statements, as well as non-public, long-term financial forecasts,

monthly summaries, quarterly credit supplements, independent research regarding preferred stock trading, independent

research regarding the GSEs’ common stock trading on the OTC Bulletin Board, discussions with each of the GSEs and

FHFA, and other information pertinent to the valuations. Because the instruments are not publicly traded, there is no

comparable trading information available. The fair valuations rely on significant unobservable inputs that reflect assumptions

about the expectations that market participants would use in pricing.

The fair value of the senior preferred stock considers the amount of forecasted dividend payments. The fair valuations

assume that a hypothetical buyer would acquire the discounted dividend stream as of the transaction date. The fair value of

the senior preferred stock decreased as of September 30, 2017 when compared to September 30, 2016, primarily reflecting a

higher discount rate which was driven by a higher long-term Treasury rate (or risk-free rate), as well as an increase in the

market value of the GSEs’ other equity securities that comprise their total equity.
89 NOTES TO THE FINANCIAL STATEMENTS 

Factors impacting the fair value of the warrants include the nominal exercise price and the large number of potential

exercise shares, the market trading of the common stock that underlies the warrants as of September 30, the principal market,

and the market participants. Other factors impacting the fair value include, among other things, the holding period risk related

directly to the assumption of the amount of time that it will take to sell the exercised shares without depressing the market.

The fair value of the warrants increased at the end of fiscal year 2017, when compared to 2016, primarily due to increases in

the market price of the underlying common stock of each GSE.

Contingent Liability to GSEs

As part of the annual process undertaken by Treasury, a series of long-term financial forecasts are prepared to assess, as

of September 30, the likelihood and magnitude of future draws to be required by the GSEs under the SPSPAs within the

forecast time horizon. Treasury used 25-year financial forecasts prepared through years 2042 and 2041 in assessing if a

contingent liability was required as of September 30, 2017 and 2016, respectively. If future payments under the SPSPAs are

deemed to be probable within the forecast horizon, Treasury will estimate and accrue a contingent liability to the GSEs to

reflect the forecasted equity deficits of the GSEs. This accrued contingent liability will be undiscounted and will not take into

account any of the offsetting dividends that could be received, as the dividends, if any, would be owed directly to the General

Fund. Such recorded accruals will be adjusted in subsequent years as new information develops or circumstances change.

Based on the annual forecasts as of September 30, 2017 and 2016, Treasury estimated there was no probable future

funding draws. However, the reduction in the U.S. corporate income tax rate resulting from the enactment of the Tax Cuts

and Job Act on December 22, 2017, required that each of Fannie Mae and Freddie Mac record a reduction in the value of

their deferred tax assets in the quarter in which the legislation was enacted, impacting potential future funding draws. The

funding draws and the associated amounts are expected to be realized in March 2018. Management believes the amounts of

such draws will not be material to the consolidated financial statements. At September 30, 2017 and 2016, the maximum

remaining contractual commitment to the GSEs for the remaining life of the SPSPAs was $258.1 billion. Subsequent funding

draws will reduce the remaining commitments. Refer to Note 19—Commitments for a full description of other commitments

and risks.

In assessing the need for an estimated contingent liability, Treasury relied on the GSEs’ public filings and press releases

concerning their financial statements, monthly summaries, and quarterly credit supplements, as well as non-public, long-term

financial forecasts, the FHFA House Price Index, discussions with each of the GSEs and FHFA, and other information

pertinent to the liability estimates. The forecasts prepared in assessing the need for an estimated contingent liability as of

September 30, 2017 include three potential wind-down scenarios, with varying assumptions regarding the timing as to when

the GSEs would cease issuing new guaranteed mortgage-backed securities. The forecasts also assume a continued gradual

wind-down of the retained portfolios (and corresponding net interest income) through 2018, as directed under the amended

SPSPAs for each GSE to reduce the maximum balance of its retained mortgage portfolio by 15.0 percent per annum

beginning December 31, 2013. The maximum balance of the GSEs’ retained mortgage portfolio was initially set at $650

billion as of December 31, 2012, and the amended SPSPAs requires that GSEs reduce this maximum balance to $250 billion

by December 31, 2018.

Estimation Factors

Treasury’s forecasts concerning the GSEs may differ from actual experience. Estimated senior preferred values and

future draw amounts will depend on numerous factors that are difficult to predict including, but not limited to, changes in

government policy with respect to the GSEs, the business cycle, inflation, home prices, unemployment rates, interest rates,

changes in housing preferences, home financing alternatives, availability of debt financing, market rates of guarantee fees,

outcomes of loan refinancings and modifications, new housing programs, and other applicable factors.

Regulatory Environment

To date, Congress has not approved a plan to address the future of the GSEs, thus the GSEs continue to operate under

the direction of their conservator, the FHFA, whose stated strategic goals for the GSEs are to: (1) maintain foreclosure

prevention activities and credit availability to foster liquid, efficient, competitive, and resilient national housing finance

markets; (2) reduce taxpayer risk through increasing the role of private capital in the mortgage market, and (3) build a new

single-family securitization infrastructure.

 The Temporary Payroll Tax Cut Continuation Act of 2011(P.L. 112-78) was funded by an increase of 10-basis points in

the GSEs’ guarantee fees (referred to as “the incremental fees”) which began in April 2012, and is effective through October

1, 2021. The incremental fees are to be remitted to Treasury and not retained by the GSEs and, thus, do not affect the

profitability of the GSEs. For fiscal years 2017 and 2016, the GSEs remitted to Treasury the incremental fees totaling $3.2

billion and $2.8 billion, respectively.
 NOTES TO THE FINANCIAL STATEMENTS 90

As of September 30, 2017, and 2016, GSEs investments consisted of the following:

Investments in GSEs as of September 30, 2017

Cumulative

Gross Valuation Fair

(In billions of dollars) Investments Gain/(Loss) Value

Fannie Mae senior preferred stock ................................. 117.0 (74.5) 42.5

Freddie Mac senior preferred stock ................................ 72.1 (41.0) 31.1

Fannie Mae warrants common stock .............................. 3.1 9.2 12.3

Freddie Mac warrants common stock ............................. 2.3 4.4 6.7

Total investments in GSEs ......................................... 194.5 (101.9) 92.6

Investments in GSEs as of September 30, 2016

Cumulative

Gross Valuation Fair

(In billions of dollars) Investments Gain/(Loss) Value

Fannie Mae senior preferred stock ................................. 117.0 (58.9) 58.1

Freddie Mac senior preferred stock ................................ 72.1 (32.5) 39.6

Fannie Mae warrants common stock .............................. 3.1 4.0 7.1

Freddie Mac warrants common stock ............................. 2.3 1.5 3.8

Total investments in GSEs.......................................... 194.5 (85.9) 108.6
91 NOTES TO THE FINANCIAL STATEMENTS 

Note 9. Other Assets

Other Assets as of September 30, 2017, and 2016

Restated

(In billions of dollars) 2017 2016

Advances and prepayments................................................................... 97.4 92.9

Regulatory assets.................................................................................. 20.0 21.8

FDIC receivable from resolution activity .................................................. 9.3 9.0

Other.................................................................................................... 21.0 21.8

Total other assets ............................................................................... 147.7 145.5

Advances and prepayments are assets that represent funds disbursed in contemplation of the future performance of

services, receipt of goods, the incurrence of expenditures, or the receipt of other assets. These include advances to contractors

and grantees, travel advances, and prepayments for items such as rents, taxes, insurance, royalties, commissions, and

supplies.

With regard to regulatory assets, the DOE’s Power Marketing Administrations (PMAs) and the TVA record certain

amounts as assets in accordance with Financial Accounting Standards Board (FASB) Accounting Standards Codification

(ASC) Topic 980, Regulated Operations. The provisions of FASB ASC Topic 980 require that regulated enterprises reflect

rate actions of the regulator in their financial statements, when appropriate. These rate actions can provide reasonable

assurance of the existence of an asset, reduce or eliminate the value of an asset, or impose a liability on a regulated enterprise.

In order to defer incurred costs under FASB ASC Topic 980, a regulated entity must have the statutory authority to establish

rates that recover all costs, and those rates must be charged to and collected from customers. If the PMAs’ or TVA’s rates

should become market-based, FASB ASC Topic 980 would no longer be applicable, and all of the deferred costs under that

standard would be expensed. Other items included in “other” are purchased power generating capacity, deferred nuclear

generating units, nonmarketable equity investments in international financial institutions, derivative assets, and the balance of

assets held by the experience rated carriers participating in the Health Benefits and Life Insurance Program (pending

disposition on behalf of OPM).

The Federal Deposit Insurance Corporation (FDIC) has the responsibility for resolving failed institutions in an orderly

and efficient manner. The resolution process involves valuing a failing institution, marketing it, soliciting and accepting bids

for the sale of the institution, determining which bid is least costly to the insurance fund, and working with the acquiring

institution through the closing process. FDIC records receivables for resolutions that include payments by the Deposit

Insurance Fund to cover obligations to insured depositors, advances to receiverships and conservatorships for working

capital, and administrative expenses paid on behalf of receiverships and conservatorships.

Certain PBGC amounts have been restated. Refer to Note 1.V—Restatements for more information.
 NOTES TO THE FINANCIAL STATEMENTS 92

Note 10. Accounts Payable

Accounts Payable as of September 30, 2017, and 2016

(In billions of dollars) 2017 2016

Department of Defense ............................................................................................... 26.4 18.3

Department of Justice ................................................................................................. 6.0 6.2

Department of Education............................................................................................. 4.2 4.0

Department of the Treasury ......................................................................................... 3.9 4.4

Department of Energy ................................................................................................. 3.7 3.6

Department of Veterans Affairs .................................................................................... 3.6 4.8

General Services Administration .................................................................................. 2.8 2.4

Department of State.................................................................................................... 2.7 2.5

Department of Homeland Security................................................................................ 2.3 2.0

U.S. Agency for International Development................................................................... 1.8 1.7

Tennessee Valley Authority ......................................................................................... 1.8 1.5

Department of Agriculture............................................................................................ 1.8 1.9

U.S. Postal Service ..................................................................................................... 1.6 1.8

All other...................................................................................................................... 8.2 7.3

Total accounts payable ............................................................................................. 70.8 62.4

 Accounts payable includes amounts due for goods and property ordered and received, services rendered by other than 

federal employees, cancelled appropriations for which the U.S. government has contractual commitments for payment, and 

non-debt related interest payable. 
93 NOTES TO THE FINANCIAL STATEMENTS 

Note 11. Federal Debt Securities Held by the Public and Accrued

Interest

Federal Debt Securities Held by the Public and Accrued Interest

Net

Change

During

Balance Fiscal Balance Average Interest

September 30, Year September 30, Rate

(In billions of dollars) 2016 2017 2017 2017 2016

Treasury securities (public):

Marketable securities:

Treasury bills ............................ 1,644.8 154.8 1,799.6 1.1% 0.4%

Treasury notes ......................... 8,624.3 174.6 8,798.9 1.8% 1.8%

Treasury bonds ........................ 1,825.3 123.1 1,948.4 4.2% 4.4%

Treasury inflation-protected 

securities (TIPS) ....................... 1,209.8 76.3 1,286.1 0.8% 0.8%

Treasury floating rate notes 

(FRN) ....................................... 334.1 8.5 342.6 1.2% 0.4%

Total marketable Treasury 

securities ................................... 13,638.3 537.3 14,175.6

Nonmarketable securities............. 535.1 (37.3) 497.8 2.3% 2.0%

Net unamortized 

premiums/(discounts) ................ (33.8) (5.4) (39.2)

Total Treasury securities, net 

(public) ......................................... 14,139.6 494.6 14,634.2

Agency securities:

Tennessee Valley Authority.......... 23.8 0.1 23.9

All other agencies ........................ 0.2 (0.1) 0.1

Total agency securities, net of 

unamortized premiums and 

discounts ...................................... 24.0 - 24.0

Accrued interest payable ............. 57.5 8.4 65.9

Total federal debt securities held 

by the public and accrued 

interest ....................................... 14,221.1 503.0 14,724.1

Types of marketable securities:

Bills–Short-term obligations issued with a term of 1 year or less.

Notes–Medium-term obligations issued with a term of 2-10 years. 

Bonds–Long-term obligations of more than 10 years.

TIPS–Term of more than 5 years.

FRN–Term of 2 years.
 NOTES TO THE FINANCIAL STATEMENTS 94

Federal debt securities held by the public outside the Government are held by individuals, corporations, state or local 

governments, FRBs, foreign governments, and other entities outside the federal government. The above table details 

Government borrowing primarily to finance operations and shows marketable and nonmarketable securities at face value less 

net unamortized premiums and discounts including accrued interest.

Securities that represent federal debt held by the public are issued primarily by the Treasury and include:

• Interest-bearing marketable securities (bills, notes, bonds, inflation-protected, and floating rate notes).

• Interest-bearing nonmarketable securities (government account series held by deposit and fiduciary funds, foreign 

series, state and local government series, domestic series, and savings bonds).

• Non-interest-bearing marketable and nonmarketable securities (matured and other).

Section 3111 of Title 31, United States Code (U.S.C.) authorizes the Secretary of the Treasury to use money received 

from the sale of an obligation and other money in the General Fund to buy, redeem, or refund, at or before maturity, 

outstanding bonds, notes, certificates of indebtedness, Treasury bills, or savings certificates of the Government. 

Gross federal debt (with some adjustments) is subject to a statutory ceiling (i.e., the debt limit). Prior to 1917, Congress 

approved each debt issuance. In 1917, to facilitate planning in World War I, Congress and the President first enacted a 

statutory dollar ceiling for federal borrowing. With the Public Debt Act of 1941 (P.L. 77-7), Congress and the President set an 

overall limit of $65 billion on Treasury debt obligations that could be outstanding at any one time; since then, Congress and

the President have enacted a number of debt limit increases. 

During fiscal years 2017 and 2016, Treasury faced two delays in raising the statutory debt limit that required it to depart 

from its normal debt management operations and to invoke legal authorities to avoid exceeding the statutory debt limit. 

During these periods, extraordinary actions taken by Treasury have resulted in federal debt securities not being issued to 

certain federal accounts. The first period occurred from March 16, 2015 to October 30, 2015. On Monday, November 2, 

2015, The Bipartisan Budget Act of 2015 (P.L. 114-74) was enacted suspending the statutory debt limit through March 15, 

2017. The second delay in raising the statutory debt limit occurred from March 16, 2017 through September 7, 2017. On 

Friday, September 8, 2017 the Continuing Appropriations Act, 2018 and Supplemental Appropriations for Disaster Relief 

Requirements Act, 2017 (P.L. 115-56) was enacted suspending the statutory debt limit through December 8, 2017.

As of September 30, 2017, and 2016, debt subject to the statutory debt limit was $20,208.6 billion and $19,538.5 

billion, respectively. The debt subject to the limit includes Treasury securities held by the public and Government guaranteed 

debt of federal agencies (shown in the table above) and intragovernmental debt holdings (shown in the following table). See 

Note 25—Subsequent Events for additional information.
95 NOTES TO THE FINANCIAL STATEMENTS 

Intragovernmental Debt Holdings: Federal Debt Securities

Held as Investments by Government Accounts as of September 30, 2017, and 2016

Net

Change

During

Balance Fiscal Year Balance

(In billions of dollars) 2016 2017 2017

Social Security Administration, Federal Old-Age 

and Survivors Insurance Trust Fund ....................... 2,796.7 23.5 2,820.2

Office of Personnel Management, Civil Service 

Retirement and Disability Fund............................... 887.2 17.9 905.1

Department of Defense, Military Retirement Fund.... 591.0 70.0 661.0

Department of Defense, Medicare-Eligible Retiree 

Health Care Fund.................................................. 213.5 12.3 225.8

Department of Health and Human Services, 

Federal Hospital Insurance Trust Fund ................... 192.2 5.6 197.8

Federal Deposit Insurance Corporation, Deposit

Insurance Fund ..................................................... 71.5 8.7 80.2

Department of Health and Human Services, 

Federal Supplementary Medical Insurance Trust 

Fund .................................................................... 63.3 7.3 70.6

Social Security Administration, Federal Disability 

Insurance Trust Fund ............................................ 45.9 23.8 69.7

Department of Labor, Unemployment Trust Fund ... 53.8 6.9 60.7

Department of Energy, Nuclear Waste Disposal 

Fund..................................................................... 52.4 0.6 53.0

Department of Transportation, Highway Trust Fund . 64.6 (12.3) 52.3

Office of Personnel Management, Postal Service 

Retiree Health Benefits Fund ................................. 51.5 (2.0) 49.5

Office of Personnel Management, Employees Life 

Insurance Fund .................................................... 45.2 0.5 45.7

Department of Housing and Urban Development, 

FHA, Mutual Mortgage Insurance Capital Reserve 

Account ............................................................... 36.4 (5.5) 30.9

Pension Benefit Guaranty Corporation ................... 23.7 4.7 28.4

Office of Personnel Management, Employees 

Health Benefits Fund ............................................. 23.7 2.3 26.0

Department of the Treasury, Exchange 

Stabilization Fund ................................................. 22.7 (0.6) 22.1

Department of State, Foreign Service Retirement 

and Disability Fund ............................................... 18.3 0.5 18.8

Department of Housing and Urban Development, 

Guarantees of Mortgage-Backed Securities Capital 

Reserve Account................................................... 15.8 1.3 17.1

Department of Transportation, Airport and Airway 

Trust Fund ............................................................ 13.4 - 13.4

National Credit Union Share Insurance Fund........... 12.3 0.8 13.1

United States Postal Service, Postal Service Fund .. 8.5 2.5 11.0

All other programs and funds ................................. 96.3 2.8 99.1

Subtotal ............................................................. 5,399.9 171.6 5,571.5

Total net unamortized premiums/(discounts) for 

intragovernmental.................................................. 72.7 (0.5) 72.2

Total intragovernmental debt holdings, net ......... 5,472.6 171.1 5,643.7
 NOTES TO THE FINANCIAL STATEMENTS 96

Intragovernmental debt holdings represent the portion of the gross federal debt held as investments by government

entities such as trust funds, revolving funds, and special funds.

Government entities that held investments in Treasury securities include trust funds that have funds from dedicated

collections. For more information on funds from dedicated collections, see Note 20─Funds from Dedicated Collections.

These intragovernmental debt holdings are eliminated in the consolidation of these financial statements.
97 NOTES TO THE FINANCIAL STATEMENTS 

Note 12. Federal Employee and Veteran Benefits Payable

Federal Employee and Veteran Benefits Payable as of September 30, 2017, and 2016

Civilian Military Total

(In billions of dollars) 2017 2016 2017 2016 2017 2016

Pension and accrued benefits ................... 2,013.8 1,910.7 1,568.0 1,490.6 3,581.8 3,401.3

Veterans compensation and burial 

benefits.................................................... N/A N/A 2,810.0 2,496.3 2,810.0 2,496.3

Post-retirement health and accrued 

benefits ................................................... 375.7 352.3 781.6 799.7 1,157.3 1,152.0

Veterans education benefits...................... N/A N/A 50.7 59.6 50.7 59.6

Life insurance and accrued benefits........... 53.1 50.9 6.9 7.7 60.0 58.6

FECA benefits.......................................... 28.9 30.1 8.3 8.3 37.2 38.4

Liability for other benefits .......................... 1.1 1.0 2.0 2.2 3.1 3.2

Total federal employee and veteran 

benefits payable .................................... 2,472.6 2,345.0 5,227.5 4,864.4 7,700.1 7,209.4

Change in Pension and Accrued Benefits

Civilian Military Total

(In billions of dollars) 2017 2016 2017 2016 2017 2016

Actuarial accrued pension liability, 

beginning of fiscal year ............................. 1,910.7 1,945.0 1,490.6 1,563.2 3,401.3 3,508.2

Pension expense:

Prior (and past) service costs from plan 

amendments or new plans...................... - (1.0) (0.9) (18.7) (0.9) (19.7)

Normal costs ......................................... 38.8 39.2 27.4 26.9 66.2 66.1

Interest on liability .................................. 69.5 73.9 57.6 63.4 127.1 137.3

Actuarial (gains)/losses (from 

experience) ........................................... (12.0) (27.1) (1.6) (25.5) (13.6) (52.6)

Actuarial (gains)/losses (from 

assumption changes)............................. 94.3 (33.0) 52.9 (61.2) 147.2 (94.2)

Other .................................................... - 0.1 - - - 0.1

Total pension expense ........................... 190.6 52.1 135.4 (15.1) 326.0 37.0

Less benefits paid .................................... (87.5) (86.4) (58.0) (57.5) (145.5) (143.9)

Actuarial accrued pension liability, end of 

fiscal year ................................................ 2,013.8 1,910.7 1,568.0 1,490.6 3,581.8 3,401.3
 NOTES TO THE FINANCIAL STATEMENTS 98

Change in Post-Retirement Health and Accrued Benefits

Civilian Military Total

(In billions of dollars) 2017 2016 2017 2016 2017 2016

Actuarial accrued post-retirement health 

benefits liability, beginning of fiscal year..... 352.3 364.0 799.7 731.2 1,152.0 1,095.2

Post-Retirement health benefits 

expense: 

Prior (and past) service costs from plan 

amendments or new plans...................... - (0.2) - (5.8) - (6.0)

Normal costs ......................................... 13.4 14.1 20.5 19.4 33.9 33.5

Interest on liability .................................. 13.9 14.8 32.3 30.3 46.2 45.1

Actuarial (gains)/losses (from 

experience) ........................................... 4.5 (11.1) (20.6) 40.9 (16.1) 29.8

Actuarial (gains)/losses (from 

assumption changes)............................. 7.5 (14.0) (28.8) 3.6 (21.3) (10.4)

Total post-retirement health benefits 

expense ................................................ 39.3 3.6 3.4 88.4 42.7 92.0

Less claims paid....................................... (15.9) (15.3) (21.5) (19.9) (37.4) (35.2)

Actuarial accrued post-retirement health 

benefits liability, end of fiscal year.............. 375.7 352.3 781.6 799.7 1,157.3 1,152.0

The Government offers its employees retirement and other benefits, as well as health and life insurance. The liabilities

for these benefits, which include both actuarial amounts and amounts due and payable to beneficiaries and health care

carriers, apply to current and former civilian and military employees. Large fluctuations in actuarial amounts can result from

changes in estimates to future outflows for benefits based on complex assumptions and cost models.

OPM administers the largest civilian plan. DOD and VA administer the largest military plans. Other significant pension

plans with more than $10 billion in accrued benefits payable include those of the Coast Guard (DHS), Foreign Service

(DOS), TVA, USPS, and HHS’s Public Health Service Commissioned Corps Retirement System. Please refer to the financial

statements of the agencies listed for further details regarding their pension plans and other benefits.

Change in Civilian Life Insurance and Accrued Benefits

(In billions of dollars) 2017 2016

Actuarial accrued life insurance benefits liability, beginning of fiscal year .... 50.9 49.6

Life insurance benefits expense:

New entrant expense ............................................................................ 0.4 0.4

Interest on liability ................................................................................. 1.9 1.9

Actuarial (gains)/losses (from experience) .............................................. (0.4) (0.8)

Actuarial (gains)/losses (from assumption changes)................................ 0.9 0.4

Total life insurance benefits expense ................................................... 2.8 1.9

Less costs paid ....................................................................................... (0.6) (0.6)

Actuarial accrued life insurance benefits liability, end of fiscal year ............. 53.1 50.9
99 NOTES TO THE FINANCIAL STATEMENTS 

Significant Long-Term Economic Assumptions Used in Determining Pension 

Liability and the Related Expense

Civilian Military

2017 2016 2017 2016

FERS CSRS FERS CSRS

Rate of interest .............................. 3.80% 3.20% 4.00% 3.50% 3.70% 3.90%

Rate of inflation.............................. 1.80% 1.80% 1.90% 1.90% 1.70% 1.70%

Projected salary increases.............. 1.50% 1.50% 1.50% 1.50% 2.10% 2.10%

Cost of living adjustment ............... 1.40% 1.80% 1.60% 1.90% N/A N/A

Significant Long-Term Economic Assumptions Used in Determining 

Post-Retirement Health Benefits and the Related Expense

Civilian Military

2017 2016 2017 2016

Rate of interest ............................................. 3.80% 4.00% 3.80% 4.00%

Single equivalent medical trend rate............... 4.80% 5.00% 4.12% 4.56%

Ultimate medical trend rate............................ 3.40% 3.50% 4.20% 4.45%

Significant Long-Term Economic Assumptions Used in Determining Life Insurance 

Benefits and the Related Expense

Civilian

2017 2016

Rate of interest ............................................. 3.60% 3.80%

Rate of increase in salary .............................. 1.50% 1.50%

In accordance with SFFAS No. 33, Pension, Other Retirement Benefits, and Other Postemployment Benefits: Reporting 

the Gains and Losses from Changes in Assumptions and Selecting Discount Rates and Valuation Dates, agencies are required 

to separately present gains and losses from changes in long-term assumptions used to estimate liabilities associated with 

pensions, Other Retirement Benefits (ORB), and Other Postemployment Benefits (OPEB) on the Statement of Net Cost. 

SFFAS No. 33 also provides a standard for selecting the discount rate assumption for present value estimates of federal 

employee pension, ORB, and OPEB liabilities. The SFFAS No. 33 standard for selecting the discount rate assumption 

requires it be based on a historical average of interest rates on marketable Treasury securities consistent with the cash

flows being discounted. Additionally, SFFAS No. 33 provides a standard for selecting the valuation date for estimates of 

federal employee pension, ORB, and OPEB liabilities that establishes a consistent method for such measurements. 

To provide a sustainable, justifiable data resource for the affected agencies, Treasury developed a new model and 

methodology for developing these interest rates in fiscal year 2014. The new method that was developed is based on 

methodology used to produce the High Quality Market (HQM) Yield Curve pursuant to the Pension Protection Act of 

2006.2 As of July 2014, Treasury began releasing interest rate yield curve data using this new U.S. Department of the 

Treasury’s Yield Curve for Treasury Nominal Coupon Issues (TNC yield curve), which is derived from Treasury notes

 2 Treasury’s HQM resource is available at: https://www.treasury.gov/resource-center/economic-policy/corp-bond-yield/Pages/Corp-Yield-Bond-CurvePapers.aspx.
 NOTES TO THE FINANCIAL STATEMENTS 100

and bonds. The TNC yield curve provides information on Treasury nominal coupon issues and the methodology extrapolates 

yields beyond 30 years through 100 years maturity. The TNC yield curve is used to produce a Treasury spot yield curve (a 

zero coupon curve), which provides the basis for discounting future cash flows.

Civilian Employees

Pensions

OPM administers the largest civilian pension plan, which covers substantially all full-time, permanent civilian federal 

employees. This plan includes two components of defined benefits, the Civil Service Retirement System (CSRS) and the 

Federal Employees’ Retirement System (FERS). The basic benefit components of the CSRS and the FERS are financed and 

operated through the Civil Service Retirement and Disability Fund (CSRDF), a trust fund. CSRDF monies are generated 

primarily from employees’ contributions, agency contributions, payments from the General Fund, and interest on investments 

in Treasury securities.

The Federal Retirement Thrift Investment Board administers the TSP. The TSP investment options include two fixed 

income funds (the G and F Funds), three stock funds (the C, S, and I Funds) and five lifecycle funds (L 2050, L 2040, L 

2030, L 2020, and L Income). The L Funds diversify participant accounts among the G, F, C, S, and I Funds, using 

professionally determined investment mixes (allocations) that are tailored to different time horizons. Treasury securities held 

in the G Fund are included in federal debt securities held by the public and accrued interest on the Balance Sheet. The G 

Fund held $217.9 billion and $220.9 billion in nonmarketable Treasury securities as of September 30, 2017, and 2016, 

respectively.

The liability for civilian pension and accrued benefits payable increased $103.1 billion. This increase is largely 

attributable to changes in actuarial assumptions. The assumption loss results primarily from decreases to the assumed rates of 

interest and to changes in demographic assumptions.

Post-Retirement Health Benefits

The post-retirement civilian health benefit liability is an estimate of the Government’s future cost of providing postretirement health benefits to current employees and retirees. Although active and retired employees pay insurance premiums 

under the Federal Employees Health Benefits Program (FEHB), these premiums cover only a portion of the costs. The OPM 

actuary applies economic and demographic assumptions to historical cost information to estimate the liability. 

The Postal Accountability and Enhancement Act of 2006 (Postal Act of 2006) (P.L. No 109-435, Title VIII), made 

significant changes in the funding of future retiree health benefits for employees of the USPS, including the requirement for 

the USPS to make scheduled payments to the Postal Service Retiree Health Benefits (PSRHB) Fund. Various legislation 

requires the USPS to make scheduled payments to the PSRHB Fund ranging from $5.4 billion to $5.8 billion per year from 

fiscal year 2007 through fiscal year 2016. Thereafter, the law requires USPS to make annual payments in the amount of the 

normal cost plus or minus an amount to amortize the unfunded liability or surplus. USPS currently owes the PSRHB Fund a 

total of $38.2 billion consisting of: $11.1 billion for fiscal year 2012, $5.6 billion for fiscal year 2013, $5.7 billion for both 

fiscal years 2014 and 2015, $5.8 billion for fiscal year 2016, and $4.3 billion for fiscal year 2017. As of September 30, 2017, 

USPS has not indicated its intention regarding payment of the $38.2 billion due. At this time, Congress has not taken further 

action on these payments due to the PSRHB Fund from USPS. The cost for each year’s payment, including any defaulted 

payment, along with all other benefit program costs, are included in USPS’ net cost for that year in the consolidated 

Statements of Net Cost.

The post-retirement civilian health benefit liability increased $23.4 billion. This increase is due to the accruing cost of 

benefits, interest on the existing liability and an actuarial loss primarily attributable to updated demographic assumptions 

used in the fiscal year 2017 calculation. 

Life Insurance Benefits

One of the other significant employee benefits is the Federal Employee Group Life Insurance (FEGLI) Program. 

Employee and annuitant contributions and interest on investments fund a portion of this liability. The actuarial life insurance 

liability is the expected present value of future benefits to pay to, or on behalf of, existing FEGLI participants, less the 

expected present value of future contributions to be collected from those participants. The OPM actuary uses salary increase 

and interest rate yield curve assumptions that are generally consistent with the pension liability.
101 NOTES TO THE FINANCIAL STATEMENTS 

Workers’ Compensation Benefits

The DOL determines both civilian and military agencies’ liabilities for future workers’ compensation benefits for 

civilian federal employees, as mandated by the Federal Employees’ Compensation Act (FECA), for death, disability, 

medical, and miscellaneous costs for approved compensation cases, and a component for incurred, but not reported, claims. 

The FECA liability is determined annually using historical benefit payment patterns related to injury years to predict the 

future payments. 

The actuarial methodology provides for the effects of inflation and adjusts historical payments to constant dollars by 

applying wage inflation factors (cost-of-living adjustments or COLA) and medical inflation factors (consumer price indexmedical or CPIM) to the calculation of projected benefits. 

DOL selects the COLA factors, CPIM factors, and discount rate by averaging the COLA rates, CPIM rates, and interest 

rates for the current and prior four years. Using averaging renders estimates that reflect historical trends over five years 

instead of conditions that exist in one year. 

The COLAs and CPIMs used in the projections for fiscal year 2017 are listed below in the table. 

DOL selected the interest rate assumptions whereby projected annual payments were discounted to present value based

on interest rate assumptions on the TNC Yield Curve to reflect the average duration of income payments and medical

payments. The average durations for income payments and medical payments were 14.7 years and 9.5 years, respectively.

Based on averaging the TNC Yield Curves for the current and prior four years, the interest rate assumptions for income

payments and medical payments were 2.68% and 2.22%, respectively.

For the COLAs, CPIMs, average durations, and interest rate assumptions used in the projections for fiscal year 2016,

refer to the Fiscal Year 2016 Financial Report of the U.S. Government.

Military Employees (Including Veterans)

Pensions

The military retirement system consists of a funded, noncontributory, defined benefit plan. It applies to military

personnel (Departments of Army, Navy, Air Force, and the Marine Corps). This system includes non-disability retired pay,

disability retired pay; survivor annuity programs, and Combat-Related Special Compensation. The Service Secretaries may

approve immediate non-disability retired pay at any age with credit of at least 20 years of active duty service. Reserve retirees

must be at least 60 years old and have at least 20 qualifying years of service before retired pay commences; however, in some

cases, the age can be less than 60 if the reservist performs certain types of active service. P.L. 110-181 provides for a 90-day

reduction in the reserve retirement age from age 60 for every 3 months of certain active duty service served within a fiscal

year for service after January 28, 2008 (not below age 50). There is no vesting of benefits before non-disabled retirement.

There are distinct non-disability benefit formulas related to four populations within the Military Retirement System: Final

Pay, High-3, Career Status Bonus/Redux, and the Blended Retirement System (BRS) enacted in the National Defense

Authorization Act for Fiscal Year 2016, effective January 1, 2018. The BRS is a new retirement benefit merging aspects of

both a defined benefit annuity with a defined contribution account, through the Thrift Savings Plan (TSP). The date an

individual enters the military determines which retirement system they would fall under and if they have the option to pick

their retirement system. Military personnel with a start date on or after January 1, 2018 are automatically enrolled in BRS.

Although all members serving as of December 31, 2017 are grandfathered under the existing retirement system, Active Duty,

National Guard and Reserve personnel meeting established criteria may opt into BRS during calendar year 2018. Under the

BRS, retiring members are given the option to receive a portion of their retired pay annuity in the form of a lump sum

distribution. For more information on these benefits, see DOD’s Office of Military Compensation website

https://militarypay.defense.gov.
 NOTES TO THE FINANCIAL STATEMENTS 102

The DOD Military Retirement Fund was established by P.L. 98-94 (currently Chapter 74 of Title 10, U.S.C.) and

accumulates funds to finance, on an accrual basis, the liabilities of DOD military retirement and survivor benefit programs.

This Fund receives income from three sources: monthly normal cost payments from the Services and Treasury to pay for the

current years’ service cost; annual payments from the Treasury to amortize the unfunded liability and pay for the increase in

the normal cost attributable to Concurrent Receipt per P.L. 108-136; and investment income.

The $77.4 billion increase in the Military Retirement Pension liability is primarily attributable to a reduction in the

discount rate related to requirements prescribed by SFFAS No. 33, Pensions, Other Retirement Benefits, and Other

Postemployment Benefits, and the expected increase from normal and interest costs offset by benefit payments. Liabilities in

the future will depend on expected changes due to interest and benefit accruals, future benefit changes, assumption changes,

and actuarial experience.

Post-Retirement Health Benefits

Military retirees who are not yet eligible for Medicare (and their eligible non-Medicare eligible dependents) are eligible

for post-retirement medical coverage provided by DOD. Depending on the benefit plan selected, retirees and their eligible

dependents may receive care from military treatment facilities (MTFs) on a space-available basis or from civilian providers.

This TRICARE coverage is available in Indemnity (health plan that allows you to visit almost any doctor or hospital you

choose), preferred provider organization [(PPO) – health plan that contracts with medical providers to create a network of

participating providers; member cost-shares are typically higher for services received out-of network] and health maintenance

organization [(HMO) – health plan that limits services to a specific network of medical personnel and facilities and usually

by requiring referral by a primary-care physician for specialty care] designs, with varying levels of cost sharing. These

postretirement medical benefits are paid by the Defense Health Agency on a pay-as-you-go basis.

Since fiscal year 2002, DOD has provided medical coverage to Medicare-eligible retirees (and their eligible Medicareeligible dependents). This coverage, called TRICARE for Life (TFL), is a Medicare Supplement plan which includes

inpatient, outpatient and pharmacy coverage. Enrollment in Medicare Part B is required to maintain eligibility in TFL.

Retirees with TFL coverage can obtain care from MTFs on a space-available basis or from civilian providers.

10 U.S.C., Chapter 56 created the DOD Medicare-Eligible Retiree Health Care Fund (MERHCF), which became

operative on October 1, 2002. The purpose of this fund is to account for and accumulate funds for the health benefit costs of

Medicare-eligible military retirees, and their dependents and survivors who are Medicare eligible. The Fund receives

revenues from three sources: interest earnings on MERHCF assets, Uniformed Services normal cost contributions, and

Treasury contributions. The DOD Medicare-Eligible Retiree Health Care Board of Actuaries (the Board) approves the

methods and assumptions used in actuarial valuations of the MERHCF for the purpose of calculating the per capita normal

cost rates (to fund the annual accrued benefits) and determining the unfunded liability amortization payment (the U.S.

Treasury contribution). The Secretary of Defense directs the Secretary of Treasury to make DOD’s normal cost payments.

The MERHCF pays for medical costs incurred by Medicare-eligible beneficiaries at MTFs and civilian providers (including

capitated payments to U.S. Family Health Plans for grandfathered beneficiaries), plus the costs associated with claimed

administration. The actuaries calculate the actuarial liabilities annually using assumptions and actual experience (e.g.,

mortality and retirement rates, health care costs, medical trend rates, and the discount rate).

Military post-retirement health and accrued benefits payable decreased $18.1 billion. This decrease is due primarily to

changes in key actuarial assumptions, and actuarial experience being more favorable from what has been assumed

(demographic and claims data).

In addition to the health care benefits the federal government provides for civilian and military retirees and their

dependents, the VA also provides medical care to veterans on an “as available” basis, subject to the limits of the annual

appropriations. In accordance with 38 CFR 17.36 (c), VA’s Secretary makes an annual enrollment decision that defines the

veterans, by priority, who will be treated for that fiscal year subject to change based on funds appropriated, estimated

collections, usage, the severity index of enrolled veterans, and changes in cost. While VA expects to continue to provide

medical care to veterans in future years, an estimate of such future benefits cannot be reasonably made. Accordingly, VA

recognizes the medical care expenses in the period the medical care services are provided. For the fiscal years 2013 through

2017, the average medical care cost per year was $58.0 billion.

Veterans Compensation and Burial Benefits

The Government compensates disabled veterans and their survivors. Veterans’ compensation is payable as a disability

benefit or a survivor’s benefit. Entitlement to compensation depends on the veteran’s disabilities having been incurred in, or

aggravated during, active military service; death while on duty; or death resulting from service-connected disabilities, if not

on active duty.

Eligible veterans who die or are disabled from military service-related causes, as well as their dependents, receive

compensation benefits. Also, veterans are provided with burial flags, headstones/markers, and grave liners for burial in a VA
103 NOTES TO THE FINANCIAL STATEMENTS 

national cemetery or are provided a burial flag, headstone/marker and a plot allowance for burial in a private cemetery. These

benefits are provided under 38 U.S.C., Part 2, Chapter 23 in recognition of a veteran’s military service and are recorded as a

liability in the period the requirements are met.

The liability for veterans’ compensation and burial benefits payable is based on an actuarial estimate of future

compensation and burial payments and increased by $313.7 billion in fiscal year 2017. The $313.7 billion increase is

primarily attributable to assumption changes and experience. The major experience impact was a higher than expected

number of veterans who became eligible for benefits during fiscal year 2017. The major assumption change impacts were

from a decrease in the discount rate and an increase in assumed future new compensation case rates.

Several significant actuarial assumptions were used in the valuation of compensation and burial benefits to calculate the

present value of the liability. A liability was recognized for the projected benefit payments to: 1) those beneficiaries,

including veterans and survivors, currently receiving benefit payments; 2) current veterans who will in the future become

beneficiaries of the compensation program; and 3) a proportional share of those in active military service as of the valuation

date who will become eligible disabled veterans in the future. Future benefit payments to survivors of those veterans in

classes 1, 2, and 3 above are also incorporated into the projection. The projected liability does not include any administrative

costs.

The veterans’ compensation and burial benefits liability is developed on an actuarial basis. It is impacted by interest on

the liability balance, experience gains or losses, changes in actuarial assumptions, prior service costs, and amounts paid for

costs included in the liability balance.

Change in Veterans Compensation and Burial Benefits

Compensation Burial Total

(In billions of dollars) 2017 2016 2017 2016 2017 2016

Actuarial accrued liability, beginning of 

fiscal year ............................................... 2,491.4 2,014.0 4.9 4.6 2,496.3 2,018.6

Current year expense:

Interest on the liability balance................ 97.9 82.2 0.2 0.2 98.1 82.4

Actuarial (gains)/losses (from 

experience) .......................................... 50.7 91.9 (0.2) 0.2 50.5 92.1

Actuarial (gains)/losses (from 

assumption changes)............................. 244.3 377.4 0.2 0.1 244.5 377.5

Total current year expense................... 392.9 551.5 0.2 0.5 393.1 552.0

Less benefits paid ................................... (79.2) (74.1) (0.2) (0.2) (79.4) (74.3)

Actuarial accrued liability, end of fiscal 

year ....................................................... 2,805.1 2,491.4 4.9 4.9 2,810.0 2,496.3

Significant Economic Assumptions Used in Determining Veterans Compensation and 

Burial Benefits as of September 30, 2017, and 2016

2017 2016

Rate of interest.................................................................... 3.66% 3.93%

Rate of inflation ................................................................... 2.28% 2.30%
 NOTES TO THE FINANCIAL STATEMENTS 104

Veterans Education Benefits

For eligible Veterans and their dependents, the VA provides four unique education/retraining type programs: 

• Post 9/11 GI Bill

• Montgomery GI Bill-Active Duty (MGIB-AD)

• Vocational Rehabilitation and Employment (VR&E)

• Dependent Education Assistance (DEA)

In fiscal year 2016, VA reported an estimated liability for the Post 9/11 GI Bill of $59.6 billion. This was the first time 

VA had reported this estimated liability and the models and assumptions used were conservative with limited experience 

studies or assumptions. At that time, VA had not developed models or estimates for the other three programs listed; however, 

it was management’s assertion that the amount recorded for the Post 9/11 GI Bill was large enough to include any liability for 

the other three programs. In fiscal year 2017, VA broke out each program and developed individual estimates based on 

actuarial standards. While not reported last year, VA did develop an estimate for fiscal year 2016 for each of the new 

programs to be used for comparisons only. These estimates reflect an increase in the liability of $8.7 billion. This amount is 

presented as “Other” in the schedule of “Changes in Veterans Education Benefits” provided below. 

The decrease in the liability of $14.8 billion from “Actuarial (gains)/losses from assumption changes” included the 

impacts of refinements to the modeling of the Post 9/11 GI Bill program (liability decrease of $29.3 billion); prior service 

costs associated with the “Forever GI Bill of 2017,” which eliminated the 15-year limitation for using the benefit (liability 

increase of $8.2 billion); and other assumption changes (liability increase of $6.3 billion).

For details regarding actuarial assumptions and the four unique education/retraining type programs, please refer to VA’s 

financial statements.

Change in Veterans Education Benefits

(In billions of dollars) 2017 2016

Actuarial accrued liability, beginning of fiscal year...................................... 59.6 53.1

Current year expense:

Interest on liability ................................................................................. 0.7 0.2

Actuarial (gains)/losses (from experience) .............................................. 9.3 18.0

Actuarial (gains)/losses (from assumption changes)................................ (14.8) -

Other ................................................................................................... 8.7 -

Total current year expense.................................................................. 3.9 18.2

Less benefits paid ................................................................................... (12.8) (11.7)

Actuarial accrued liability, end of fiscal year .............................................. 50.7 59.6

Life Insurance Benefits

The largest veterans’ life insurance programs consist of the following:

• National Service Life Insurance (NSLI) covers policyholders who served during World War II.

• Veterans’ Special Life Insurance (VSLI) was established in 1951 to meet the insurance needs of veterans who 

served during the Korean Conflict and through the period ending January 1, 1957.

• Service-Disabled Veterans Insurance (S-DVI) program was established in 1951 to meet the insurance needs of 

veterans who received a service-connected disability rating.
105 NOTES TO THE FINANCIAL STATEMENTS 

The components of veteran life insurance liability for future policy benefits are presented below:

Veterans Life Insurance Liability as of September 30, 2017, and 2016

(In billions of dollars) 2017 2016

Insurance death benefits:

NSLI....................................................................................................... 2.8 3.4

VSLI....................................................................................................... 1.2 1.3

S-DVI ..................................................................................................... 0.7 0.6

Other...................................................................................................... 0.3 0.3

Total death benefits .............................................................................. 5.0 5.6

Death benefit annuities .............................................................................. - 0.1

Disability income & waiver.......................................................................... 0.8 0.8

Insurance dividends payable ...................................................................... 1.1 1.2

Total veterans life insurance liability ......................................................... 6.9 7.7

Insurance dividends payable consists of dividends left on a deposit with VA, related interest payable, and dividends

payable to policyholders.

The VA supervises Service members Group Life Insurance (SGLI) and Veterans Group Life Insurance programs that

provide life insurance coverage to members of the uniformed armed services, reservists, and post-Vietnam Veterans as well

as their families. VA has entered into a group policy with the Prudential Insurance Company of America to administer and

provide the insurance payments under these programs. All SGLI insureds are automatically covered under the Traumatic

Injury Protection (TSGLI) program, which provides for insurance payments to veterans who suffer a serious traumatic injury

in service.

Pension Benefits

The VA also provides certain veterans and/or their dependents with pension benefits, based on annual eligibility

reviews, if the veteran died or was disabled for nonservice-related causes. VA pension benefits are recognized as a nonexchange transaction due to the nature of the VA pension plan. Therefore, the actuarial present value of these future benefits

is not required to be recorded on the Balance Sheet. The projected amounts of future payments for pension benefits

(presented for informational purposes only) as of September 30, 2017, and 2016, was $87.6 billion and $87.2 billion,

respectively.
 NOTES TO THE FINANCIAL STATEMENTS 106

Note 13. Environmental and Disposal Liabilities

Environmental and Disposal Liabilities as of September 30, 2017, and 2016

(In billions of dollars) 2017 2016

Department of Energy:

Environmental and disposal liabilities ............................................................... 383.8 371.8

Department of Defense:

Environmental restoration liabilities .................................................................. 27.4 26.8

Environmental disposal for military equipment/weapons programs ..................... 16.3 14.8

Other environmental liabilities-non-BRAC......................................................... 11.2 9.3

Chemical weapons disposal program ............................................................... 8.7 7.1

Base realignment and closure installations (BRAC)........................................... 4.7 4.6

Total Department of Defense........................................................................... 68.3 62.6

All other agencies.............................................................................................. 12.4 12.2

Total environmental and disposal liabilities ....................................................... 464.5 446.6

During World War II and the Cold War, DOE (or predecessor agencies) developed a massive industrial complex to

research, produce, and test nuclear weapons. This included nuclear reactors, chemical-processing buildings, metal machining

plants, laboratories, and maintenance facilities that manufactured tens of thousands of nuclear warheads and conducted more

than 1,000 nuclear tests.

At all sites where these activities took place, some environmental contamination occurred. This contamination was

caused by the production, storage, and use of radioactive materials and hazardous chemicals, which resulted in contamination

of soil, surface water, and groundwater. The environmental legacy of nuclear weapons production also includes thousands of

contaminated buildings and large volumes of waste and special nuclear materials requiring treatment, stabilization, and

disposal.

Estimated cleanup costs at sites for which there are no current feasible remediation approaches, such as the Nevada

nuclear test site, are excluded from the estimates, although applicable stewardship and monitoring costs for these sites are

included. DOE has not been required through regulation to establish remediation activities for these sites.

Estimating DOE’s environmental cleanup liability requires making assumptions about future activities and is inherently

uncertain. The future course of DOE’s environmental cleanup and disposal will depend on a number of fundamental technical

and policy choices, many of which have not been made. The sites and facilities could be restored to a condition suitable for

any desirable use, or could be restored to a point where they pose no near-term health risks. Achieving the former conditions

would have a higher cost but may (or may not) warrant the costs, or be legally required. The environmental and disposal

liability estimates include contingency estimates intended to account for the uncertainties associated with the technical

cleanup scope of the program.

DOE’s environmental and disposal liabilities estimates are dependent on annual funding levels and achievement of

work as scheduled. Congressional appropriations at lower than anticipated levels or unplanned delays in project completion

would cause increases in life-cycle costs.

DOE’s environmental and disposal liabilities also include the estimated cleanup and post-closure responsibilities,

including surveillance and monitoring activities, soil and groundwater remediation, and disposition of excess material for

sites. The Department is responsible for the post-closure activities at many of the closure sites as well as other sites. The costs

for these post-closure activities are estimated for a period of 75 years after the balance sheet date, i.e., through 2092 in fiscal

year 2017 and through 2091 in fiscal year 2016. While some post-cleanup monitoring and other long-term stewardship

activities post-2092 are included in the liability, there are others the Department expects to continue beyond 2092 for which

the costs cannot reasonably be estimated.

A portion of DOE’s environmental and disposal liabilities at various field sites includes anticipated costs for facilities

managed by DOE’s ongoing program operations which will ultimately require stabilization, deactivation, and

decommissioning. The estimate is largely based upon a cost-estimating model. Site specific estimates are used in lieu of the
107 NOTES TO THE FINANCIAL STATEMENTS 

cost-estimating model, when available. Cost estimates for ongoing program facilities are updated each year. For facilities

newly contaminated since fiscal year 1997, cleanup costs allocated to future periods and not included in environmental and

disposal liabilities amounted to $0.9 billion and $0.7 billion for fiscal years 2017 and 2016, respectively.

Please refer to the financial statements of the DOE for significant detailed information regarding DOE’s environmental

and disposal liabilities, including cleanup costs.

DOD must restore active installations, installations affected by base realignment and closure, and other areas formerly

used as Defense sites. DOD also bears responsibility for disposal of chemical weapons and environmental costs associated

with the disposal of weapons systems (primarily nuclear powered aircraft carriers and submarines).

DOD follows the Comprehensive Environmental Response, Compensation, and Liability Act (CERCLA), Superfund

Amendments and Reauthorization Act, Resource Conservation and Recovery Act (RCRA) and other applicable federal or

state laws to clean up contamination. The CERCLA and RCRA require the DOD 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 DOD at risk

of incurring fines and penalties.

DOD uses engineering estimates and independently validated models to estimate environmental costs. The engineering

estimates are used after obtaining extensive data during the remedial investigation/feasibility phase of the environmental

project.

For general PP&E placed into service after September 30, 1997, DOD expenses 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. DOD expenses the full cost to clean up contamination for stewardship property, plant, and

equipment at the time the asset is placed into service. DOD has expensed the costs for cleanup associated with general

property, plant, and equipment placed into service before October 1, 1997, except for costs intended to be recovered through

user charges; for those costs, DOD has expensed cleanup costs associated with that portion of the asset life that has passed

since it was placed into service. DOD systematically recognizes the remaining cost over the remaining life of the asset. DOD

is unable to provide an estimate for the unrecognized portion of the cleanup cost associated with general property, plant, and

equipment for fiscal year 2017. The Department is reevaluating its methodology and implementing procedures to address

deficiencies. The unrecognized portion of the cleanup cost associated with general property, plant, and equipment for fiscal

year 2016 is $2.7 billion.

DOD is unable to estimate and report a liability for environmental restoration and corrective action for buried chemical

munitions and agents, because the extent of the buried chemical munitions and agents is unknown at this time. DOD is also

unable to provide a complete estimate for the Formerly Utilized Sites Remedial Action Program. DOD has ongoing studies

and will update its estimate as additional liabilities are identified. DOD has the potential to incur costs for restoration

initiatives in conjunction with returning overseas Defense facilities to host nations. However, DOD is unable to provide a

reasonable estimate at this time because the extent of required restoration is unknown.

Please refer to the financial statements of DOD for further detailed information regarding DOD’s environmental and

disposal liabilities, including cleanup costs.
 NOTES TO THE FINANCIAL STATEMENTS 108

Note 14. Benefits Due and Payable

Benefits Due and Payable as of September 30, 2017, and 2016

(In billions of dollars) 2017 2016

Federal Old-Age and Survivors Insurance.................................................. 71.3 69.1

Grants to States for Medicaid.................................................................... 34.1 35.4

Federal Supplementary Medical Insurance (Medicare Parts B and D).......... 30.6 36.2

Federal Hospital Insurance (Medicare Part A) ............................................ 30.0 27.8

Federal Disability Insurance...................................................................... 26.9 28.1

All other benefits programs ....................................................................... 25.9 21.6

Total benefits due and payable............................................................... 218.8 218.2

Benefits due and payable are amounts owed to program recipients or medical service providers as of September 30 that

have not been paid. HHS and the SSA administer the majority of the medical service programs. For a description of the

programs, see Note 22—Social Insurance and the Unaudited Required Supplementary Information—Social Insurance

section.
109 NOTES TO THE FINANCIAL STATEMENTS 

Note 15. Insurance and Guarantee Program Liabilities

Insurance and Guarantee Program Liabilities as of September 30, 2017, and 2016

Restated

(In billions of dollars) 2017 2016

Insurance and Guarantee Program Liabilities:

Pension Benefit Guaranty Corporation - Benefit Pension Plans ................... 178.6 174.7

Department of Homeland Security - National Flood Insurance Programs ..... 12.3 3.2

Department of Agriculture - Federal Crop Insurance ................................... 11.3 8.9

National Credit Union Administration - Share Insurance Fund ..................... 0.3 0.2

Total insurance and guarantee program liabilities .................................... 202.5 187.0

As of September 30, 2017, and 2016, $178.6 billion and $174.7 billion, respectively, pertain to the PBGC singleemployer and multiemployer pension plans. PBGC insures pension benefits for participants in covered defined benefit

pension plans. As of September 30, 2017, and 2016, PBGC had total liabilities of $184.4 billion and $179.0 billion, and its

total liabilities exceeded its total assets by $76.0 billion and $79.4 billion, respectively. Refer to PBGC’s financial statements

for more information. As a wholly-owned corporation of the government, PBGC’s financial activity and balances are

included in the consolidated financial statements of the government. Certain PBGC amounts have been restated. Refer to

Note 1.V—Restatements for more information.

As of September 30, 2017, and 2016, $12.3 billion and $3.2 billion, respectively, pertain to the DHS National Flood

Insurance Program. As a result of the major Hurricanes Harvey, Irma, and Maria in August and September 2017, and the

related flooding, there was a significant increase in DHS’s insurance liabilities.

As of September 30, 2017, and 2016, $11.3 billion and $8.9 billion, respectively, pertain to the USDA’s Federal Crop

Insurance Program. The Federal Crop Insurance Program is administered by the Federal Crop Insurance Corporation, whose

mission is to provide an actuarially sound risk management program to reduce agricultural producers’ economic losses due to

natural disasters.

As of September 30, 2017, and 2016, $0.3 billion and $0.2 billion, respectively, pertain to the National Credit Union

Administration’s (NCUA) National Credit Union Share Insurance Fund (NCUSIF). The NCUSIF is administered by the

NCUA, and protects members’ accounts in insured credit unions in the event of a credit union failure.
 NOTES TO THE FINANCIAL STATEMENTS 110

Note 16. Other Liabilities

Other Liabilities as of September 30, 2017, and 2016 Restated

(In billions of dollars) 2017 2016

Unearned revenue and assets held for others:

Unearned fees for nuclear waste disposal (DOE) and other unearned 

revenue .................................................................................................... 60.0 54.4

Assets held on behalf of others ................................................................... 111.4 114.4

Subtotal .................................................................................................. 171.4 168.8

Employee-related liabilities:

Accrued federal employees' wages and benefits........................................... 37.4 36.2

Selected DOE contractors' and D.C. employees' pension benefits ................. 51.5 53.1

Subtotal .................................................................................................. 88.9 89.3

International monetary liabilities and gold certificates:

Exchange Stabilization Fund....................................................................... 55.1 54.5

Gold certificates (see Note 2)...................................................................... 11.0 11.0

Subtotal .................................................................................................. 66.1 65.5

Subsidies and grants:

Farm and other subsidies............................................................................ 13.2 13.5

Grant payments due to state and local governments and others .................... 22.1 21.9

Subtotal .................................................................................................. 35.3 35.4

Miscellaneous liabilities:

Legal and other contingencies..................................................................... 56.6 49.6

Non-federal power projects and capital lease liabilities, and disposal 

liabilities .................................................................................................... 12.1 11.0

Other miscellaneous................................................................................... 42.8 49.1

Subtotal .................................................................................................. 111.5 109.7

Total..................................................................................................... 473.2 468.7

Other liabilities represent liabilities that are not separately identified on the Balance Sheet and are presented on a

comparative basis by major category.
111 NOTES TO THE FINANCIAL STATEMENTS 

Unearned Revenue and Assets Held for Others

The government recognizes a liability when it receives money in advance of providing goods and services or assumes

custody of money belonging to others. The government’s unearned revenue from fees DOE has collected from utility

companies for the future cost of managing the disposal of nuclear waste and interest income received is about $40.3 billion

and $38.8 billion as of September 30, 2017, and 2016, respectively. Other unearned revenue includes USPS income for such

things as prepaid postage and prepaid P.O. Box rentals. Assets held on behalf of others include funds collected in advance for

such things as outstanding postal money orders and undelivered Defense articles. DSCA holds $85.6 billion and $80.9 billion

as of September 30, 2017, and 2016, respectively for articles and services for future delivery to foreign governments.

Employee-Related Liabilities

This category includes amounts owed to employees at year-end and actuarial liabilities for certain non-federal

employees. Actuarial liabilities for federal employees and veteran benefits are included in Note 12–Federal Employee and

Veteran Benefits Payable and are reported on another line on the Balance Sheet. The largest liability in the employee-related

liabilities category is the amount owed at the end of the fiscal year to federal employees for wages and benefits (including

accrued annual leave). In addition, DOE is liable to certain contractors for contractor employee pension and postretirement

benefits, which is about $23.1 billion and $28.9 billion as of September 30, 2017 and 2016, respectively. Also, the

government owed about $8.7 billion and $8.8 billion as of September 30, 2017, and 2016 respectively, for estimated future

pension benefits of the District of Columbia’s judges, police, firefighters, and teachers.

International Monetary Liabilities and Gold Certificates

Consistent with U.S. obligations in the IMF on orderly exchange arrangements and a stable system of exchange rates,

the Secretary of the Treasury, with the approval of the President, may use the Exchange Stabilization Fund to deal in gold,

foreign exchange, and other instruments of credit and securities.

Gold certificates are issued in nondefinitive or book-entry form to the Federal Reserve Bank of New York (FRBNY).

The government’s liability incurred by issuing the gold certificates, as reported on the Balance Sheet, is limited to the gold

being held by the Department of the Treasury at the standard value established by law. Upon issuance of gold certificates to

the FRBNY, the proceeds from the certificates are deposited into the operating cash of the U.S. Government. All of the

Department of the Treasury’s certificates issued are payable to the FRBNY.

Subsidies and Grants

The government supports the public good through a wide variety of subsidy and grant programs in such areas as

agriculture, medical and scientific research, education, and transportation. USDA programs such as Conservation Reserve;

grants, subsidies, and contributions; and Agricultural Risk Coverage and Price Loss Coverage account for the majority of the

subsidies due, about $12.1 billion and $12.7 billion as of September 30, 2017 and 2016, respectively.

The government awards hundreds of billions of dollars in grants annually. These include project grants that are

competitively awarded for agency-specific projects, such as HHS grants to fund projects to “enhance the independence,

productivity, integration, and inclusion into the community of people with developmental disabilities.” Other grants are

formula grants, such as matching grants. Formula grants go to state governments for such things as education and

transportation programs. These grants are paid in accordance with distribution formulas that have been provided by law or

administrative regulations. Of the total liability reported for grants as of September 30, 2017, and 2016, DOT, Education, and

HHS collectively owed their grantees about $17.4 billion and $16.6 billion, respectively. Refer to the financial statements and

footnotes of the respective agencies for additional information.

Miscellaneous Liabilities

Some of the more significant liabilities included in this category are for (1) legal and other contingencies (see Note 18—

Contingencies), (2) Bonneville Power Administration liability to pay annual budgets of several power projects for its

electrical generating capacity, and (3) payables due to the purchases of securities. Certain PBGC amounts have been restated.

Refer to Note 1.V—Restatements for more information.

In addition, many federal agencies reported relatively small amounts of miscellaneous liabilities that are not otherwise

classified.
 NOTES TO THE FINANCIAL STATEMENTS 112

Note 17. Collections and Refunds of Federal Revenue

Collections of Federal Tax Revenue for the Year Ended September 30, 2017

Federal Tax Year to Which Collections Relate

Tax

Revenue Prior

(In billions of dollars) Collections 2017 2016 2015 Years

Individual income tax and tax 

withholdings ................................. 2,976.3 1,930.0 988.6 32.3 25.4

Corporation income taxes ............... 338.6 218.6 108.9 1.8 9.3

Excise taxes .................................. 89.4 66.7 22.5 - 0.2

Unemployment taxes ..................... 44.2 31.4 12.7 - 0.1

Customs duties .............................. 34.9 34.9 - - -

Estate and gift taxes ....................... 23.8 0.2 20.9 1.0 1.7

Railroad retirement taxes ................ 6.0 4.6 1.4 - -

Fines, penalties, interest, and other 

revenue ......................................... 6.6 6.5 0.1 - -

Subtotal 3,519.8 2,292.9 1,155.1 35.1 36.7

Less: amounts collected for nonfederal entities ............................... (0.4)

Total............................................ 3,519.4

Treasury is the Government’s principal revenue-collecting agency. Collections of individual income and tax withholdings

include FICA/SECA and individual income taxes. These taxes are characterized as non-exchange revenue.

Excise taxes, also characterized as non-exchange revenue, consist of taxes collected for various items, such as airline

tickets, gasoline products, distilled spirits and imported liquor, tobacco, firearms, and others.

Federal Tax Refunds Disbursed for the Year Ended September 30, 2017

Tax Year to Which Refunds Relate

Refunds Prior

(In billions of dollars) Disbursed 2017 2016 2015 Years

Individual income tax and tax 

withholdings .......................................... 389.2 46.3 306.4 27.8 8.7

Corporation income taxes ....................... 44.9 5.2 14.4 7.8 17.5

Excise taxes .......................................... 2.1 0.4 1.0 0.2 0.5

Unemployment taxes .............................. 0.1 - 0.1 - -

Customs duties ...................................... 1.7 1.1 0.3 0.1 0.2

Estate and gift taxes ............................... 1.1 - 0.2 0.4 0.5

Total ................................................... 439.1 53.0 322.4 36.3 27.4
113 NOTES TO THE FINANCIAL STATEMENTS 

Reconciliation of Revenue to Tax Collections for the Year

Ended September 30, 2017, and 2016

(In billions of dollars) 2017 2016

Consolidated revenue per the Statement of Operations and Changes in Net 

Position ............................................................................................................ 3,374.6 3,345.3

Tax refunds ....................................................................................................... 439.1 428.3

Earned income tax and child tax credit imputed revenue ...................................... (79.1) (80.8)

Other tax credits and accrual adjustments ........................................................... (49.0) (41.0)

Federal Insurance Contributions Act - Tax ........................................................... 21.9 21.2

Federal Reserve earnings .................................................................................. (81.3) (115.7)

Nontax-related fines and penalties reported by agencies ...................................... (78.4) (100.3)

Nontax-related earned revenue........................................................................... (28.4) (18.2)

Collections of federal tax revenue ....................................................................... 3,519.4 3,438.8

Consolidated revenue in the SOCNP is presented on a modified cash basis, net of tax refunds, and includes other nontax related revenue. Earned Income Tax Credit, Child Tax Credit, and other tax credits amounts (unaudited) are included in

gross cost in the Statements of Net Cost. The Federal Insurance Contributions Act – Tax is included in the Individual income

and tax withholdings line in the Collections of Federal tax revenue; however, it is not reported on the SOCNP as these

collections are intragovernmental revenue and eliminated in consolidation. The table above reconciles total revenue to federal

tax collections.
 NOTES TO THE FINANCIAL STATEMENTS 114

Collections of Federal Revenue for the Year Ended September 30, 2016

Federal Tax Year to Which Collections Relate

Tax

Revenue Prior

(In billions of dollars) Collections 2016 2015 2014 Years

Individual income tax and tax 

withholdings ..................................... 2,874.9 1,833.5 982.9 32.8 25.7

Corporation income taxes.................... 345.6 228.2 107.2 2.5 7.7

Excise taxes ....................................... 101.8 78.6 23.0 0.1 0.1

Unemployment taxes .......................... 47.1 31.9 15.1 - 0.1

Customs duties................................... 35.0 35.0 - - -

Estate and gift taxes ........................... 22.3 - 8.0 0.9 13.4

Railroad retirement taxes .................... 5.9 4.5 1.4 - -

Fines, penalties, interest and other 

revenue ............................................. 6.6 6.5 0.1 - -

Subtotal........................................... 3,439.2 2,218.2 1,137.7 36.3 47.0

Less: amounts collected for nonfederal entities .................................... (0.4)

Total................................................ 3,438.8

Federal Tax Refunds Disbursed for the Year Ended September 30, 2016

Tax Year to Which Refunds Relate

Refunds Prior

(In billions of dollars) Disbursed 2016 2015 2014 Years

Individual income tax and tax 

withholdings ....................................... 372.3 37.0 300.7 26.5 8.1

Corporation income taxes...................... 51.4 6.5 19.2 7.4 18.3

Excise taxes ......................................... 1.5 0.2 0.6 0.4 0.3

Unemployment taxes ............................ 0.2 - 0.2 - -

Customs duties..................................... 1.6 0.9 0.3 0.1 0.3

Estate and gift taxes ............................. 1.3 0.4 0.5 0.1 0.3

Total.................................................. 428.3 45.0 321.5 34.5 27.3
115 NOTES TO THE FINANCIAL STATEMENTS 

Note 18. Contingencies

Financial Treatment of Loss Contingencies

Loss contingencies are existing conditions, situations, or set of circumstances involving uncertainty as to possible loss 

to an entity. The uncertainty will ultimately be resolved when one or more future events occur or fail to occur. The reporting 

of loss contingencies depends on the likelihood that a future event or events will confirm the loss or impairment of an asset or 

the incurrence of a liability. Terms used to assess the range for the likelihood of loss are probable, reasonably possible, and 

remote. Loss contingencies that are assessed as probable and measurable are accrued in the financial statements. Loss 

contingencies that are assessed to be at least reasonably possible are disclosed in this note and loss contingencies that are 

assessed as remote are not reported in the financial statements, nor disclosed in the notes. The following table provides 

criteria for how federal agencies are to account for loss contingencies, based on the likelihood of the loss and measurability.3

Likelihood of future 

outflow or other 

sacrifice of resources

Loss amount can be 

reasonably measured

Loss range can be 

reasonably measured

Loss amount or range 

cannot be reasonably 

measured

Probable

Future confirming 

event(s) are more likely 

to occur than not.4

Accrue the liability. 

Report on Balance 

Sheet and Statement of 

Net Cost.

Accrue liability of the 

best estimate or (if there 

is no best estimate) 

minimum amount in loss 

range, and disclose 

nature of contingency 

and range of estimated 

liability.

Disclose nature of 

contingency and include 

a statement that an 

estimate cannot be 

made.

Reasonably possible

Possibility of future 

confirming event(s) 

occurring is more than 

remote and less than 

likely.

Disclose nature of 

contingency and 

estimated loss amount.

Disclose nature of 

contingency and 

estimated loss range.

Disclose nature of 

contingency and include 

a statement that an 

estimate cannot be 

made.

Remote

Possibility of future 

event(s) occurring is 

slight.

No disclosure. No disclosure. No disclosure.

 3 In addition, a third condition must be met to be a loss contingency: a past event or an exchange transaction must occur. 4 For loss contingencies related to litigation, probable is defined as the future confirming event or events are more likely than not to occur, with the exception 

of pending or threatened litigation and unasserted claims. For the pending or threatened litigation and unasserted claims, the future confirming event or 

events are likely to occur.
 NOTES TO THE FINANCIAL STATEMENTS 116

The Government is subject to loss contingencies that include insurance and litigation cases. These loss contingencies 

arise in the normal course of operations and their ultimate disposition is unknown. Based on information currently available, 

however, it is management’s opinion that the expected outcome of these matters, individually or in the aggregate, will not 

have a material adverse effect on the financial statements, except for the insurance and litigation described in the following 

section, which could have a material adverse effect on the financial statements.

Insurance Contingencies

At the time an insurance policy is issued, a contingency arises. The contingency is the risk of loss assumed by the 

insurer, that is, the risk of loss from events that may occur during the term of the policy. The Government has insurance 

contingencies that are reasonably possible in the amount of $253.1 billion as of September 30, 2017, and $243.8 billion as of

September 30, 2016. The major programs are identified below:

• PBGC reported $252.2 billion and $242.8 billion as of September 30, 2017, and 2016, respectively, for the estimated 

aggregate unfunded vested benefits exposure to the PBGC for private-sector single-employer and multiemployer 

defined benefit pension plans that are classified as a reasonably possible exposure to loss. This increase is primarily 

due to the decrease in the interest factors used for valuing liabilities for the single-employer program, while the 

multiemployer program experienced a decrease in liability due to the removal of certain plans that are no longer 

classified as reasonably possible. Please refer to the PBGC financial statements for further details.

• FDIC reported $0.6 billion and $0.7 billion as of September 30, 2017, and 2016, respectively, for identified 

additional risk in the financial services industry that could result in additional loss to the Deposit Insurance Fund 

(DIF) should potentially vulnerable insured institutions ultimately fail. Actual losses, if any, will largely depend on 

future economic and market conditions.

Deposit Insurance

Deposit insurance covers all types of deposit accounts such as checking, Negotiable Order of Withdrawal and savings 

accounts, money market deposit accounts, and certificates of deposit received at an insured bank, savings association, or 

credit union. The insurance covers the balance of each depositor’s account and shares, dollar-for-dollar, up to the insurance 

limit, including principal and any accrued interest through the date of the insured financial institution’s closing. As a result, 

the Government has the following exposure from federally-insured financial institutions:

• FDIC has estimated insured deposits of $7,092.0 billion as of September 30, 2017, and $6,822.9 billion as of 

September 30, 2016, for the DIF.

• National Credit Union Administration (NCUA) has estimated insured shares of $1,080.9 billion as of September 30, 

2017, and $1,015.9 billion as of September 30, 2016, for the National Credit Union Share Insurance Fund.
117 NOTES TO THE FINANCIAL STATEMENTS 

Legal Contingencies

Legal contingencies as of September 30, 2017, and 2016, are summarized in the table below:

2017 2016

Estimated Range of Loss Estimated Range of Loss

for Certain Cases 2 for Certain Cases 2

Accrued Accrued

(In billions of dollars) Liabilities 1 Lower End Upper End Liabilities 1 Lower End Upper End

Legal contingencies:

Probable ............................ 7.4 6.8 8.6 7.2 7.2 7.9

Reasonably possible............ - 3.1 12.6 - 9.2 16.3

1 Accrued liabilities are recorded and presented in the related line items of the Balance Sheet.

2 Does not reflect the total range of loss; many cases assessed as reasonably possible of an unfavorable outcome did not include 

estimated losses that could be determined.

The Government is party to various administrative claims and legal actions brought against it, some of which may 

ultimately result in settlements or decisions against the Government.

Management and legal counsel have determined that it is “probable” that some of these actions will result in a loss to 

the Government and the loss amounts are reasonably measurable. The estimated liabilities for “probable” cases against the 

government are $7.4 billion and $7.2 billion as of September 30, 2017, and 2016, respectively, and are included in “Other 

Liabilities” on the Balance Sheet. For example, the U.S. Supreme Court decision in Salazar v. Ramah Navajo Chapter, dated 

June 18, 2012, is likely to result in additional claims against the Indian Health Service (IHS), which is a component within 

HHS. As a result of this decision, many tribes have filed claims. Some claims have been settled and others have been asserted

but not yet settled.

There are also administrative claims and legal actions pending where adverse decisions are considered by management 

and legal counsel as “reasonably possible” with an estimate of potential loss or a range of potential loss. The estimated 

potential losses reported for such claims and actions range from $3.1 billion to $12.6 billion as of September 30, 2017, and 

from $9.2 billion to $16.3 billion as of September 30, 2016. For example, the Department of the Treasury’s American 

Recovery and Reinvestment Tax Act of 2009 (ARRA) Related Cases are a number of cases that were filed in the U.S. Court of 

Federal Claims alleging that the U.S. government violated statutory and regulatory mandates to make proper payments to 

plaintiffs under ARRA, Section 1603, for having placed certain energy properties into service. The Department has 

determined there is a reasonably possible likelihood of unfavorable outcomes in some of the cases. 

Numerous litigation cases are pending where the outcome is uncertain or it is reasonably possible that a loss has been 

incurred and where estimates cannot be made. There are other litigation cases where the plaintiffs have not made claims for 

specific dollar amounts, but the settlement may be significant. The ultimate resolution of these legal actions for which the 

potential loss could not be determined may materially affect the U.S. government’s financial position or operating results. An 

example of a specific case is summarized below:

• In the case, Starr International Co., Inc. v. United States, the plaintiff, an American International Group, Inc. (AIG) 

shareholder that brought suit on behalf of two classes of shareholders, alleges that the U.S. government violated the 

Fifth Amendment to the United States Constitution by illegally exacting or taking property without just 

compensation. One class, the Credit Agreement Class, claimed that the Fifth Amendment was violated when a 

majority share of AIG’s equity and voting rights was conveyed in connection with an $85 billion loan to AIG during 

the 2008 financial crisis. Starr also asserted a Fifth Amendment violation on behalf of the second class, the Reverse 

Stock Split Shareholder Class, alleging that a June 2009 reverse split of AIG’s common stock constituted a taking of 

the common stockholders’ asserted right to a shareholder vote on whether to approve a reverse split of AIG’s 

common stock. The U.S. Court of Federal Claims held that the Credit Agreement Shareholder Class prevails on 

liability, but recovers no damages, and that the Reverse Stock Split Shareholder class does not prevail on liability or 

damages. On appeal, the U.S. Court of Appeals for the Federal Circuit overturned the lower court’s finding with 

respect to the Credit Agreement Shareholder Class and held that the plaintiff did not have standing to bring the 
 NOTES TO THE FINANCIAL STATEMENTS 118

illegal exaction claim, since equity-acquisition claims belong exclusively to AIG and not to its shareholders. (AIG’s 

board of directors declined to pursue any claims against the Government in a unanimous vote in January 2013.) The 

Federal Circuit also affirmed the trial court’s ruling on the reverse stock split claim. On October 6, 2017, the 

plaintiff petitioned the Supreme Court for a writ of certiorari. The Government is unable to determine the likelihood 

of an unfavorable outcome or make an estimate of potential loss at this time.

Environmental and Disposal Contingencies

Environmental and disposal contingencies as of September 30, 2017, and 2016, are summarized in the table below:

2017 2016

Estimated Range of Loss Estimated Range of Loss

for Certain Cases 2 for Certain Cases 2

Accrued Accrued

(In billions of dollars) Liabilities 1 Lower End Upper End Liabilities 1 Lower End Upper End

Environmental and 

disposal contingencies:

Probable ............................ 28.4 27.7 29.5 25.9 25.8 25.9

Reasonably possible............ - 0.7 1.5 - 0.7 1.8

1 Accrued liabilities are recorded and presented in the related line items of the Balance Sheet.

2 Does not reflect the total range of loss; many cases assessed as reasonably possible of an unfavorable outcome did not include 

estimated losses that could be determined.

The Government is subject to loss contingencies for a variety of environmental cleanup costs for the storage and 

disposal of hazardous material as well as the operations and closures of facilities at which environmental contamination may 

be present.

Management and legal counsel have determined that it is “probable” that some of these actions will result in a loss to 

the Government and the loss amounts are reasonably measurable. The estimated liabilities for these cases are $28.4 billion 

and $25.9 billion as of September 30, 2017, and 2016, respectively, and are included in “Other Liabilities” on the Balance 

Sheet.

In accordance with the Nuclear Waste Policy Act of 1982 (NWPA), DOE entered into more than 68 standard contracts 

with utilities in return for payment of fees established by the NWPA into the Nuclear Waste Fund. DOE agreed to begin 

disposal of spent nuclear fuel (SNF) by January 31, 1998. Because DOE has no facility available to receive SNF under the 

NWPA, it has been unable to begin disposal of the utilities’ SNF as required by the contracts. Therefore, DOE is subject to 

SNF litigation for damages suffered by all utilities as a result of the delay in beginning disposal of SNF and also damages for 

alleged exposure to radioactive and/or toxic substances. Significant claims for partial breach of contract and a large number

of class action and/or multiple plaintiff tort suits have been filed with estimated liability amounts of $26.7 billion and $24.7 

billion as of September 30, 2017, and 2016, respectively. 

Other Contingencies

DOT, HHS, and Treasury reported the following other contingencies:

• The Federal Highway Administration (FHWA) preauthorizes states to establish construction budgets without having 

received appropriations from Congress for such projects. FHWA has authority to approve projects using advance 

construction under 23 U.S.C. 115(a). FHWA does not guarantee the ultimate funding to the states for these “advance 

construction” projects and does not obligate any funds for these projects. When funding becomes available to 

FHWA, the states can then apply for reimbursement of costs that they have incurred on such projects, at which time 

FHWA can accept or reject such requests. FHWA has pre-authorized $55.2 billion and $50.6 billion to the states to 

establish budgets for its construction projects for fiscal years ending September 30, 2017, and 2016, respectively. 

Congress has not provided appropriations for these projects and no liability is accrued in the DOT consolidated 

financial statements.
119 NOTES TO THE FINANCIAL STATEMENTS 

• Contingent liabilities have been accrued as a result of Medicaid audit and program disallowances that are currently 

being appealed by the states and for reimbursement of state plan amendments. The Medicaid amounts are $12.2 

billion and $10.2 billion for fiscal years ending September 30, 2017, and 2016, respectively. In all cases, the funds 

have been returned to HHS. If the appeals are decided in favor of the states, HHS will be required to pay these 

amounts. In addition, certain amounts for payment have been deferred under the Medicaid program when there is 

reasonable doubt as to the legitimacy of expenditures claimed by a state. There are also outstanding reviews of the 

state expenditures in which a final determination has not been made.

• Through an annual process, Treasury assesses the need for an estimated contingent liability that reflects the 

forecasted equity deficits of the GSEs. Based on this assessment, no accrued contingent liability was recorded for 

fiscal years 2017 and 2016. However, the reduction in U.S. corporate tax rate resulting from the enactment of the 

Tax Cuts and Jobs Act on December 22, 2017, required that each of Fannie Mae and Freddie Mac record a reduction 

in the value of their deferred tax assets in the quarter in which the legislation was enacted, impacting potential future 

funding draws. The funding draws and the associated amounts are expected to be realized in March 2018. See Note 

8—Investments in Government-Sponsored Enterprises for further information.

Treaties

The Government is a party to treaties and other international agreements. These treaties and other international 

agreements address various issues including, but not limited to, trade, commerce, security, and law enforcement that may 

involve financial obligations or give rise to possible exposure to losses. Treaties and other international agreements fall into 

three broad categories: (1) no commitment to spend money; (2) commitment to spend money; or (3) potential obligation to 

spend money. A review must be conducted of potential contingent liabilities arising from litigation related to treaties and 

other international agreements. This review, along with any resulting relevant information, is captured and reported in the 

annual legal representation letter process. Refer to the Legal Contingencies section of this note for further information. It has 

been confirmed that the relevant financial obligations are included in the applicable financial statements and notes for the 

commitment to spend money and the potential obligation to spend money categories. The final category of no commitment to 

spend money will continue to be analyzed to confirm that all material financial obligations or possible loss exposures are 

properly reported in the Financial Report.
 NOTES TO THE FINANCIAL STATEMENTS 120

Note 19. Commitments

Long-Term Operating Leases as of September 30, 2017, and 2016

(In billions of dollars) 2017 2016

General Services Administration ................................................................. 22.4 23.1

U.S. Postal Service .................................................................................... 7.6 7.4

Department of State................................................................................... 1.6 1.6

Department of Health and Human Services ................................................. 1.0 1.0

Other operating leases ............................................................................... 4.5 5.1

Total long-term operating leases ............................................................. 37.1 38.2

The government has entered into contractual commitments that require future use of financial resources. It has

significant amounts of long-term lease obligations and undelivered orders. Undelivered orders represent the value of goods

and services ordered that have not yet been received.

The government has other commitments that may require future use of financial resources. For example, the

government has callable subscriptions in certain Multilateral Development Banks (MDBs), which are international financial

institutions that finance economic and social development projects in developing countries. Callable capital in the MDBs

serves as a supplemental pool of resources that may be redeemed and converted into ordinary paid in shares, if the MDB

cannot otherwise meet certain obligations through its other available resources. MDBs are able to use callable capital as

backing to obtain favorable financing terms when borrowing from international capital markets. To date, there has never been

a call on this capital at any MDBs and none is anticipated.
121 NOTES TO THE FINANCIAL STATEMENTS 

Undelivered Orders and Other Commitments as of September 30, 2017, and 2016

(In billions of dollars) 2017 2016

Undelivered Orders:

Department of Defense............................................................................... 263.8 239.6

Defense Security Cooperation Agency......................................................... 140.8 130.0

Department of Education ............................................................................ 128.1 123.4

Department of Health and Human Services.................................................. 114.2 96.1

Department of Transportation...................................................................... 103.7 105.9

Department of Agriculture ........................................................................... 62.0 52.4

Department of Housing and Urban Development.......................................... 39.1 35.1

Department of Homeland Security ............................................................... 37.9 35.7

Department of Energy................................................................................. 22.8 22.2

Department of State ................................................................................... 21.8 21.6

Agency for International Development ......................................................... 17.9 17.6

All other agencies....................................................................................... 112.1 91.6

Total undelivered orders........................................................................... 1,064.2 971.2

Other Commitments:

GSE Senior Preferred Stock Purchase Agreements...................................... 258.1 258.1

U.S. Participation in the International Monetary Fund.................................... 157.0 155.1

Callable Capital Subscriptions for Multilateral Development Banks ................ 120.6 120.0

All other commitments ................................................................................ 19.2 16.7

Total other commitments .......................................................................... 554.9 549.9
 NOTES TO THE FINANCIAL STATEMENTS 122

Other Commitments and Risks

Undelivered Orders

 DOD reported undelivered orders of $263.8 billion and $239.6 billion as of September 30, 2017, and 2016, respectively.

The increase of $24.2 billion in fiscal year 2017 was primarily caused by increased estimates in non-federal undelivered

orders.

Commitments to GSEs

At September 30, 2017 and 2016, the maximum remaining potential commitment to the GSEs for the remaining life of

the SPSPAs was $258.1 billion, which was established on December 31, 2012. Refer to Note 8—Investments in

Government-Sponsored Enterprises for a full description of the SPSPAs related commitments and contingent liability, if any,

as well as additional information.

Terrorism Risk Insurance Program

Congress originally enacted the Terrorism Risk Insurance Act (TRIA) in November 2002 to address market disruptions

resulting from terrorist attacks on September 11, 2001. Most recently, the Terrorism Risk Insurance Program Reauthorization

Act of 2015 extended the Terrorism Risk Insurance Program (TRIP) until December 31, 2020. The TRIP helps to ensure

available and affordable commercial property and casualty insurance for terrorism risk, and simultaneously allows private

markets to stabilize. The authority to pay claims under the TRIP Program is activated when the Secretary of the Treasury (in

consultation with the Secretary of the U.S. Department of Homeland Security and the U.S. Attorney General) certifies an “act

of terrorism.” In the event of certification of an “act of terrorism” insurers may be eligible to receive reimbursement from the

U.S. government for associated insured losses assuming an aggregate insured loss threshold (“program trigger”) has been

reached once a particular insurer has satisfied its designated deductible amount. For calendar years 2017 and 2016, the

program trigger amount was $140 million and $120 million, respectively. This amount will increase by $20 million annually

through calendar year 2020. Insured losses above insurer deductibles will be shared between insurance companies and the

U.S. government. The TRIP includes both mandatory and discretionary authority for the Department of the Treasury to

recoup federal payments made under the TRIP through policyholder surcharges under certain circumstances, and contains

provisions designed to manage litigation arising from or relating to a certified act of terrorism. There were no claims under

the TRIP as of September 30, 2017 or 2016.
123 NOTES TO THE FINANCIAL STATEMENTS 

Note 20. Funds from Dedicated Collections

Funds from Dedicated Collections as of September 30, 20171

Federal Federal

Hospital Supplementary

Federal Insurance Federal Medical All Other Total 

Old-Age and Trust Disability Insurance Funds Funds from 

Survivors Fund Insurance Trust Fund from Dedicated

Insurance (Medicare Trust (Medicare Dedicated Collections 

(In billions of dollars) Trust Fund Part A) Fund Parts B and D) Collections (Combined)

Assets:

Cash and other monetary assets ...... - - - - 65.0 65.0

Fund balance with Treasury ........... (0.1) 0.8 (0.2) 27.5 139.1 167.1

Investments in U.S. Treasury 

securities, net of unamortized 

premiums/discounts ..................... 2,820.2 197.8 69.7 70.6 271.6 3,429.9

Other federal assets .................... 20.4 37.9 0.5 36.0 18.5 113.3

Non-federal assets ...................... 2.5 11.7 4.8 39.0 112.1 170.1

Total assets ........................... 2,843.0 248.2 74.8 173.1 606.3 3,945.4

Liabilities and net position:

Due and payable to beneficiaries...... 71.3 30.1 27.4 30.6 14.8 174.2

Other federal liabilities .................. 5.1 38.6 1.1 43.2 72.6 160.6

Other non-federal liabilities ............ - 1.1 - 0.7 189.4 191.2

Total liabilities ......................... 76.4 69.8 28.5 74.5 276.8 526.0

Total net position ..................... 2,766.6 178.4 46.3 98.6 329.5 3,419.4

Total liabilities and net position ... 2,843.0 248.2 74.8 173.1 606.3 3,945.4

Change in net position:

Beginning net position .................. 2,746.4 174.1 20.8 94.5 338.5 3,374.3

Prior-period adjustment ................ - - - - 0.2 0.2

Beginning net position, adjusted .... 2,746.4 174.1 20.8 94.5 338.7 3,374.5

Investment revenue ..................... 84.1 7.4 1.7 2.4 4.0 99.6

Individual income taxes ................. 702.1 259.7 166.0 - - 1,127.8

Other taxes and miscellaneous 

earned revenue .......................... - 0.5 - 4.2 142.3 147.0

Other changes in fund balance (e.g., 

appropriations, transfers) .............. 27.7 23.4 (0.8) 278.0 (1.2) 327.1

Total financing sources............... 813.9 291.0 166.9 284.6 145.1 1,701.5

Program gross costs and nonprogram expenses....................... 793.7 290.8 141.4 366.1 205.4 1,797.4

Less: program revenue ................. - (4.1) - (85.6) (51.1) (140.8)

Net cost ................................ 793.7 286.7 141.4 280.5 154.3 1,656.6

Ending net position ................ 2,766.6 178.4 46.3 98.6 329.5 3,419.4

1 By law, certain expenses (costs), revenues, and other financing sources related to the administration of the above funds are not charged to

 the funds and are therefore financed and/or credited to other sources.
 NOTES TO THE FINANCIAL STATEMENTS 124

Funds from Dedicated Collections as of September 30, 20161

Federal Federal

Hospital Supplementary

Federal Insurance Federal Medical All Other Total

Old-Age and Trust Disability Insurance Funds Funds from

Survivors Fund Insurance Trust Fund from Dedicated

Insurance (Medicare Trust (Medicare Dedicated Collections

(In billions of dollars) Trust Fund Part A) Fund Parts B and D) Collections (Combined)

Assets:

Cash and other monetary assets ...... - - - - 63.2 63.2

Fund balance with Treasury............ (0.1) 2.1 (0.1) 51.8 122.1 175.8

Investments in U.S. Treasury 

securities, net of unamortized 

premiums/discounts .................... 2,796.7 192.2 45.9 63.3 277.3 3,375.4

Other federal assets..................... 21.2 35.9 0.3 40.3 15.9 113.6

Non-federal assets ...................... 2.5 8.0 4.3 21.2 115.8 151.8

Total assets............................ 2,820.3 238.2 50.4 176.6 594.3 3,879.8

Liabilities and net position: 

Due and payable to beneficiaries...... 69.2 27.7 28.5 36.2 10.8 172.4

Other federal liabilities .................. 4.7 35.1 1.1 45.0 63.4 149.3

Other non-federal liabilities ............. - 1.3 - 0.9 181.6 183.8

Total liabilities ......................... 73.9 64.1 29.6 82.1 255.8 505.5

Total net position...................... 2,746.4 174.1 20.8 94.5 338.5 3,374.3

Total liabilities and net position ... 2,820.3 238.2 50.4 176.6 594.3 3,879.8

ok

Change in net position: 

Beginning net position .................. 2,720.4 170.5 18.0 76.3 262.5 3,247.7

Prior period adjustment ................. - - - - - -

Beginning net position, adjusted .... 2,720.4 170.5 18.0 76.3 262.5 3,247.7

Investment revenue ..................... 88.1 7.9 1.4 2.0 3.4 102.8

Individual income taxes ................ 679.6 250.5 147.6 - - 1,077.7

Other taxes and miscellaneous 

earned revenue .......................... - 0.8 - 2.9 147.3 151.0

Other changes in fund balance (e.g., 

appropriations, transfers) ............... 23.7 22.2 (1.9) 301.7 63.8 409.5

Total financing sources............... 791.4 281.4 147.1 306.6 214.5 1,741.0

Program gross cost and non-program 

expenses ................................. 765.4 281.4 144.3 365.7 187.5 1,744.3

Less: program revenue................. - (3.6) - (77.3) (49.0) (129.9)

Net cost ................................ 765.4 277.8 144.3 288.4 138.5 1,614.4

Ending net position ................. 2,746.4 174.1 20.8 94.5 338.5 3,374.3

1 By law, certain expenses (costs), revenues, and other financing sources related to the administration of the above funds are not charged to

the funds and are therefore financed and/or credited to other sources. 

Generally, funds from dedicated collections are financed by specifically identified revenues, often supplemented by 

other financing sources, provided to the government by non-federal sources, which remain available over time. These 

specifically identified revenues and other financing sources are required by statute to be used for designated activities, 

benefits, or purposes and must be accounted for separately from the government’s general revenues. Funds from dedicated 

collections generally include trust funds, public enterprise revolving funds (not including credit reform financing funds), and 
125 NOTES TO THE FINANCIAL STATEMENTS 

special funds. Funds from dedicated collections specifically exclude any fund established to account for pensions, other 

retirement benefits, other postemployment or other benefits provided for federal employees (civilian and military). In the 

federal budget, the term “trust fund” means only that the law requires a particular fund be accounted for separately, used only 

for a specified purpose, and designated as a trust fund. A change in law may change the future receipts and the terms under 

which the fund’s resources are spent. In the private sector, trust fund refers to funds of one party held and managed by a 

second party (the trustee) in a fiduciary capacity. The activity of funds from dedicated collections differs from fiduciary 

activities primarily in that assets within funds from dedicated collections are government-owned. For further information 

related to fiduciary activities, see Note 21—Fiduciary Activities.

Public enterprise revolving funds include expenditure accounts authorized by law to be credited with offsetting 

collections, mostly from the public, that are generated by and dedicated to finance a continuing cycle of business-type 

operations. Some of the financing for these funds may be from appropriations.

Special funds are federal funds dedicated by law for a specific purpose. Special funds include the special fund receipt 

account and the special fund expenditure account.

The tables above depict major funds from dedicated collections chosen based on their significant financial activity and 

importance to taxpayers. All other government funds from dedicated collections not shown separately are aggregated as “all 

other.”

Total assets represent the unexpended balance from all sources of receipts and amounts due to the funds from dedicated 

collections, regardless of source, including related governmental transactions. These are transactions between two different 

entities within the government (for example, monies received by one entity of the government from another entity of the 

government).

The intragovernmental assets are comprised of fund balances with Treasury, investments in Treasury securities—

including unamortized amounts, and other assets that include the related accrued interest receivable on federal investments. 

These amounts were eliminated in preparing the principal financial statements. The non-federal assets represent only the 

activity with individuals and organizations outside of the government.

Most of the assets within funds from dedicated collections are invested in intragovernmental debt holdings. The 

government does not set aside assets to pay future benefits or other expenditures associated with funds from dedicated 

collections. The cash receipts collected from the public for funds from dedicated collections are deposited in the General 

Fund, which uses the cash for general government purposes. Treasury securities are issued to federal agencies as evidence of 

its receipts. Treasury securities are an asset to the federal agencies and a liability to the U.S. Treasury and, therefore, they do 

not represent an asset or a liability in the Financial Report. These securities require redemption if a fund’s disbursements 

exceeds its receipts. Redeeming these securities will increase the government’s financing needs and require more borrowing 

from the public (or less repayment of debt), or will result in higher taxes than otherwise would have been needed, or less 

spending on other programs than otherwise would have occurred, or some combination thereof. See Note 11—Federal Debt 

Securities Held by the Public and Accrued Interest for further information related to the investments in federal debt securities.

Depicted below is a description of the major funds from dedicated collections shown in the above tables, which also 

identifies the government agencies that administer each particular fund. For detailed information regarding these funds from 

dedicated collections, please refer to the financial statements of the corresponding administering agencies. For information on 

the benefits due and payable liability associated with certain funds from dedicated collections, see Note 14—Benefits Due 

and Payable.

Federal Old-Age and Survivors Insurance Trust Fund

The Federal Old-Age and Survivors Insurance Trust Fund, administered by the SSA, provides retirement and survivors 

benefits to qualified workers and their families.

Payroll and self-employment taxes primarily fund the Federal Old-Age and Survivors Insurance Trust Fund. Interest 

earnings on Treasury securities, federal agencies’ payments for the Social Security benefits earned by military and federal 

civilian employees, and Treasury payments for a portion of income taxes collected on Social Security benefits provide the fund 

with additional income. The law establishing the Federal Old-Age and Survivors Insurance Trust Fund and authorizing the 

depositing of amounts to the credit of the fund is set forth in 42 U.S.C. § 401.
 NOTES TO THE FINANCIAL STATEMENTS 126

Federal Hospital Insurance Trust Fund

(Medicare Part A)

The Federal Hospital Insurance Trust Fund, administered by HHS, finances the Hospital Insurance Program (Medicare 

Part A). This program funds the cost of inpatient hospital and related care for individuals age 65 or older who meet certain 

insured status requirements, and eligible disabled people.

The Federal Hospital Insurance Trust Fund is financed primarily by payroll taxes, including those paid by federal 

agencies. It also receives income from interest earnings on Treasury securities, a portion of income taxes collected on Social 

Security benefits, premiums paid by, or on behalf of, aged uninsured beneficiaries, and receipts from fraud and abuse control 

activities. Section 1817 of the Social Security Act established the Medicare Hospital Trust Fund.

Federal Disability Insurance Trust Fund

The Federal Disability Insurance Trust Fund provides assistance and protection against the loss of earnings due to a 

wage earner’s disability in form of monetary payments. The SSA administers this fund.

Like the Federal Old-Age and Survivors Insurance Trust Fund, payroll taxes primarily fund the Federal Disability 

Insurance Trust Fund. The fund also receives income from interest earnings on Treasury securities, federal agencies’ 

payments for the Social Security benefits earned by military and federal civilian employees, and Treasury payments for a 

portion of income taxes collected on Social Security benefits. The law establishing the Federal Disability Insurance Trust 

Fund and authorizing the depositing of amounts to the credit of the fund is set forth in 42 U.S.C. § 401.

Federal Supplementary Medical Insurance Trust Fund

(Medicare Parts B and D)

The Federal Supplementary Medical Insurance Trust Fund, administered by HHS, finances the Supplementary Medical 

Insurance Program (Medicare Part B) and the Medicare Prescription Drug Benefit Program (Medicare Part D). These 

programs provide supplementary medical insurance for enrolled eligible participants to cover physician and outpatient 

services not covered by Medicare Part A and to obtain qualified prescription drug coverage, respectively. Medicare Part B 

financing is not based on payroll taxes; it is primarily based on monthly premiums, income from the General Fund, and 

interest earnings on Treasury securities. Medicare Supplementary Medical Insurance Trust Fund was established by Section 

1841 of the Social Security Act.

Medicare Part D was created by the Medicare Modernization Act of 2003 (P.L. No. 108-173). Medicare Part D 

financing is similar to Part B; it is primarily based on monthly premiums and income from the General Fund, not on payroll 

taxes. The fund also receives transfers from States. 

All Other Funds from Dedicated Collections

The government is responsible for the management of numerous funds from dedicated collections that serve a wide 

variety of purposes. The funds from dedicated collections presented on an individual basis in the above tables represent the 

majority of the government’s net position attributable to funds from dedicated collections. All other activity attributable to 

funds from dedicated collections is aggregated in accordance with SFFAS No. 27, Identifying and Reporting Funds from 

Dedicated Collections, as amended by SFFAS No. 43, Funds from Dedicated Collections: Amending Statement of Federal 

Financial Accounting Standards 27, Identifying and Reporting Earmarked Funds. The funds from dedicated collections 

within the “all other” aggregate, along with the agencies that administer them, include the following:

• Highway Trust Fund and Airport and Airway Trust Fund—administered by DOT.

• Unemployment Trust Fund (UTF) and Black Lung Disability Trust Fund (BLDTF)—administered by DOL.

• Land and Water Conservation Fund, Reclamation Fund, and Water and Related Resources Fund—administered by 

DOI.

• Exchange Stabilization Fund—administered by Treasury.
127 NOTES TO THE FINANCIAL STATEMENTS 

• National Flood Insurance Program—administered by DHS. 

• Railroad Retirement Trust Fund—administered by RRB. 

• Uranium Enrichment Decontamination and Decommissioning Fund—administered by DOE.

• Government National Mortgage Association—administered by HUD.

• Crime Victims Fund—administered by DOJ.

• Harbor Maintenance Trust Fund—administered by DOD.

In accordance with SFFAS No. 43, any funds established to account for pension, other retirement, or other postemployment benefits to civilian or military personnel are excluded from the reporting requirements related to funds from 

dedicated collections. 

Gulf Coast Ecosystem Restoration Council and Department of Housing and Urban Development contributed to the $0.2 

billion in prior-period adjustments for fiscal year 2017. 

Other Taxes and Miscellaneous Earned Income

Unemployment Taxes

The Unemployment Trust Fund (UTF), within the “all other” aggregate, represents all the unemployment tax revenues 

attributable to funds from dedicated collections shown on the consolidated Statement of Operations and Changes in Net 

Position.

UTF provides temporary assistance to workers who lose their jobs. The program is administered through a unique 

system of federal and state partnerships, established in federal law, but executed through conforming state laws by state 

officials. DOL administers the federal operations of the program. 

Employer taxes provide the primary funding source for the UTF and constitute the largest portion of unemployment tax 

revenues attributable to funds from dedicated collections as shown on the consolidated Statement of Operations and Changes 

in Net Position. However, interest earnings on Treasury securities also provide income to the fund. For the years ending 

September 30, 2017, and 2016, UTF unemployment tax revenues were $44.1 billion and $46.9 billion, respectively. 

Appropriations have supplemented the fund’s income during periods of high and extended unemployment. UTF was 

established under the authority of Section 904 of the Social Security Act of 1935.

Excise Taxes

There are 11 funds from dedicated collections within the “all other” aggregate that represent all of the dedicated excise 

tax revenue attributable to funds from dedicated collections shown on the consolidated Statement of Operations and Changes 

in Net Position. The Highway Trust Fund and the Airport and Airway Trust Fund, combined, represents 90 percent of all 

dedicated excise tax revenues. Both of these funds are administered by the DOT. For more information, please refer to 

DOT’s financial statements.

The Highway Trust Fund was established to promote domestic interstate transportation and to move people and goods. 

The fund provides federal grants to states for highway construction, certain transit programs, and related transportation 

purposes. The Highway Trust Fund was created by the Highway Revenue Act of 1956. Funding sources include designated 

excise taxes on gasoline and other fuels, the initial sale of heavy trucks, and highway use by commercial motor vehicles. For

the years ending September 30, 2017, and 2016, Highway Trust Fund excise tax revenues were $41.0 billion and $41.3 

billion, respectively. As funds are needed for payments, the Highway Trust Fund corpus investments are liquidated and funds 

are transferred to the Federal Highway Administration, the Federal Transit Administration, or other DOT entities, for 

payment of obligations.

The Airport and Airway Trust Fund provides for airport improvement and airport facilities maintenance. It also funds 

airport equipment, research, and a portion of the Federal Aviation Administration’s administrative operational support. The 

Airport and Airway Trust Fund was authorized by the Airport and Airway Revenue Act of 1970. Funding sources include 

aviation-related excise tax collections from:

• Passenger tickets,

• Passenger fight segments,

• International arrival/departures,

• Cargo waybills, and 

• Aviation fuels. 

For the years ending September 30, 2017, and 2016, Airport and Airway Trust Fund excise tax revenues were $15.1 billion 

and $14.4 billion, respectively.
 NOTES TO THE FINANCIAL STATEMENTS 128

Miscellaneous Earned Revenues

Miscellaneous earned revenues due to activity attributable to funds from dedicated collections primarily related to 

royalties retained by various funds within DOI.
129 NOTES TO THE FINANCIAL STATEMENTS 

Note 21. Fiduciary Activities

Fiduciary activities are the collection or receipt, and the management, protection, accounting, investment and

disposition by the Government of cash or other assets in which non-federal individuals or entities have an ownership interest

that the Government must uphold. Fiduciary cash and other assets are not assets of the Government and are not recognized on

the consolidated Balance Sheet. Examples of the Government’s fiduciary activities include the Thrift Savings Plan (TSP),

which is administered by the Federal Retirement Thrift Investment Board (FRTIB), and the Indian Tribal and individual

Indian Trust Funds, which are administered by the DOI.

Schedule of Fiduciary Net Assets as of September 30, 2017, and 2016

(In billions of dollars) 2017 2016

Thrift Savings Fund.................................................................................... 531.5 472.1

Department of the Interior........................................................................... 5.2 5.1

All other .................................................................................................... 6.6 5.3

Total fiduciary net assets ......................................................................... 543.3 482.5

In accordance with the requirements of SFFAS No. 31, Accounting for Fiduciary Activities, fiduciary investments in

Treasury securities and fund balance with Treasury held by fiduciary funds are to be recognized on the Balance Sheet as debt

held by the public and a liability for fiduciary fund balance with Treasury, respectively.

As of September 30, 2017, total fiduciary investments in Treasury securities and in non-Treasury securities are $223.7

billion and $317.9 billion, respectively. As of September 30, 2016, total fiduciary investments in Treasury securities and in

non-Treasury securities were $226.2 billion and $268.9 billion, respectively. Refer to Note 11—Federal Debt Securities Held

by the Public and Accrued Interest for more information on the Treasury securities.

As of September 30, 2017, and 2016, the total fiduciary fund balance with Treasury is $1.2 billion and $1.1 billion,

respectively. A liability for this fiduciary fund balance with Treasury is reflected as other miscellaneous liabilities in Note

16—Other Liabilities.

As of September 30, 2017, and 2016, collectively, the fiduciary investments in Treasury securities and fiduciary fund

balance with Treasury held by all Government entities represent $7.0 billion and $6.4 billion, respectively, of unrestricted

cash included within cash held by Treasury for Governmentwide Operations shown in Note 2—Cash and Other Monetary

Assets.

Thrift Savings Fund

The Thrift Savings Fund (TSF) maintains and holds in trust the assets of the TSP. The TSP is administered by an

independent Government agency, the Federal Retirement Thrift Investment Board, which is charged with operating the TSP

prudently and solely in the interest of the participants and their beneficiaries.

The TSP is a retirement savings and investment plan for federal employees and members of the uniformed services. It

was authorized by the United States Congress in the Federal Employees’ Retirement System Act of 1986. The Plan provides

federal employees and members of the uniformed services with a savings and tax benefit similar to what many private sector

employers offer their employees under 401(k) plans. The Plan was primarily designed to be a key part of the retirement

package (along with a basic annuity benefit and Social Security) for employees who are covered by FERS.

Federal employees, who are participants of FERS, the CSRS, or equivalent retirement systems, as provided by statute,

and members of the uniformed services, are eligible to join the Plan immediately upon being hired. Generally, FERS

employees are those employees hired on or after January 1, 1984, while CSRS employees are employees hired before January

1, 1984, who have not elected to convert to FERS. Each group has different rules that govern contribution rates. As of

December 31, 2016, and 2015, there were approximately 5.0 million and 4.8 million participants in the TSP, respectively,

with approximately 3.3 million for both years contributing their own money. For further information about FRTIB and the

TSP, please refer to the FRTIB website at https://www.frtib.gov.
 NOTES TO THE FINANCIAL STATEMENTS 130

As of September 30, 2017, and 2016, the TSF held $531.5 billion and $472.1 billion, respectively, in net assets, which

included $217.9 billion and $220.9 billion, respectively, of U.S. Government Securities (amounts are unaudited). The most

recent audited financial statements for the TSF are as of December 31, 2016, and 2015. As of December 31, 2016, and 2015,

the TSF held $483.3 billion and $443.2 billion, respectively, in net assets, which included $222.3 billion and $206.9 billion,

respectively, of U.S. Government Securities. These unaudited amounts above are included to enhance comparability of the

TSF net assets with the remainder of the Government’s fiduciary net assets as of September 30, 2017, and 2016.

DOI–Indian Trust Funds

As stated above, DOI has responsibility for the assets held in trust on behalf of American Indian Tribes and individuals,

and these account for all of DOI’s fiduciary net assets. DOI maintains accounts for Tribal and Other Trust Funds (including

the Alaska Native Escrow Fund and Individual Indian Money Trust Funds) in accordance with the American Indian Trust

Fund Management Reform Act of 1994. The fiduciary balances that have accumulated in these funds have resulted from land

use agreements, royalties on natural resource depletion, other proceeds derived directly from trust resources, judgment

awards, settlements of claims, and investment income. These funds are maintained for the benefit of individual Native

Americans as well as for designated Indian tribes. DOI maintains separate financial statements for these trust funds which

were prepared using the cash or modified cash basis of accounting, a comprehensive basis of accounting other than GAAP.

The independent auditors’ reports were qualified as it was not practical to extend audit procedures sufficiently to satisfy

themselves as to the fairness of the trust fund balances. For further information related to these assets, please refer to the DOI

website at https://www.doi.gov.

All Other Entities with Fiduciary Activities

The Government is responsible for the management of other fiduciary net assets on behalf of various non-federal

entities. The component entities presented individually in the table on the previous page represent the vast majority of the

Government’s fiduciary net assets. All other component entities with fiduciary net assets are aggregated in accordance with

SFFAS No. 31. As of September 30, 2017, and 2016, including TSF and DOI, there are a total of 20 and 20 federal entities,

respectively, with fiduciary activities at a grand total of 67 and 68 fiduciary funds, respectively. SBA and LOC are the

significant agencies relating to the fiduciary activities of the remaining component entities within the “all other” aggregate

balance. As of September 30, 2017, “all other” fiduciary net assets were $6.6 billion, compared to $5.3 billion as of

September 30, 2016.
131 NOTES TO THE FINANCIAL STATEMENTS 

Note 22. Social Insurance

The Statements of Social Insurance (SOSI) present the projected actuarial present value of the estimated future revenue

and estimated future expenditures of the Social Security, Medicare, Railroad Retirement, and Black Lung social insurance

programs which are administered by the SSA, HHS, RRB, and DOL, respectively. These estimates are based on the

intermediate economic and demographic assumptions presented later in this note as set forth in the relevant Social Security

and Medicare trustees’ reports and in the agency financial reports of HHS, SSA, and DOL, as well as in the relevant agency

performance and accountability report for RRB. Due to a change in the presentation of the consolidated SOSI and this note

from billions of dollars to trillions of dollars beginning in fiscal year 2016, some amounts in the narrative will not be

traceable to the corresponding agency financial statements. The SOSI projections, with one exception related to Medicare

Part A and OASDI, are based on current law; that is, they assume that scheduled social insurance benefit payments would

continue after related trust funds are projected to be depleted, contrary to current law. By law, once assets are exhausted,

expenditures cannot be made except to the extent covered by ongoing tax receipts and other trust fund income. The estimates

in the consolidated SOSI of the open group measures are for persons who are participants or eventually will participate in the

programs as contributors (workers) or beneficiaries (retired workers, survivors, and disabled) during the 75-year projection

period. To enhance comparability of the Black Lung Disability Trust Fund’s (BLDTF) social insurance information and

continue to illustrate the fund’s long-term condition and sustainability, DOL revised its projection period from a fixed

terminus of September 30, 2040 to a rolling 25-year projection period that begins on the September 30 valuation date each

year. The revised projection period became effective for the September 30, 2017 valuation date.

Contributions and dedicated taxes consist of: payroll taxes from employers, employees, and self-employed persons;

revenue from federal income taxation of Old-Age Survivors and Disability Insurance (OASDI) and railroad retirement

benefits; excise tax on the domestic sale of coal (Black Lung); premiums from, and state transfers on behalf of, participants in

Medicare; and reimbursements from the General Fund to the OASDI Trust Funds to make up for reductions in payroll tax

revenue due to temporary payroll tax rate reductions. Income for all programs is presented from a consolidated perspective.

Future interest payments and other future intragovernmental transfers have been excluded upon consolidation. Expenditures

include benefit payments scheduled under current law and administrative expenses. Current Social Security and Medicare

law provides for full benefit payments only to the extent that there are sufficient balances in the trust funds. Expenditures

reflect full benefit payments even after the point at which assets are projected to be depleted.

Actuarial present values of estimated future income (excluding interest) and estimated future expenditures for the Social

Security, Medicare, and Railroad Retirement social insurance programs are presented for three different groups of

participants: (1) current participants who have not yet attained eligibility age; (2) current participants who have attained

eligibility age; and (3) new entrants, who are expected to become participants in the future. Current participants in the Social

Security and Medicare programs are the “closed group” of taxpayers and/or beneficiaries who are at least age 15 years at the

start of the projection period. Since the projection period for the Social Security, Medicare, and Railroad Retirement social

insurance programs consists of 75 years, the period covers virtually all of the current participants’ working and retirement

years, a period that could be greater than 75 years in a relatively small number of instances. Future participants for Social

Security and Medicare include births during the projection period and individuals below age 15 as of January 1 of the

valuation year. Railroad Retirement’s future participants are the projected new entrants as of October 1 of the valuation year.

For fiscal year 2015 and years prior, future participants for Railroad Retirement were the projected new entrants as of January

1 of the valuation year5

.

The present values of estimated future expenditures in excess of estimated future revenue are calculated by subtracting

the actuarial present values of future scheduled contributions as well as dedicated tax income by and on behalf of current and

future participants from the actuarial present value of the future scheduled benefit payments to them or on their behalf. To

determine a program’s funding shortfall over any given period of time, the starting trust fund balance is subtracted from the

present value of expenditures in excess of revenues over the period.

The trust fund balances as of the valuation date for the respective programs, including interest earned, are shown in the

table below6

. Substantially all of the Social Security (OASDI), Medicare Hospital Insurance (HI), and Supplementary

Medical Insurance (SMI) Trust Fund balances consist of investments in special nonmarketable Treasury securities that are

backed by the full faith and credit of the U.S. Government.

 5 Beginning with the fiscal year 2016 reporting period, the valuation date for the Railroad Retirement program was changed from calendar year to fiscal year. 6 Trust fund balances for the Railroad Retirement and Black Lung programs are not included, as these balances are less than $50 billion.
 NOTES TO THE FINANCIAL STATEMENTS 132

Social Insurance Programs Trust Fund Balances 1

(In trillions of dollars) 2017 2016 2015 2014 2013

Social Security .................................... 2.8 2.8 2.8 2.8 2.7

Medicare ............................................ 0.3 0.3 0.3 0.3 0.3

1 As of the valuation date of the respective programs.

Social Security

The Federal Old-Age and Survivors Insurance (OASI) Trust Fund, established on January 1, 1940, and the Federal

Disability Insurance (DI) Trust Fund, established on August 1, 1956, collectively referred to as OASDI or “Social Security,”

provides cash benefits for eligible U.S. citizens and residents. Eligibility and benefit amounts are determined under the laws

applicable for the period. Current law provides that the amount of the monthly benefit payments for workers and their eligible

dependents or survivors is based on the workers’ lifetime earnings histories.

The primary financing of the OASDI Trust Funds are taxes paid by workers, their employers, and individuals with selfemployment income, based on work covered by the OASDI Program. Refer to the Unaudited Required Supplementary

Information—Social Insurance section for additional information on Social Security program financing.

That portion of each trust fund not required to pay benefits and administrative costs is invested, on a daily basis, in interestbearing obligations of the U.S. Government. The Social Security Act authorizes the issuance by the Treasury of special

nonmarketable, intragovernmental debt obligations for purchase exclusively by the trust funds. Although the special issues

cannot be bought or sold in the open market, they are redeemable at any time at face value and thus bear no risk of fluctuation in

principal value due to changes in market yield rates. Interest on the bonds is credited to the trust funds and becomes an asset to

the funds and a liability to the General Fund. These Treasury securities and related interest are eliminated in consolidation at the

governmentwide level.

Medicare

The Medicare Program, created in 1965, has two separate trust funds: the HI (Medicare Part A) and SMI (Medicare

Parts B and D) Trust Funds. HI pays for inpatient acute hospital services, hospice, and major alternatives to hospitals (skilled

nursing services, for example), and SMI pays for hospital outpatient services, physician services, and assorted other services

and products through the Part B account and pays for prescription drugs through the Part D account. Though the events that

trigger benefit payments are similar, HI and SMI have different dedicated financing structures. Similar to OASDI, HI is

financed primarily by payroll contributions. Other income to the HI Trust Fund includes a small amount of premium income

from voluntary enrollees, receipts from fraud and abuse control activities, a portion of the federal income taxes that

beneficiaries pay on Social Security benefits and interest credited on Treasury securities held in the HI Trust Fund. These

Treasury securities and related interest are eliminated in the consolidation at the governmentwide level.

For SMI, transfers from the General Fund represent the largest source of income for both Parts B and D. Generally,

beneficiaries finance the remainder of Parts B and D costs via monthly premiums to these programs. With the introduction of

Part D drug coverage, Medicaid is no longer the primary payer of drug costs for full-benefit dually eligible beneficiaries of

Medicare and Medicaid. For those beneficiaries, states are subject to a contribution requirement and must pay a portion of

their estimated foregone drug costs into the Part D account (referred to as state transfers). Fees related to brand-name

prescription drugs, required by the Affordable Care Act (ACA), are included as income for Part B of SMI. As with HI,

interest received on Treasury securities held in the SMI Trust Fund is credited to the fund and these Treasury securities as

well as related interest are eliminated in consolidation at the governmentwide level. By accounting convention, the transfers

of general revenues are eliminated in the consolidation of the SOSI at the governmentwide level and as such, the general

revenues that are used to finance Medicare Parts B and D are not included in these calculations even though the expenditures

on these programs are included. For the fiscal year 2017 and 2016 SOSI, the amounts eliminated totaled $30.0 trillion and

$28.7 trillion, respectively. Refer to Unaudited Required Supplementary Information—Social Insurance section for additional

information on Medicare program financing.

The financial projections for the Medicare program reflect substantial, but very uncertain, cost savings deriving from

provisions of the Patient Protection and Affordable Care Act and the Health Care and Education Reconciliation Act,
133 NOTES TO THE FINANCIAL STATEMENTS 

collectively referred to as the Affordable Care Act (ACA), and the Medicare Access and CHIP Reauthorization Act of 2015

(MACRA) that lowered increases in Medicare payment rates to most categories of health care providers.

The ACA became law in fiscal year 2010 and provided funding for the establishment by Centers for Medicare &

Medicaid Services (CMS) of a Center for Medicare and Medicaid Innovation to test innovative payment and service delivery

models to reduce program expenditures while preserving or enhancing the quality of care furnished to individuals. It also

allowed for the establishment of a Center for Consumer Information and Insurance Oversight (CCIIO). One of the main

programs under CCIIO is the Affordable Insurance Exchanges (the “Exchanges”). A brief description of these programs is

presented below.

Affordable Insurance Exchanges. Grants have been provided to the states to establish Affordable Insurance Exchanges.

The initial grants were made by HHS to the states “not later than one year after the date of enactment.” Thus, HHS made the

initial grants by March 23, 2011. Subsequent grants were issued by CMS through December 31, 2014, after which time no

further grants could be made. All Exchanges were launched on October 1, 2013.

Transitional Reinsurance Program. The Transitional Reinsurance Program was established in each state to help

stabilize premiums for coverage in the individual market from 2014 through 2016. All health insurance issuers and third

party administrators, on behalf of self-insured group health plans, made contributions to support reinsurance payments that

cover high-cost individuals in non-grandfathered plans in the individual market, inside and outside the Exchange.

Risk Adjustment Program. The Risk Adjustment Program is a permanent program. It applies to non-grandfathered

individuals and small group plans inside and outside the Exchanges. It provides payments to health insurance issuers that

disproportionately attract higher-risk populations (such as individuals with chronic conditions) and transfers funds from plans

with relatively lower risk enrollees to plans with relatively higher risk enrollees to protect against adverse selection. States

that operate a state-based Exchange are eligible to establish a risk adjustment program. States operating a risk adjustment

program may have an entity other than the Exchange perform this function. CMS operates a risk adjustment program for each

state that does not operate its own.

Risk Corridors Program. The temporary Risk Corridors Program operated for benefit years 2014 through 2016. This

program applied to qualified health plans in the individual and small group markets, inside and outside the Exchanges and

protected against inaccurate rate-setting by sharing risk (gains and losses) on allowable costs between CMS and qualified

health plans.

It is important to note that the improved results for HI and SMI Part B since 2010 depend in part on the long-range

feasibility of the various cost-saving measures in the ACA–most importantly, the reductions in the annual payment rate

updates for most categories of Medicare providers by the growth in economy-wide private nonfarm business multifactor

productivity and the specified physician updates put in place by MACRA. Without fundamental changes in the current

delivery system, these productivity-related adjustments to Medicare payment rates would probably not be viable indefinitely.

However, this outcome is achievable if health care providers are able to realize productivity improvements at a faster rate

than experienced historically. On the other hand, if the health sector cannot transition to more efficient models of care

delivery and achieve productivity increases commensurate with economy-wide productivity, and if the provider

reimbursement rates paid by commercial insurers continue to be based on the same negotiated process used to date, then the

availability and quality of health care received by Medicare beneficiaries would, under current law, fall over time compared

to that received by those with private health insurance.

A transformation of health care in the United States, affecting both the means of delivery and the method of paying for

care, is also a possibility. Private health insurance and Medicare take important steps in this direction by initiating programs

of research into innovative payment and service delivery models, such as accountable care organizations, patient-centered

medical homes, improvement in care coordination for individuals with multiple chronic health conditions, better coordination

of post-acute care, payment bundling, pay for performance, and assistance for individuals in making informed health choices.

Such changes have the potential to reduce health care costs as well as cost growth rates and could, as a result, help lower

health care spending to levels compatible with the lower price updates payable under current law.

The ability of new delivery and payment methods to lower cost growth rates is uncertain at this time. Preliminary

indications are that some of these delivery reforms have had modest levels of success in lowering costs, but at this time it is

too early to tell if these reductions in spending will continue, or if they will grow to the magnitude needed to align with the

statutory Medicare price updates. For those providers affected by the productivity adjustments and the specified updates to

physician payments, sustaining the price reductions will be challenging, as the best available evidence indicates that most

providers cannot improve their productivity to this degree for a prolonged period given the labor-intensive nature of these

services and that physician costs will grow at a faster rate than the specified updates. As a result, actual Medicare

expenditures are highly uncertain for reasons apart from the inherent difficulty in projecting health care cost growth over

time.

Absent an unprecedented change in health care delivery systems and payment mechanisms, the prices paid by Medicare

for most health services will fall increasingly short of the cost of providing such services. If this issue is not addressed by
 NOTES TO THE FINANCIAL STATEMENTS 134

subsequent legislation, it is likely that access to, and quality of, Medicare benefits would deteriorate over time for

beneficiaries. The specified rate updates could be an issue in years when levels of inflation are high and would be

problematic when the cumulative gap between the price updates and physician costs becomes large. The gap will continue to

widen throughout the projection, and it is estimated that physician payment rates under current law will be lower than they

would have been under the sustainable growth rate (SGR) formula by 2048. Absent a change in the delivery system or level

of update by subsequent legislation, access to Medicare-participating physicians may become a significant issue in the long

term under current law. Overriding the price updates in current law, as lawmakers repeatedly did in the case of physician

payment rates, would lead to substantially higher costs for Medicare in the long range than those projected in this report.

To help illustrate and quantify the potential magnitude of the cost understatement, the Trustees asked the Office of

the Actuary at CMS to prepare an illustrative Medicare Trust Fund projection under a hypothetical alternative that

assumes that, starting in 2020, the economy-wide productivity adjustments gradually phase down to 0.4 percent, and

starting in 2026, physician payments transition from a payment update of 0.6 percent to an increase of 2.2 percent. In

addition, the illustrative alternative assumes the continuation of the 5-percent bonuses for physicians in advanced

alternative payment models (APMs) and of the $500 million payments for physicians in the merit-based incentive payment

system (MIPS). In addition, the projection assumes that the Independent Payment Advisory Board (IPAB) requirements

would not be implemented. 7 This alternative was developed for illustrative purposes only; the calculations have not been

audited; no endorsement of the policies underlying the illustrative alternative by the Trustees, CMS, or the Office of the

Actuary should be inferred; and the examples do not attempt to portray likely or recommended future outcomes. Thus, the

illustrations are useful only as general indicators of the substantial impacts that could result from future legislation

affecting the productivity adjustments and physician updates under Medicare and of the broad range of uncertainty

associated with such impacts. The table below contains a comparison of the Medicare 75-year present values of estimated

future income and estimated future expenditures under current law with those under the illustrative alternative scenario.

 7 The illustrative alternative projections included changes to the productivity adjustments starting with the 2010 annual report, following enactment of the

Affordable Care Act. The assumption regarding physician payments is being used because the enactment of MACRA in 2015 replaced the SGR with

specified physician updates.
135 NOTES TO THE FINANCIAL STATEMENTS 

Medicare Present Values (in trillions) (Unaudited)

2017 Consolidated Illustrative

SOSI Alternative

Current Law Scenario 1, 2

Income:

 Part A .................................................. $21.7 $21.9

 Part B 3 ................................................ $8.4 $10.6

 Part D 4 ................................................ $3.1 $3.2

 Total income ..................................... $33.2 $35.7

Expenditures: 

 Part A ................................................. $25.3 $31.5

 Part B ................................................. $30.8 $38.7

 Part D ................................................. $10.8 $10.9

 Total expenditures ............................. $66.9 $81.1

Income less expenditures:

 Part A ................................................. $3.5 $9.6

 Part B .................................................. $22.4 $28.1

 Part D ................................................. $7.6 $7.8

 Excess of expenditures over income $33.5 $45.5

1

These amounts are not presented in the 2017 Trustees' Report.

2

At the request of the Trustees, the Office of the Actuary at CMS has prepared an illustrative set of Medicare Trust Fund

projections that differ from current law. No endorsement of the illustrative alternative to current law by the Trustees,

CMS, or the Office of the Actuary should be inferred.

3

Excludes $22.4 trillion and $28.1 trillion of General Revenue Contributions from the 2017 Consolidated SOSI Current

Law projection and the Illustrative Alternative Scenario's projection, respectively; i.e., to reflect Part B income on a

consolidated governmentwide basis.

4

Excludes $7.6 trillion and $7.8 trillion of General Revenue Contributions from the 2017 Consolidated SOSI Current

Law projection and the Illustrative Alternative Scenario's projection, respectively; i.e., to reflect Part D income on a

consolidated governmentwide basis.

Note: Totals may not equal the sum of components due to rounding.
 NOTES TO THE FINANCIAL STATEMENTS 136

The difference between the current-law and illustrative alternative projections is substantial for Parts A and B. All Part

A fee-for-service providers and roughly half of Part B fee-for-service providers are affected by the productivity adjustments,

so the current-law projections reflect an estimated 1.1 percent reduction in annual cost growth each year for these providers.

If the productivity adjustments were gradually phased out, the physician updates transitioned to the Medicare Economic

Index update of 2.2 percent, the 5-percent bonuses paid to physicians in APMs did not expire, and the IPAB requirements

were not implemented, as illustrated under the alternative scenario, the estimated present values of Part A and Part B

expenditures would each be higher than the current-law projections by roughly 25 and 26 percent, respectively. As indicated

above, the present value of Part A income is basically unaffected under the alternative scenario.

The Part D values are similar under each projection because the services are not affected by the productivity

adjustments or the physician updates. The very minor effect is the result of the removal of the IPAB impact and a slight

change in the discount rates that are used to calculate the present values.

The extent to which actual future Part A and Part B costs exceed the projected amounts due to changes to the

productivity adjustments and physician updates depends on what specific changes might be legislated and whether Congress

would pass further provisions to help offset such costs. As noted, these examples reflect only hypothetical changes to

provider payment rates.

Social Security and Medicare–Demographic and Economic Assumptions

The Boards of Trustees8 of the OASDI and Medicare Trust Funds provide in their annual reports to Congress shortrange (10-year) and long-range (75-year) actuarial estimates of each trust fund. Because of the inherent uncertainty in

estimates for 75 years into the future, the Boards use three alternative sets of economic and demographic assumptions to

show a range of possibilities. Assumptions are made about many economic and demographic factors, including Gross

Domestic Product (GDP)9

, disability incidence and terminations, earnings, the Consumer Price Index (CPI), the

unemployment rate, the fertility rate, immigration, mortality, and for the Medicare projections health care cost growth. The

assumptions used for the most recent set of projections shown in Table 1A (Social Security) and Table 1B (Medicare) are

generally referred to as the “intermediate assumptions,” and reflect the trustees’ reasonable estimate of expected future

experience. For further information on Social Security and Medicare demographic and economic assumptions, refer to SSA’s

and HHS’ Agency Financial Reports.

 8 There are six trustees: the Secretaries of the Treasury (managing trustee), Health and Human Services, and Labor, the Commissioner of the Social Security

Administration, and two public trustees who are generally appointed by the President and confirmed by the Senate for a 4-year term. By law, the public

trustees are members of two different political parties. 9

In July 2013, the Bureau of Economic Analysis (BEA) revised upward the historical values for GDP beginning with estimates for 1929.
137 NOTES TO THE FINANCIAL STATEMENTS 

Table 1A

Social Security – Demographic and Economic Assumptions

Demographic Assumptions

Age-Sex

Adjusted

Death

Rate

(per 100,000)2 

Net Annual

Immigration

(persons per 

year)3 

Period Life

Expectancy

at Birth4 Total 

Fertility 

Rate1 Year Male Female

2017 1.90 772.1 1,559,000 77.0 81.6

2020 1.98 750.2 1,512,000 77.4 81.9

2030 2.00 686.1 1,332,000 78.6 82.9

2040 2.00 630.8 1,282,000 79.7 83.8

2050 2.00 582.3 1,257,000 80.7 84.6

2060 2.00 539.7 1,243,000 81.7 85.4

2070 2.00 502.0 1,234,000 82.5 86.1

2080 2.00 468.6 1,229,000 83.4 86.8

2090 2.00 438.7 1,227,000 84.1 87.4

Economic Assumptions

Real

Wage

Differential

(percent)5 

Average

Annual Wage

In Covered

Employment

(percent

change)6 

Total

Employment

(percent

change)9 

Average

Annual

Interest

Rate

(percent)10 

Real

GDP

(percent

change)8 

CPI

(percent

change)7 Year

2017 1.84 4.00 2.17 2.9 1.1 2.7

2020 1.87 4.47 2.60 2.9 1.0 4.6

2030 1.29 3.89 2.60 2.1 0.5 5.3

2040 1.21 3.81 2.60 2.2 0.6 5.3

2050 1.24 3.84 2.60 2.2 0.5 5.3

2060 1.21 3.81 2.60 2.1 0.4 5.3

2070 1.15 3.75 2.60 2.1 0.5 5.3

2080 1.13 3.73 2.60 2.1 0.5 5.3

2090 1.15 3.75 2.60 2.0 0.4 5.3

1

The total fertility rate for any year is the average number of children that would be born to a woman in her lifetime if she were to experience, at each age of 

her life, the birth rate observed in, or assumed for, the selected year, and if she were to survive the entire childbearing period. 2

The age-sex-adjusted death rate is based on the enumerated total population as of April 1, 2010, if that population were to experience the death rates by age 

and sex observed in, or assumed for, the selected year. It is a summary measure and not a basic assumption; it summarizes the basic assumptions from 

which it is derived.

3

Net annual immigration is the number of persons who enter during the year (both legally and otherwise) minus the number of persons who leave during the 

year. It is a summary measure and not a basic assumption; it summarizes the effects of the basic assumptions from which it is derived. 4

The period life expectancy at a given age for a given year is the average remaining number of years expected prior to death for a person at that exact age, 

born on January 1, using the mortality rates for that year over the course of his or her remaining life. It is a summary measure and not a basic assumption; it 

summarizes the effects of the basic assumptions from which it is derived.

5

The real-wage differential is the annual percentage change in the average annual wage in covered employment less the annual percentage change in the 

Consumer Price Index for Urban Wage Earners and Clerical Workers (CPI-W). Values are rounded after all computations. 6

The average annual wage in covered employment is the total amount of wages and salaries for all employment covered by the OASDI program in a year, 

divided by the number of employees with any such earnings during the year. It is a summary measure and not a basic assumption; it summarizes the basic 

assumptions from which it is derived.

7

The CPI is the Consumer Price Index for Urban Wage Earners and Clerical Workers (CPI-W).

8

The real GDP is the value of total output of goods and services in 2009 dollars. It is a summary measure and not a basic assumption; it summarizes the 

effects of the basic assumptions from which it is derived. 

9

Total employment is total U.S. military and civilian employment. It is a summary measure and not a basic assumption; it summarizes the basic 

assumptions from which it is derived.

10The average annual interest rate is the average of the nominal interest rates, which compound semiannually, for special public-debt obligations issuable 

to the OASI and DI Trust Funds in each of the 12 months of the year. It is a summary measure and not a basic assumption; it summarizes the basic 

assumptions from which it is derived.
 NOTES TO THE FINANCIAL STATEMENTS 138

Table 1B

Medicare – Demographic and Economic Assumptions

Demographic Assumptions

Age-Sex

Adjusted

Death

Rate

(per 100,000)2 

Net Annual

Immigration

(persons per 

year)3 

Total

Fertility

Rate1 

Year

2017 1.90 772.1 1,559,000

2020 1.98 750.2 1,512,000

2030 2.00 686.1 1,332,000

2040 2.00 630.8 1,282,000

2050 2.00 582.3 1,257,000

2060 2.00 539.7 1,243,000

2070 2.00 502.0 1,234,000

2080 2.00 468.6 1,229,000

2090 2.00 438.7 1,227,000

Economic Assumptions

Average

Annual Wage

In Covered

Employment

(percent

change) 5

Per Beneficiary Cost8

Real

Wage

Differential

(percent)4 

(percent change)

Real

GDP

(percent

change)7 

Real

Interest

Rate

(percent)9 

CPI

(percent

change)6

SMI

Year HI Part B Part D

2017 1.84 4.00 2.17 2.9 0.5 3.1 (0.2) (0.3)

2020 1.87 4.47 2.60 2.9 4.1 5.1 5.4 1.7 

2030 1.29 3.89 2.60 2.1 3.8 4.8 4.5 2.7 

2040 1.21 3.81 2.60 2.2 4.6 4.2 4.7 2.7 

2050 1.24 3.84 2.60 2.2 3.8 3.7 4.7 2.7 

2060 1.21 3.81 2.60 2.1 3.6 3.6 4.5 2.7 

2070 1.15 3.75 2.60 2.1 3.8 3.6 4.4 2.7 

2080 1.13 3.73 2.60 2.1 3.8 3.6 4.4 2.7 

2090 1.15 3.75 2.60 2.0 3.4 3.4 4.3 2.7 

1

The total fertility rate for any year is the average number of children that would be born to a woman in her lifetime if she were to experience, at each age of her 

life, the birth rate observed in, or assumed for, the selected year, and if she were to survive the entire childbearing period.

2

The age-sex-adjusted death rate is based on the enumerated total population as of April 1, 2010, if that population were to experience the death rates by age 

and sex observed in, or assumed for, the selected year. It is a summary measure and not a basic assumption; it summarizes the basic assumptions from which 

it is derived.

3

Net annual immigration is the number of persons who enter during the year (both legally and otherwise) less the number of persons who leave during the year. 

It is a summary measure and not a basic assumption; it summarizes the effects of the basic assumptions from which it is derived.

4

The real-wage differential is the annual percentage change in the average annual wage in covered employment less the annual percentage change in CPI. 

Values are rounded after computations.

5

The average annual wage in covered employment is the total amount of wages and salaries for all employment covered by the OASDI program in a year, 

divided by the number of employees with any such earnings during the year. It is a summary measure and not a basic assumption; it summarizes the basic 

assumptions from which it is derived.

6

The CPI is the Consumer Price Index for Urban Wage Earners and Clerical Workers (CPI-W).

7

The real GDP is the value of total output of goods and services produced in the U.S. in 2009 dollars. It is a summary measure and not a basic assumption; it 

summarizes the effects of the basic assumptions from which it is derived.

8

These increases reflect the overall impact of more detailed assumptions that are made for each of the different types of service provided by the Medicare 

program (for example, hospital care, physician services, and pharmaceutical costs). These assumptions include changes in the payment rates, utilization, and 

intensity of each type of service.

9

The real interest rate is the average rate of interest earned on new trust fund securities, above and beyond the rate of inflation.
139 NOTES TO THE FINANCIAL STATEMENTS 

Railroad Retirement

The Railroad Retirement and Survivor Benefit program pays full retirement annuities at age 60 to railroad workers with

30 years of service. The program pays disability annuities based on total or occupational disability. It also pays annuities to

spouses and divorced spouses of retired workers and to widow(er)s, surviving divorced spouses, remarried widow(er)s,

children, and parents of deceased railroad workers. Medicare covers qualified railroad retirement beneficiaries in the same

way as it does Social Security beneficiaries.

The RRB and the SSA share jurisdiction over the payment of retirement and survivor benefits. The RRB has

jurisdiction over the payment of retirement benefits if the employee has at least 10 years of railroad service, or five years if

performed after 1995. For survivor benefits, RRB requires that the employee’s last regular employment before retirement or

death be in the railroad industry. If a railroad employee or his or her survivors do not qualify for railroad retirement benefits,

the RRB transfers the employee’s railroad retirement credits to SSA, where they are treated as social security credits.

Payroll taxes paid by railroad employers and their employees are a primary source of funding for the Railroad

Retirement and Survivor Benefit Program. By law, railroad retirement taxes are coordinated with Social Security taxes.

Employees and employers pay Tier I taxes at the same rate as Social Security taxes and Tier II taxes to finance railroad

retirement benefit payments that are higher than Social Security levels.

Revenues in excess of benefit payments are invested to provide additional trust fund income. Legislation enacted in

2001 allowed for Railroad Retirement Account funds transferred to the National Railroad Retirement Investment Trust

(NRRIT) to be invested in non-governmental assets, as well as in governmental securities. Funds transferred from the Social

Security Equivalent Benefit (SSEB) Account to the NRRIT are allowed to be invested only in governmental securities.

Since its inception, NRRIT has received $21.3 billion from RRB (including $19.2 billion in fiscal year 2003, pursuant

to the Railroad Retirement and Survivors’ Improvement Act of 2001) and returned $21.1 billion. During fiscal year 2017, the

NRRIT made net transfers of $1.8 billion to the RRB to pay retirement benefits. Administrative expenses of the trust are paid

out of trust assets. The balance as of September 30, 2017, and 2016, of non-federal securities and investments of the NRRIT

are disclosed in Note 7—Debt and Equity Securities.

Another major source of income to the Railroad Retirement and Survivor Benefit program consists of financial

transactions with the Social Security and Medicare Trust Funds. The RRB, SSA, and CMS are parties to a financing

arrangement, the “financial interchange”, which is intended to put the OASDI and Medicare HI Trust Funds in the same

positions they would have been had railroad employment been covered under the Social Security and Federal Insurance

Contributions Acts.

Other sources of program income include revenue resulting from federal income taxes on railroad retirement benefits, and

appropriations provided after 1974 as part of a phase out of certain vested dual benefits. From a governmentwide perspective,

these future financial interchanges and transactions are intragovernmental transfers and are eliminated in consolidation.

The estimated future revenues and expenditures reflected in the SOSI are based on various economic, employment, and

other actuarial assumptions, and assume that the Railroad Retirement program will continue as presently constructed. The

calculations assume that all future transfers required by current law under the financial interchange will be made. For further

details on actuarial assumptions related to the Railroad Retirement program and how these assumptions affect amounts

presented on the SOSI and Statement of Changes in Social Insurance Amounts (SCSIA), consult the Technical Supplement to

the 26th Actuarial Valuation of the Assets and Liabilities Under the Railroad Retirement Acts as of December 31, 2013, the

Annual Report on the Railroad Retirement System Required by the Railroad Retirement Act of 1974 and Railroad Retirement

Solvency Act of 1983, and RRB’s financial statements.

Black Lung–Disability Benefit Program

The Black Lung Disability Benefit Program provides for compensation, medical, and survivor benefits for eligible coal 

miners who are totally disabled due to pneumoconiosis (black lung disease) arising out of their coal mine employment, and 

the BLDTF provides benefit payments when no responsible mine operator (RMO) can be assigned the liability or when the 

liability is adjudicated to the BLDTF, which may occur as a result of, among other things, bankruptcy of the RMO. DOL 

operates the Black Lung Disability Benefit Program. 

Black lung disability benefit payments are funded by excise taxes from coal mine operators based on the domestic sale 

of coal, as are the fund’s administrative costs. These taxes are collected by the IRS and transferred to the BLDTF, which was

established under the authority of the Black Lung Benefits Revenue Act, and administered by the Treasury. 

P.L. 110-343, Division B-Energy Improvement and Extension Act of 2008, enacted on October 3, 2008, among other 

things, restructured the BLDTF debt by refinancing the outstanding high interest rate repayable advances with low interest 

rate discounted debt instruments similar in form to zero-coupon bonds, plus a one-time appropriation. This Act also allowed 

that any subsequent debt issued by the BLDTF may be used to make benefit payments, other authorized expenditures, or to 

repay debt and interest from the initial refinancing.
 NOTES TO THE FINANCIAL STATEMENTS 140

The significant assumptions used in the projections for the SOSI are the coal excise tax revenue estimates, the tax rate 

structure, number of beneficiaries, life expectancy, federal civilian pay raises, medical cost inflation, and interest rates used to 

discount future cash flows. These assumptions affect the amounts reported on the SOSI and the SCSIA. The program’s 

valuation date is September 30 for each year of information presented in the SOSI and the SCSIA. Refer to DOL’s financial 

statements for further details on significant assumptions related to the Black Lung Disability Benefit Program, and how these

assumptions affect amounts presented on the SOSI and SCSIA.

Statement of Changes in Social Insurance Amounts

The Statement of Changes in Social Insurance Amounts reconciles the change (between the current valuation and the 

prior valuation) in the present value of estimated future revenue less estimated future expenditures for current and future 

participants (the open group measure) over the next 75 years (except Black Lung which has a rolling 25-year projection 

period through September 30, 2042). The reconciliation identifies several components of the changes that are significant and 

provides reasons for the changes. The following disclosures relate to the Statement of Changes in Social Insurance Amounts 

including the reasons for the components of the changes in the open group measure during the reporting period from the end 

of the previous reporting period for the Government’s social insurance programs.

Social Security

The Statement of Changes in Social Insurance Amounts shows two reconciliations for Social Security: (1) changes from 

the period beginning on January 1, 2016, to the period beginning on January 1, 2017, and (2) changes from the period 

beginning on January 1, 2015, to the period beginning on January 1, 2016. All estimates relating to the Social Security 

Program in the Statement of Changes in Social Insurance Amounts represent values that are incremental to the prior change. 

As an example, the present values shown for economic data, assumptions, and methods represent the additional effect of 

these new data, assumptions, and methods after considering the effects from demography and the change in the valuation 

period. In general, an increase in the present value of net cash flows represents a positive change (improving financing), 

while a decrease in the present value of net cash flows represents a negative change (worsening financing).

Assumptions Used for the Components of the Changes for the Social Security Program

The present values included in the Statement of Changes in Social Insurance Amounts are for the current and prior years 

and are based on various economic as well as demographic assumptions used for the intermediate assumptions in the Social 

Security Trustees Reports for these years. Table 1A summarizes these assumptions for the current year.

Period Beginning on January 1, 2016, and Ending January 1, 2017

Present values as of January 1, 2016 are calculated using interest rates from the intermediate assumptions of the 2016 

Social Security Trustees Report. All other present values in this part of the Statement of Changes in Social Insurance 

Amounts are calculated as a present value as of January 1, 2017. Estimates of the present value of changes in social insurance 

amounts due to changing the valuation period and changing demographic data, assumptions, and methods are presented using 

the interest rates under the intermediate assumptions of the 2016 Social Security Trustees Report. Because interest rates are 

an economic estimate and all estimates in the table are incremental to the prior change, all other present values in this part of 

the Statement of Changes in Social Insurance Amounts are calculated using the interest rates under the intermediate 

assumptions of the 2017 Social Security Trustees Report.

Period Beginning on January 1, 2015, and Ending January 1, 2016

Present values as of January 1, 2015 are calculated using interest rates from the intermediate assumptions of the 2015 

Social Security Trustees Report. All other present values in this part of the Statement of Changes in Social Insurance 

Amounts are calculated as a present value as of January 1, 2016. Estimates of the present value of changes in social insurance 

amounts due to changing the valuation period and changing demographic data, assumptions, and methods are presented using 

the interest rates under the intermediate assumptions of the 2015 Social Security Trustees Report. Because interest rates are 

an economic estimate and all estimates in the table are incremental to the prior change, all other present values in this part of 

the Statement of Changes in Social Insurance Amounts are calculated using the interest rates under the intermediate 

assumptions of the 2016 Social Security Trustees Report.
141 NOTES TO THE FINANCIAL STATEMENTS 

Changes in Valuation Period

Period Beginning on January 1, 2016, and Ending January 1, 2017

The effect on the 75-year present values of changing the valuation period from the prior valuation period (2016-2090) to 

the current valuation period (2017-2091) is measured by using the assumptions for the prior valuation and extending them to 

cover the current valuation. Changing the valuation period removes a small negative net cash flow for 2016, replaces it with a 

much larger negative net cash flow for 2091, and measures the present values as of January 1, 2017, one year later. Thus, the

present value of estimated future net cash flows (excluding the combined OASI and DI Trust Fund asset reserves at the start 

of the period) decreased (became more negative) when the 75-year valuation period changed from 2016-2090 to 2017-2091. 

In addition, the effect on the level of asset reserves in the combined OASI and DI Trust Funds of changing the valuation 

period is measured by assuming all values projected in the prior valuation for the year 2016 are realized. The change in 

valuation period increased the starting level of asset reserves in the combined OASI and DI Trust Funds.

Period Beginning on January 1, 2015, and Ending January 1, 2016

The effect on the 75-year present values of changing the valuation period from the prior valuation period (2015-2089) to 

the current valuation period (2016-2090) is measured by using the assumptions for the prior valuation and extending them to 

cover the current valuation. Changing the valuation period removes a small negative net cash flow for 2015, replaces it with a 

much larger negative net cash flow for 2090, and measures the present values as of January 1, 2016, one year later. Thus, the 

present value of estimated future net cash flows (excluding the combined OASI and DI Trust Fund asset reserves at the start 

of the period) decreased (became more negative) when the 75-year valuation period changed from 2015-2089 to 2016-2090. 

In addition, the effect on the level of asset reserves in the combined OASI and DI Trust Funds of changing the valuation 

period is measured by assuming all values projected in the prior valuation for the year 2015 are realized. The change in 

valuation period increased the starting level of asset reserves in the combined OASI and DI Trust Funds.

Changes in Demographic Data, Assumptions, and Methods

Period Beginning on January 1, 2016, and Ending January 1, 2017

The ultimate demographic assumptions for the current valuation (beginning on January 1, 2017) are the same as those 

for the prior valuation. However, the starting demographic values and the way these values transition to the ultimate 

assumptions were changed.

• Final birth rate data for 2015 indicated slightly lower birth rates than were assumed in the prior valuation.

• Incorporating 2014 mortality data obtained from the National Center for Health Statistics at ages under 65 and 

preliminary 2014 mortality data from Medicare experience at ages 65 and older resulted in higher death rates for all 

future years than were projected in the prior valuation.

• More recent legal and other-than-legal immigration data and historical population data were included.

The effects of including the recent birth rate data, immigration data, and historical population data were all decreases in 

the present value of estimated future net cash flows. These effects were offset somewhat by the inclusion of the recent 

mortality data, which increased the present value of estimated future net cash flows.

There were no notable changes in demographic methodology.

Period Beginning on January 1, 2015, and Ending January 1, 2016

The ultimate demographic assumptions for the current valuation (beginning on January 1, 2016), with the exception of a 

small change in marriage rates, are the same as those for the prior valuation. However, the starting demographic values and 

the way these values transition to the ultimate assumptions were changed.

• Final birth rate data for 2013 and 2014 indicated lower birth rates than were expected in the prior valuation. The data 

also show an increase in birth rates starting in 2014, one year later than assumed in the prior valuation.

• Incorporating mortality data obtained from the National Center for Health Statistics at ages under 65 for 2012 and 

2013 and from Medicare experience at ages 65 and older for 2013 resulted in slightly higher death rates than were 

projected in the prior valuation.

• Assumed ultimate marriage rates were decreased somewhat to reflect a continuation of recent trends.

• More recent legal and other-than-legal immigration data and historical population data were included.

The effect of including the new birth rate data and immigration data was a decrease in the present value of estimated 

future net cash flows, while the inclusion of the mortality data and the marriage rate changes increased the present value of 

estimated future net cash flows.
 NOTES TO THE FINANCIAL STATEMENTS 142

There were two changes in demographic methodology:

• The transition from recent mortality rates to the ultimate rates starts sooner, immediately after the year of final data. 

The approach used for the prior valuation extended the trend of the last 10 years through the valuation year for the 

report and only thereafter started the transition to assumed ultimate rates of decline.

• Historical non-immigrant population counts were revised to match recent totals provided by the Department of 

Homeland Security. In addition, emigration rates for the never-authorized and visa-overstayer populations were 

recalibrated to reflect a longer historical period and to be less influenced by the high emigration rates experienced 

during the recent recession. Finally, the method for projecting emigration of the never-authorized population was 

altered to reflect lower rates of emigration for those who have resided here longer.

The effect of including these methodological improvements was an increase in the present value of estimated future net 

cash flows.

Changes in Economic Data, Assumptions, and Methods

Period Beginning on January 1, 2016, and Ending January 1, 2017

For the current valuation (beginning on January 1, 2017), there was one change to the ultimate economic assumptions.

• The ultimate average real-wage differential is assumed to be 1.20 percent in the current valuation, which is close to a 

0.01 percent decrease relative to the previous valuation (even though both ultimate average real-wage differentials 

are 1.20 when rounded to two decimal places).

In addition to this change in ultimate assumption, the assumed path of the real-wage differential in the first 10 years of 

the projection period was also lower than in the previous valuation. This led to 0.05 percent lower annual growth in the 

average annual wage in covered employment in the first 10 years. The lower long-term and near-term real-wage differential 

assumptions are based on new projections by CMS of faster growth in employer sponsored group health insurance premiums. 

Because these premiums are not subject to the payroll tax, faster growth in these premiums means that a smaller share of 

employee compensation will be in the form of wages that are subject to the payroll tax. The lower real-wage differential 

decreased the present value of estimated future net cash flows.

Otherwise, the ultimate economic assumptions for the current valuation are the same as those for the prior valuation. 

However, the starting economic values and the way these values transition to the ultimate assumptions were changed. The 

most notable change was updating the near-term interest rates. Also notable was an assumed weaker recovery from the recent 

recession than previously expected, which led to a reduction in the ultimate level of actual and potential GDP of about 1.0 

percent for all years after the short-range period.

The changes in near-term interest rates and GDP decreased the present value of estimated future net cash flows. Other, 

smaller changes in starting values and near-term growth assumptions combined to decrease the present value of estimated 

future net cash flows.

Period Beginning on January 1, 2015, and Ending January 1, 2016

For the current valuation (beginning on January 1, 2016), there were three changes to the ultimate economic 

assumptions.

• The ultimate rate of price inflation (CPI-W) was lowered by 0.1 percentage point, to 2.6 percent from 2.7 percent for 

the previous valuation.

• The ultimate average real-wage differential is assumed to be 1.20 percent in the current valuation, compared to 1.17 

percent in the previous valuation.

• The ultimate real interest rate was lowered by 0.2 percentage point, to 2.7 percent from 2.9 percent for the previous 

valuation. 

While very low inflation in recent years is reflective of U.S. and international supply and demand factors that have been 

affected by the global recession, the average rate of change in the CPI-W over the last two complete business cycles (from 

1989 to 2007) is 2.63 percent. The lower ultimate CPI decreases the present value of estimated future net cash flows.

The higher real-wage differential assumption is based on new projections by CMS of slower growth in employersponsored group health insurance premiums. Because these premiums are not subject to the payroll tax, slower growth in 

these premiums means that a greater share of employee compensation will be in the form of wages that are subject to the 

payroll tax. The higher real-wage differential increased the present value of estimated future net cash flows.
143 NOTES TO THE FINANCIAL STATEMENTS 

Real interest rates have been low since 2000, and particularly low since the start of the recent recession. An ongoing and 

much-debated question among experts is how much of this change is cyclic or a temporary response to extraordinary events, 

versus a fundamental permanent change. The Trustees believe that lowering the long-term ultimate real interest rate 

somewhat is appropriate at this time. The lower real interest rate decreased the present value of estimated future net cash 

flows.

Otherwise, the ultimate economic assumptions for the current valuation are the same as those for the prior valuation. 

However, the starting economic values and the way these values transition to the ultimate assumptions were changed.

• A reduction in the ultimate level of actual and potential GDP of about 1.0 percent is assumed. Thus, by the end of 

the short-range period (2025) and for all years thereafter, projected GDP in 2009 dollars is about 1.8 percent below 

the level in last year's report.

The change to GDP decreased the present value of estimated future net cash flows. Other, smaller changes in starting 

values and near-term growth assumptions combined to increase the present value of estimated future net cash flows.

Changes in Law or Policy

Period Beginning on January 1, 2016, and Ending January 1, 2017

The monetary effect of the changes in law or policy on the long-range cost of the OASDI program was not significant at 

the consolidated level. Please refer to SSA’s financial statements for further information related to the impact of the changes 

in law or policy on the long-range cost of the OASDI program.

Period Beginning on January 1, 2015, and Ending January 1, 2016

Between the prior valuation (the period beginning on January 1, 2015) and the current valuation (the period beginning 

on January 1, 2016), one law was enacted that is expected to have a significant effect on the long-range cost of the OASDI 

program. On November 2, 2015, the President signed into law P.L. 114-74, Bipartisan Budget Act of 2015. Several sections 

of the law had significant effects on long-range actuarial status, including: 

• Section 831. Closure of unintended loopholes. This provision eliminates: (1) the ability to receive only a retiredworker benefit or an aged-spouse benefit when eligible for both, for those attaining age 62 in 2016 and later; and (2) 

the ability of a family member other than a divorced spouse to receive a benefit based on the earnings of a worker 

with a voluntarily suspended benefit, for voluntary suspensions requested after April 29, 2016.

• Section 832. Requirement for medical review. This section requires that the medical portion of the case review and 

any applicable residual functional capacity assessment for an initial disability determination be completed by an 

appropriate physician, psychiatrist, or psychologist.

• Section 833. Reallocation of payroll tax rates. For earnings in calendar years 2016 through 2018, this section 

temporarily reallocates from 1.80 percent to 2.37 percent the portion of the total 12.40 percent OASDI payroll tax 

that is directed to the DI Trust Fund. This reallocation of the payroll tax rates had no cost effect on the combined 

OASDI program.

The effect of including this law was an increase in the present value of estimated future net cash flows. 

Potential Impact on the Social Insurance Statements of the September 5, 2017 

Rescission of the 2012 DACA Policy Directive

The Deferred Action for Childhood Arrivals (DACA) policy directive was implemented on June 15, 2012. On 

September 5, 2017, the Department of Homeland Security rescinded the 2012 DACA policy directive and scheduled an 

orderly phase out of the DACA program. The SSA Office of the Chief Actuary has concluded that the phase out of the 

DACA program has an effect on the actuarial methods and assumptions used in developing the estimates presented in the 

Statements of Social Insurance and the Statement of Changes in Social Insurance Amounts. It is expected that the phase out 

of the DACA program will change the present value of future noninterest income less future cost for current and future 

participants (open group measure) presented in the Statements of Social Insurance and Statement of Changes in Social 

Insurance Amounts by less than $20 billion. These effects are not considered to be material.

Medicare

The Statement of Changes in Social Insurance Amounts shows two reconciliations for Medicare: (1) changes from the 

period beginning on January 1, 2016, to the period beginning on January 1, 2017, and (2) changes from the period beginning 

on January 1, 2015, to the period beginning on January 1, 2016. All estimates relating to the Medicare program in the 

Statement of Changes in Social Insurance Amounts represent values that are incremental to the prior change. As an example, 
 NOTES TO THE FINANCIAL STATEMENTS 144

the present values shown for demographic data, assumptions, and methods represent the additional effect that these 

assumptions have, once the effects from the change in the valuation period and projection base have been considered. In 

general, an increase in the present value of net cash flows represents a positive change (improving financing), while a 

decrease in the present value of net cash flows represents a negative change (worsening financing).

Assumptions Used for the Components of the Changes for the Medicare Program

The present values included in the Statement of Changes in Social Insurance Amounts are for the current and prior years 

and are based on various economic and demographic assumptions used for the intermediate assumptions in the Medicare 

Trustees Reports for these years. Table 1B summarizes these assumptions for the current year.

Period Beginning on January 1, 2016, and Ending January 1, 2017

Present values as of January 1, 2016 are calculated using interest rates from the intermediate assumptions of the 2016 

Medicare Trustees Report. All other present values in this part of the Statement of Changes in Social Insurance Amounts are 

calculated as a present value as of January 1, 2017. Estimates of the present value of changes in social insurance amounts due 

to changing the valuation period, projection base, demographic assumptions, and law are presented using the interest rates 

under the intermediate assumptions of the 2016 Medicare Trustees Report. Since interest rates are an economic estimate and 

all estimates in the table are incremental to the prior change, the estimates of the present values of changes in economic and 

health care assumptions are calculated using the interest rates under the intermediate assumptions of the 2017 Medicare 

Trustees Report.

Period Beginning on January 1, 2015, and Ending January 1, 2016

Present values as of January 1, 2015 are calculated using interest rates from the intermediate assumptions of the 2015 

Medicare Trustees Report. All other present values in this part of the Statement of Changes in Social Insurance Amounts are 

calculated as a present value as of January 1, 2016. Estimates of the present value of changes in social insurance amounts due 

to changing the valuation period, projection base, demographic assumptions, and law are presented using the interest rates 

under the intermediate assumptions of the 2015 Medicare Trustees Report. Since interest rates are an economic estimate and 

all estimates in the table are incremental to the prior change, the estimates of the present values of changes in economic and 

health care assumptions are calculated using the interest rates under the intermediate assumptions of the 2016 Medicare 

Trustees Report.

Changes in Valuation Period

Period Beginning on January 1, 2016, and Ending January 1, 2017

The effect on the 75-year present values of changing the valuation period from the prior valuation period (2016-2090) to 

the current valuation period (2017-2091) is measured by using the assumptions for the prior valuation period and extending 

them, in the absence of any other changes, to cover the current valuation period. Changing the valuation period removes a 

small negative net cash flow for 2016, replaces it with a much larger negative net cash flow for 2091, and measures the 

present values as of January 1, 2017, one year later. Thus, the present value of estimated future net cash flow (including or

excluding the combined Medicare Trust Fund assets at the start of the period) decreased (became more negative) when the 

75-year valuation period changed from 2016-2090 to 2017-2091. In addition, the effect on the level of assets in the combined 

Medicare Trust Funds of changing the valuation period is measured by assuming all values projected in the prior valuation 

for the year 2016 are realized. The change in valuation period increased the starting level of assets in the combined Medicare 

Trust Funds.

Period Beginning on January 1, 2015, and Ending January 1, 2016

The effect on the 75-year present values of changing the valuation period from the prior valuation period (2015-2089) to 

the current valuation period (2016-2090) is measured by using the assumptions for the prior valuation period and extending 

them, in the absence of any other changes, to cover the current valuation period. Changing the valuation period removes a 

small negative net cash flow for 2015, replaces it with a much larger negative net cash flow for 2090, and measures the 

present values as of January 1, 2016, one year later. Thus, the present value of estimated future net cash flow (including or 

excluding the combined Medicare Trust Fund assets at the start of the period) decreased (became more negative) when the 

75-year valuation period changed from 2015-2089 to 2016-2090. In addition, the effect on the level of assets in the combined 

Medicare Trust Funds of changing the valuation period is measured by assuming all values projected in the prior valuation 

for the year 2015 are realized. The change in valuation period slightly increased the starting level of assets in the combined 

Medicare Trust Funds.
145 NOTES TO THE FINANCIAL STATEMENTS 

Changes in Demographic Data, Assumptions, and Methods

Period Beginning on January 1, 2016, and Ending January 1, 2017

The demographic assumptions used in the Medicare projections are the same as those used for the Old-Age Survivors 

and Disability Insurance (OASDI) and are prepared by the Office of the Chief Actuary at SSA.

The ultimate demographic assumptions for the current valuation (beginning on January 1, 2017), with the exception of a 

small change in marriage rates, are the same as those for the prior valuation. However, the starting demographic values and 

the way these values transition to the ultimate assumptions were changed.

• Final birth rate data for 2015 indicated slightly lower birth rates than were assumed in the prior valuation.

• Incorporating 2014 mortality data obtained from the National Center for Health Statistics at ages under 65 and 

preliminary 2014 mortality data from Medicare experience at ages 65 and older resulted in higher death rates for all 

future years than were projected in the prior valuation.

• More recent legal and other-than-legal immigration data and historical population data were included.

There were no consequential changes in demographic methodology.

These changes slightly lowered overall Medicare enrollment for the current valuation period and resulted in a decrease 

in the estimated future net cash flow. The present value of estimated expenditures is lower for Part A but slightly higher for 

Parts B and D; and the present value of estimated income is also higher for Parts B and D but lower for Part A.

Period Beginning on January 1, 2015, and Ending January 1, 2016 

The demographic assumptions used in the Medicare projections are the same as those used for the OASDI and are 

prepared by the Office of the Chief Actuary at SSA.

The ultimate demographic assumptions for the current valuation (beginning on January 1, 2016), with the exception of a 

small change in marriage rates, are the same as those for the prior valuation. However, the starting demographic values and 

the way these values transition to the ultimate assumptions were changed.

• Final birth rate data for 2013 and 2014 indicated lower birth rates than were expected in the prior valuation. The data 

also show an increase in birth rates starting in 2014, one year later than assumed in the prior valuation.

• Incorporating mortality data obtained from the National Center for Health Statistics at ages under 65 for 2012 and 

2013 and from Medicare experience at ages 65 and older for 2013 resulted in slightly higher death rates than were 

projected in the prior valuation.

• Assumed ultimate marriage rates were decreased somewhat to reflect a continuation of recent trends.

• More recent legal and other-than-legal immigration data and historical population data were included.

There were two changes in demographic methodology:

• The transition from recent mortality rates to the ultimate rates starts sooner, immediately after the year of final data. 

The approach used for the prior valuation extended the trend of the last 10 years through the valuation year for the 

report and only thereafter started the transition to assumed ultimate rates of decline.

• Historical non-immigrant population counts were revised to match recent totals provided by the Department of 

Homeland Security. In addition, emigration rates for the never-authorized and visa-overstayer populations were 

recalibrated to reflect a longer historical period and to be less influenced by the high emigration rates experienced 

during the recent recession. Finally, the method for projecting emigration of the never-authorized population was 

altered to reflect lower rates of emigration for those who have resided here longer.

These changes slightly lowered overall Medicare enrollment for the current valuation period and resulted in an increase 

in the estimated future net cash flow. The present value of estimated expenditures is lower for all parts of Medicare; and the 

present value of estimated income is also lower for Parts B and D but very slightly higher for Part A.

Changes in Economic and Other Health Care Assumptions

Period Beginning on January 1, 2016, and Ending January 1, 2017

The economic assumptions used in the Medicare projections are the same as those used for the Old-Age Survivors and 

Disability Insurance (OASDI) and are prepared by the Office of the Chief Actuary at SSA.

For the current valuation (beginning on January 1, 2017), there was one change to the ultimate economic assumptions.

• The ultimate average real-wage differential is assumed to be 1.20 percent in the current valuation, which is close to a 

0.01 percent decrease relative to the previous valuation (even though both ultimate average real-wage differentials 

are 1.20 when rounded to two decimal places).
 NOTES TO THE FINANCIAL STATEMENTS 146

In addition to this change in assumption, the assumed real-wage differential for the first ten years of the projection 

period averaged 0.05 percent lower than in the previous valuation. The lower long-term and near-term real-wage differential 

assumptions are based on new projections of faster growth in employer sponsored group health insurance premiums. Because 

these premiums are not subject to the payroll tax, faster growth in these premiums means that a smaller share of employee 

compensation will be in the form of wages that are subject to the payroll tax.

Otherwise, the ultimate economic assumptions for the current valuation are the same as those for the prior valuation. 

However, the starting economic values and the way these values transition to the ultimate assumptions were changed. Most 

significantly, an assumed weaker recovery from the recent recession than previously expected led to a reduction in the 

ultimate level of actual and potential GDP of about 1.0 percent for all years after the short-range period.

The health care assumptions are specific to the Medicare projections. The following health care assumptions were 

changed in the current valuation.

• Utilization rate assumptions for inpatient hospital and skilled nursing facilities services were decreased.

• The number of beneficiaries enrolled in Medicare Advantage plans and their relative costs are slightly different from 

last year’s assumptions.

• Lower productivity increases through 2025, resulting in higher provider payment updates.

• Higher projected drug rebates.

• Change in projection methodology of drug spending for Part B patients with end-stage renal disease.

The net impact of these changes resulted in a decrease in the estimated future net cash flow for total Medicare.

Period Beginning on January 1, 2015, and Ending January 1, 2016

The economic assumptions used in the Medicare projections are the same as those used for the OASDI and are prepared 

by the Office of the Chief Actuary at SSA.

For the current valuation (beginning on January 1, 2016), there were three changes to the ultimate economic 

assumptions.

• The ultimate rate of price inflation (CPI-W) was lowered by 0.1 percentage point, to 2.6 percent from 2.7 percent for 

the previous valuation.

• The ultimate average real-wage differential is assumed to be 1.20 percent in the current valuation period, compared 

to 1.17 percent in the previous valuation period.

• The ultimate real interest rate was lowered by 0.2 percentage point, to 2.7 percent from 2.9 percent for the previous 

valuation period.

While very low inflation in recent years is reflective of U.S. and international supply and demand factors that have been 

affected by the global recession, the average rate of change in the CPI-W over the last two complete business cycles (from 

1989 to 2007) is 2.63 percent.

The higher real-wage differential assumption is based on new projections by CMS of slower growth in employersponsored group health insurance premiums. Because these premiums are not subject to the payroll tax, slower growth in 

these premiums means that a greater share of employee compensation will be in the form of wages that are subject to the 

payroll tax. 

Real interest rates have been low since 2000, and particularly low since the start of the recent recession. An ongoing and 

much-debated question among experts is how much of this change is cyclic or a temporary response to extraordinary events, 

versus a fundamental permanent change. The Trustees believe that lowering the long-term ultimate real interest rate 

somewhat is appropriate at this time. The long-range present values are very sensitive to the ultimate interest rate assumption 

because they are used as the discount factor. The reduction in the ultimate interest rate assumption from 2.9 percent to 2.7 

percent increases each of the present values by roughly 15 to 16 percent.

Otherwise, the ultimate economic assumptions for the current valuation are the same as those for the prior valuation. 

However, the starting economic values and the way these values transition to the ultimate assumptions were changed. 

• A reduction in the ultimate level of actual and potential GDP of about 1.0 percent is assumed. Thus, by the end of 

the short-range period (2025) and for all years thereafter, projected GDP in 2009 dollars is about 1.8 percent below 

the level in last year's report.

The health care assumptions are specific to the Medicare projections. The following health care assumptions were 

changed in the current valuation.

• Utilization rate assumptions for inpatient hospital services were increased.
147 NOTES TO THE FINANCIAL STATEMENTS 

• The number of beneficiaries enrolled in Medicare Advantage plans and their relative costs are slightly different from 

last year’s assumptions.

• Lower productivity increases through 2021, resulting in higher provider payment updates.

• Greater reductions in expenditures attributable to the Independent Payment Advisory Board.

• Inclusion of the income and expenditures for aged non-insured beneficiaries in the Medicare Part A long-range 

analysis.

• Higher projected drug cost trend, particularly for certain high-cost specialty drugs.

The net impact of these changes resulted in a decrease in the estimated future net cash flow for total Medicare. For Part 

A, these changes resulted in an increase to the present value of estimated future expenditures and income, with an overall 

decrease in the estimated future net cash flow. For Part B and Part D, these changes increased the present value of estimated

future expenditures (and also income).

Changes in Law or Policy

Period Beginning on January 1, 2016, and Ending January 1, 2017

The monetary effect of the changes in law or policy on the present value of the 75-year estimated future income, 

expenditures, and net cash flow of the Medicare program was not sigificant at the consolidated level. Please refer to HHS’s 

financial statements for further information related to the impact of the changes in law or policy on the 75-year estimated 

future income, expenditures, and net cash flow of the Medicare program.

Period Beginning on January 1, 2015, and Ending January 1, 2016

Most of the provisions enacted as part of Medicare legislation since the prior valuation date had little or no impact on 

the program. The following provisions did have a financial impact on the present value of the 75-year estimated future 

income, expenditures, and net cash flow.

• The Trade Preference Extension Act of 2015 requires Medicare coverage for renal dialysis services provided by 

outpatient renal dialysis facilities to individuals with acute kidney injury, effective January 1, 2017.

• The Bipartisan Budget Act of 2015 (BBA) included provisions that affect the HI and SMI programs.

o The BBA required that the 2016 actuarial rate for enrollees aged 65 and older be determined as if the holdharmless provision does not apply, thereby lowering the standard Part B premium rate from what it 

otherwise would have been. The premium revenue that was lost by using the resulting lower premium 

(excluding the forgone income-related premium revenue) was replaced by a transfer of general revenue 

from the Treasury, which will be repaid over time to the General Fund. Starting in 2016, in order to repay 

the balance due (which is to include the transfer amount and the forgone income-related premium revenue), 

the monthly Part B premium otherwise determined is to be increased by $3.00. These repayment amounts 

are to be added to the Part B premium otherwise determined each year and paid back to the General Fund. 

This $3.00 increase will not be matched by government contributions. These repayment amounts are to 

continue until the total amount collected is equal to the beginning balance due. (In the final year of the 

repayment, the additional amounts may be modified to avoid an overpayment.) The repayment amounts 

(excluding those for high-income enrollees) are subject to the hold-harmless provision. The BBA also 

stipulated that if the Social Security cost-of-living adjustment (COLA) was 0 percent in 2017, then an 

additional transfer (and $3 repayment amount) would have again applied. However, the 2017 COLA of 0.3 

percent was released on October 18, 2016.

o Outpatient hospital services provided on or after January 1, 2017 by most new off-campus hospital 

provider-based outpatient departments (that is, those established on or after the BBA date of enactment of 

November 2, 2015 and located more than 250 yards from the campus) are excluded from the outpatient 

hospital prospective payment system, and are instead to be reimbursed under the applicable Part B payment 

system.

o The sequestration process that is in place should Congress fail to address the budget deficit by certain 

deadlines is extended by one year, through fiscal year 2025. In addition, Medicare benefit payments for 

services provided under periods of sequestration incur a payment reduction limited to 2 percent, so that the 

former differential payment reduction limits imposed for fiscal years 2023 and 2024 are replaced with 2-

percent limits. Finally, the 2-percent limit is raised to 4.0 percent for the first 6 months of sequestration 

required for fiscal year 2025 and reduced to 0.0 percent for the second 6 months of the year.
 NOTES TO THE FINANCIAL STATEMENTS 148

• The Consolidated Appropriations Act of 2016 included provisions that affect the HI and SMI programs.

o The payment calculation associated with inpatient hospital operating costs for Puerto Rico hospital 

discharges on or after January 1, 2016 is to be based on 0 percent of the applicable Puerto Rico percentage 

and 100 percent of the applicable federal percentage. (In addition, CMS announced that both the fiscal year 

2016 Inpatient Prospective Payment System Pricer and the Long-Term Care Hospital Pricer, which are 

used to determine all inpatient hospital payment rates and certain long-term care hospital payment rates, 

respectively, for providers nationwide, are to incorporate the Puerto Rico inpatient hospital payment 

modification. These conforming changes are applicable to inpatient hospital discharges and long-term care 

hospital discharges on or after January 1, 2016.)

o Puerto Rico hospitals are eligible to receive incentive payments under the Medicare Electronic Health 

Records Incentive Program, effective January 1, 2016.

o Effective January 1, 2017, separate Medicare payment is authorized to home health agencies when they use 

cost-effective disposable alternatives to negative pressure wound therapy equipment.

o To incentivize the transition from traditional x-ray imaging to digital radiography, Part B payment for the 

technical component of film x-rays, under the hospital outpatient prospective payment system and under 

the physician fee schedule, is reduced by 20 percent beginning in 2017. In addition, payment for the 

technical component of x-rays taken using computed radiography technology is reduced by 7 percent 

during 2018 through 2022 and by 10 percent beginning in 2023. Also, the discount in payment for the 

professional component of multiple imaging services furnished on or after January 1, 2017 is reduced from 

25 percent to 5 percent, and the 5 percent reduction is taken in a non-budget neutral manner.

o A one-year moratorium for calendar year 2017 is placed on the annual fee to be paid by health insurance 

providers. This fee, which was established by the Affordable Care Act, is imposed on certain large health 

insurance providers, including those furnishing coverage under Medicare Advantage (Part C) and Medicare 

Part D. (Since Medicare Advantage is paid for by the HI Trust Fund and the Part B account of the SMI 

Trust Fund, this provision affects all parts of Medicare.)

Overall these provisions resulted in a slight increase in the estimated future net cash flow for total Medicare. For Part A, 

these changes resulted in a slight decrease to the present value of estimated future expenditures, with an overall increase in 

the estimated future net cash flow. For Part B, these changes decreased the present value of estimated future expenditures 

(and also income). For Part D, the above-mentioned changes also resulted in a lower present value of estimated future 

expenditures (and also income) but only very slightly.

Change in Projection Base

Period Beginning on January 1, 2016, and Ending January 1, 2017

Actual income and expenditures in 2016 were different than what was anticipated when the 2016 Medicare Trustees 

Report projections were prepared. Part A income was higher and expenditures were lower than anticipated, based on actual 

experience. Part B total income and expenditures were higher than estimated based on actual experience. For Part D, actual 

income and expenditures were both lower than prior estimates. The net impact of the Part A, B, and D projection base 

changes is an increase in the estimated future net cash flow. Actual experience of the Medicare Trust Funds between January 

1, 2016 and January 1, 2017 is incorporated in the current valuation and is slightly more than projected in the prior valuation.

Period Beginning on January 1, 2015, and Ending January 1, 2016 

Actual income and expenditures in 2015 were different than what was anticipated when the 2015 Medicare Trustees 

Report projections were prepared. Part A income and expenditures were higher than anticipated, based on actual experience. 

Part B total income and expenditures were lower than estimated based on actual experience. For Part D, actual income and 

expenditures were both higher than prior estimates. The net impact of the Part A, B, and D projection base changes is a 

decrease in the estimated future net cash flow. Actual experience of the Medicare Trust Funds between January 1, 2015 and 

January 1, 2016 is incorporated in the current valuation and is slightly less than projected in the prior valuation.

Potential Impact on the Social Insurance Statements of the September 5, 2017 

Rescission of the 2012 DACA Policy Directive

The DACA policy directive was implemented on June 15, 2012. On September 5, 2017, the Department of Homeland 

Security rescinded the 2012 DACA policy directive and scheduled an orderly phase out of the DACA program. The SSA 

Office of the Chief Actuary has concluded that the phase out of the DACA program has an effect on the actuarial methods 

and assumptions used in developing the estimates presented in the Statements of Social Insurance and the Statement of 
149 NOTES TO THE FINANCIAL STATEMENTS 

Changes in Social Insurance Amounts. It is expected that the phase-out of the DACA program, which affects the 

demographic assumptions used in the Medicare projections, will not have a material impact on the present value estimates in 

the Statements of Social Insurance and Statement of Changes in Social Insurance Amounts.

Other

The present values included in the Statement of Changes in Social Insurance Amounts for the Railroad Retirement 

program are for the current and prior valuation and are based on various employment, demographic, and economic 

assumptions that reflect the RRB’s reasonable estimate of expected future financial and actuarial status of the trust funds.

Note that beginning in fiscal year 2016, the present values included in the Statement of Changes in Social Insurance 

Amounts for the Railroad Retirement program were on a fiscal year basis, as of October 1, 2015. Prior to fiscal year 2016, all 

present values were on a calendar year basis, as of January 1. The primary reasons for the changes in the 2017 Statement of 

Changes in Social Insurance Amounts for Railroad Retirement are for the 12-month period between October 1, 2015 and 

October 1, 2016, while the primary reasons for the changes in the 2016 Statement of Changes in Social Insurance Amounts 

for Railroad Retirement were for the 9-month period between January 1, 2015 and October 1, 2015. Consequently, the 

Railroad Retirement changes on the 2017 Statement of Changes in Social Insurance Amounts will not be comparable to the 

Railroad Retirement changes on the 2016 Statement of Changes in Social Insurance Amounts. For a more detailed 

description of the primary reasons for the changes in the 2017 Statement of Changes in Social Insurance Amounts, refer to 

RRB’s financial statements.

The significant assumptions used in the projections of the Black Lung social insurance program, referenced earlier in 

this note, affect the amounts reported on the Statement of Changes in Social Insurance Amounts, which shows two 

reconciliations for Black Lung: (1) changes in the open group measure for the year ended September 30, 2017, and (2) 

changes in the open group measure for the year ended September 30, 2016. For a more detailed description of the primary 

reasons for the changes in the 2017 Statement of Changes in Social Insurance Amounts, refer to DOL’s financial statements.
 NOTES TO THE FINANCIAL STATEMENTS 150

Note 23. Long-Term Fiscal Projections

The Statements of Long-Term Fiscal Projections are prepared pursuant to SFFAS No. 36, Comprehensive Long-Term 

Projections for the U.S. Government, as amended. The basic financial statement, Note 23, and related unaudited required 

supplementary information (RSI) provide information to aid readers of the Financial Report in assessing whether current 

policies for Federal spending and taxation can be sustained and the extent to which the cost of public services received by 

current taxpayers will be shifted to future taxpayers under sustainable policies. This assessment requires prospective 

information about receipts and spending, the resulting debt, and how these amounts relate to the size of the economy. A 

sustainable policy is defined as one where the ratio of Federal debt held by the public to GDP (the debt-to-GDP ratio) is 

ultimately stable or declining. The Financial Report does not address the sustainability of State and local government fiscal 

policy.

The projections and analysis presented here are extrapolations based on an array of assumptions described in detail 

below. A fundamental assumption is that current Federal policy will not change. This assumption is made so as to inform the 

question of whether current fiscal policy is sustainable and, if it is not sustainable, the magnitude of needed reforms to make 

fiscal policy sustainable. The projections are therefore neither forecasts nor predictions. If policy changes are implemented, 

perhaps in response to projections like those presented here, then actual financial outcomes will be different than those 

projected. The methods and assumptions underlying the projections are subject to continuing refinement.

The projections focus on future cash flows, and do not reflect either the accrual basis or the modified-cash basis of 

accounting. These cash-based projections reflect receipts or spending at the time cash is received or when a payment is made 

by the Government. In contrast, accrual-based projections would reflect amounts in the time period in which income is 

earned or when an expense or obligation is incurred. The cash basis accounting underlying the long-term fiscal projections is 

consistent with methods used to prepare the Statements of Social Insurance (SOSI) and the generally cash-based Federal 

budget. 

The basic financial statement, Long-Term Fiscal Projections for the U.S. Government, displays the present value of 75-

year projections for various categories of the Federal Government’s receipts and non-interest spending.10 The projections for 

fiscal years 2017 and 2016 are expressed in present value dollars and as a percentage of the present value of Gross Domestic 

Product (GDP)11 as of September 30, 2017 and September 30, 2016, respectively. The present value of a future amount, for 

example $1 billion in October 2092, is the amount of money that if invested on September 30, 2017 in an account earning the 

government borrowing rate would have a value of $1 billion in October 2092.12 

The present value of a receipt or expenditure category over 75 years is the sum of the annual present value amounts. 

When expressing a receipt or expenditure category over 75 years as a percent of GDP, the present value dollar amount is 

divided by the present value of GDP over 75 years. Measuring receipts and expenditures as a percentage of GDP is a useful 

indicator of the economy’s capacity to sustain Federal Government programs. 

Fiscal Projections

Receipt categories in the long-term fiscal projections include individual income taxes, Social Security and Medicare 

payroll taxes, and a residual remaining category of “other receipts.” On the spending side, categories include: (1) 

discretionary spending that is funded through annual appropriations, such as spending for national security, and (2) 

mandatory (entitlement) spending that is generally financed with permanent or multi-year appropriations, such as spending 

for Social Security and Medicare. This year’s projections for Social Security and Medicare are based on the same economic 

and demographic assumptions that underlie the 2017 Social Security and Medicare trustees’ reports and the 2017 Statement 

of Social Insurance, while comparative information presented from last year’s report is based on the 2016 Social Security and

Medicare trustees’ reports and the 2016 Statement of Social Insurance. Projections for the other categories of receipts and 

spending are consistent with the economic and demographic assumptions in the trustees’ reports. The projections assume the 

continuance of current policy which, as is explained below, can be different than current law in cases where lawmakers have 

in the past periodically changed the law in a consistent way. Also, the projections are based on current policy as of September 

 10 For the purposes of this analysis, spending is defined in terms of outlays. In the context of Federal budgeting, spending can either refer to budget authority 

– the authority to commit the government to make a payment; to obligations – binding agreements that will result in payments, either immediately or in the 

future; or to outlays – actual payments made. 11 GDP is a standard measure of the overall size of the economy and represents the total market value of all final goods and services produced domestically 

during a given period of time. The components of GDP are: private sector consumption and investment, government consumption and investment, and net 

exports (exports less imports). Equivalently, GDP is a measure of the gross income generated from domestic production over the same time period. 12 Present values recognize that a dollar paid or collected in the future is worth less than a dollar today because a dollar today could be invested and earn 

interest. To calculate a present value, future amounts are thus reduced using an assumed interest rate, and those reduced amounts are summed.
151 NOTES TO THE FINANCIAL STATEMENTS

30. Therefore, such projections do not reflect legislation enacted subsequent to September 30 that changes policy that was in

effect as of the end of the fiscal year.

The projections shown in the basic statement are made over a 75-year time frame, consistent with the time frame 

featured in the Social Security and Medicare trustees’ reports. However, these projections are for fiscal years starting on 

October 1, whereas the trustees’ reports feature calendar-year projections. This difference allows the projections to start from 

the actual budget results from fiscal years 2017 and 2016.

The Tax Cuts and Jobs Act (P.L. 115-97) was enacted on December 22, 2017, and is therefore not reflected in the 

projections shown in the Statements of Long-Term Fiscal Projections and this note. For more information on the Tax Cuts 

and Jobs Act, see Note 25—Subsequent Events.

This year’s estimate of the 75-year present value imbalance of receipts less non-interest spending is 1.2 percent of the 

75-year present value of GDP, compared to 0.8 percent as was projected in last year’s Financial Report.

13 The above table

reports the effects of various factors on the updated projections. The largest factor, increasing the imbalance by 0.3 percent of

GDP ($4.7 trillion), is attributable to the economic and demographic assumptions used in formulating the projection. Lower

GDP and wage projections had the effect of decreasing the 75-year present value of income tax and social insurance receipts,

with a smaller decrease in Social Security outlays, for a net increase in the 75-year present value imbalance. Nearly as

significant is the effect of a change in the model’s assumption for the future growth of spending for Overseas Contingency

Operations (OCO). As discussed further below in the section on assumptions used in the projections, outlays for OCO are

now assumed to grow with GDP from the level of outlays in the most recent year, in contrast to the previous assumption

under which OCO outlays were assumed to phase out entirely during the first 10 years of the projection. The OCO change

and other minor offsetting updates increase the imbalance by 0.3 percent of GDP ($3.8 trillion). The next largest change in

the table – decreasing the imbalance by 0.2 percent of GDP ($2.1 trillion) – is attributable to actual budget results for fiscal

year 2017 and other budget data, including lower actual spending for mandatory programs other than Social Security,

Medicare, and Medicaid, partially offset by increased funding for OCO in final 2017 appropriations action. The cumulative

effect of the various changes to OCO described above (which reflect current policy without change as discussed in footnote

21) increased the imbalance by 0.4 percent of GDP ($5.7 trillion).

The penultimate row in the basic financial statement shows that this year’s estimate of the overall 75-year present value

of receipts less non-interest spending is 1.2 percent of the 75-year present value of GDP (negative $16.2 trillion, as compared 

to GDP of $1,347.0 trillion). 

13 More information on the projections in last year’s Financial Report can be found in Note 23 to the Financial Statements here: https://

fiscal.treasury.gov/fsreports/rpt/finrep/fr/16frusg/NotestoFinancialStatements_2016.pdf
 NOTES TO THE FINANCIAL STATEMENTS 152

This imbalance can be broken down by funding source. There is a surplus of receipts over spending of 0.2 percent of GDP 

($3.3 trillion) among programs funded by the government’s general revenues, but an imbalance of 1.5 percent of GDP ($19.6 

trillion14) for the combination of Social Security (OASDI) and Medicare Part A, which under current law are funded with 

payroll taxes and not in any material respect with general revenues.15, 16 By comparison, the fiscal year 2016 projections 

showed that programs funded by the Government’s general revenues had an excess of receipts over spending of 0.7 percent 

of GDP ($8.7 trillion) while the payroll tax-funded programs had an imbalance of spending over receipts of 1.5 percent of 

GDP ($19.4 trillion).

Sustainability and the Fiscal Gap

As discussed further in RSI, the projections in this report indicate that current policy is not sustainable. If current policy 

is left unchanged, the projections show the debt-to-GDP ratio will fall about 4 percentage points between 2017 and 2023 

before commencing a steady rise, exceeding its 2017 level by 2029, exceeding 100 percent by 2037, and reaching 297 

percent in 2092. Moreover, if the trends that underlie the 75-year projections were to continue, the debt-to-GDP ratio would 

continue to rise beyond the 75-year window. 

The fiscal gap measures how much the primary surplus (receipts less non-interest spending) must increase in order for 

fiscal policy to achieve a target debt-to-GDP ratio in a particular future year. In these projections, the fiscal gap is estimated 

over a 75-year period, from 2018 to 2092, and the target debt-to-GDP ratio is equal to the ratio at the beginning of the 

projection period, in this case the debt-to-GDP ratio at the end of fiscal year 2017. 

The 75-year fiscal gap under current policy is estimated at 2.0 percent of GDP, which is 10.0 percent of the 75-year 

present value of projected receipts and 9.4 percent of the 75-year present value of non-interest spending. This estimate of the 

fiscal gap is 0.4 percentage point larger than was estimated in 2016 (1.6 percent of GDP).

The projections show that projected primary deficits average 1.2 percent of GDP over the next 75 years under current 

policies. If policies were put in place that would result in a zero fiscal gap, the average primary surplus over the next 75 years 

would be 0.8 percent of GDP, 2.0 percentage points higher than the projected present value of receipts less non-interest 

spending shown in the basic financial statement. In these projections, closing the fiscal gap requires running a substantially 

positive level of primary surplus, rather than simply eliminating the primary deficit. The primary reason is that the 

projections assume future interest rates will exceed the growth rate of GDP. Achieving primary balance (that is, running a 

primary surplus of zero) implies that the debt held by the public grows each year by the amount of interest spending, which 

under these assumptions would result in debt growing faster than GDP.

Assumptions Used and Relationship to Other Financial Statements

A fundamental assumption underlying the projections is that current Federal policy (defined below) does not change. 

The projections are therefore neither forecasts nor predictions, and do not consider large infrequent events such as natural 

disasters, military engagements, or economic crises. By definition, they do not build in changes in policy, such as recent 

proposals to repeal the Affordable Care Act. If policy changes are enacted, perhaps in response to projections like those 

presented here, then actual fiscal outcomes will be different than those projected.

 14 The 75-year present value imbalance for Social Security and Medicare Part A of $19.6 trillion is comprised of several line items from the long-term fiscal 

projections – Social Security outlays net of Social Security payroll taxes ($20.6 trillion) and Medicare Part A outlays net of Medicare payroll taxes ($7.2 

trillion) – as well as subcomponents of these programs not presented separately in the table. These subcomponents include Social Security and Medicare Part 

A administrative costs that are classified as non-defense discretionary spending ($0.7 trillion) and Social Security and Medicare Part A income other than 

payroll taxes: taxation of benefits (-$4.0 trillion), Federal employer share (-$1.2 trillion), and other income (-$3.7 trillion). 15 Social Security and Medicare Part A expenditures can exceed payroll tax revenues in any given year to the extent that there are sufficient balances in the 

respective trust funds, balances that derive from past excesses of payroll tax revenues over expenditures and interest earned on those balances and represent 

the amount the General Fund owes the respective trust fund programs. When spending does exceed payroll tax revenues, as has occurred each year since 

2008 for Medicare Part A and 2010 for Social Security, the excess spending is financed first with interest due from the General Fund and secondly with a 

drawdown of the trust fund balance; in either case, the spending is ultimately supported by general revenues or borrowing. Under current law, benefits for 

Social Security and Medicare Part A can be paid only to the extent that there are sufficient balances in the respective trust funds. In order for the long-term 

fiscal projections to reflect the full size of these program’s commitments to pay future benefits, the projections assume that all scheduled benefits will be 

financed with borrowing to the extent necessary after the trust funds are exhausted. 16 The fiscal imbalances reported in the long-term fiscal projections are limited to future outlays and receipts. They do not include the initial level of 

publicly-held debt, which was $14.7 trillion in 2017 and $14.2 trillion in 2016, and therefore they do not by themselves answer the question of how large 

fiscal reforms must be to make fiscal policy sustainable, or how those reforms divide between reforms to Social Security and Medicare Part A and to other 

programs. Other things equal, past cash flows (primarily surpluses) for Social Security and Medicare Part A reduced Federal debt at the end of 2017 by $3.1 

trillion (the trust fund balances at that time); the contribution of other programs to Federal debt at the end of 2017 was therefore $17.7 trillion. Because the 

$19.6 trillion imbalance between outlays and receipts over the next 75 years for Social Security and Medicare Part A does not take account of the Social 

Security and Medicare Part A trust fund balances, it overstates the magnitude of reforms necessary to make Social Security and Medicare Part A solvent 

over 75 years by $3.1 trillion. The $3.1 trillion combined Social Security and Medicare Part A trust fund balance represents a claim on future general 

revenues.
153 NOTES TO THE FINANCIAL STATEMENTS 

Even if policy does not change, actual expenditures and receipts could differ materially from those projected here. 

Long-range projections are inherently uncertain and are necessarily based on simplifying assumptions. For example, one key 

simplifying assumption is that interest rates paid on debt held by the public remain unchanged, regardless of the amount of 

debt outstanding. To the contrary, it is likely that future interest rates would increase if the debt-to-GDP ratio rises as shown 

in these projections. To help illustrate this uncertainty, projections that assume higher and lower interest rates are presented in 

the “Alternative Scenarios” discussion in the RSI section of this Financial Report.

As is true for prior long-term fiscal projections for the Financial Report, the assumptions for GDP, interest rates, and 

other economic and demographic variables underlying this year’s projections are the same assumptions that underlie the most 

recent Social Security and Medicare trustees’ report projections, adjusted for historical revisions that occur annually. The use 

of discount factors consistent with the Social Security trustees’ rate allows for consistent present value calculations over 75 

years between the Statements of Long-Term Fiscal Projections and the Statements of Social Insurance. 

The following bullets summarize the key assumptions used for the categories of receipts and spending presented in the 

basic financial statement and the disclosures:

• Social Security: Projected Social Security (OASDI) spending excludes administrative expenses, which are 

classified as discretionary spending, and is based on the projected expenditures in the 2017 Social Security trustees’ 

report for benefits and for the Railroad Retirement interchange. The projections of Social Security payroll taxes and 

Social Security spending are based on future spending and for payroll taxes as are projected in the 2017 Social 

Security trustees’ report, adjusted for presentational differences and converted to a fiscal year basis. More 

information about the assumptions for Social Security cost growth can be found in Note 22 and the RSI discussion 

of Social Insurance.

• Medicare: Projected Medicare spending is also shown net of administrative expenses and is based on projected 

incurred expenditures from the 2017 Medicare trustees’ report. The projections here make some adjustments to the 

trustees’ report projections. Medicare Part B and D premiums, as well as State contributions to Part D, are subtracted 

from gross spending in measuring Part B and Part D outlays, just as they are subtracted from gross cost to yield net 

cost in the financial statements.17 Here, as in the Federal budget, premiums are treated as “negative spending” 

rather than receipts since they represent payment for a service rather than payments obtained through the 

Government’s sovereign power to tax. This is similar to the financial statement treatment of premiums as “earned” 

revenue as distinct from all other sources of revenue, such as taxes. The projections are based on Medicare spending 

in the Medicare trustees’ report, adjusted for presentational differences and converted to a fiscal year basis. 

Medicare Part A payroll taxes are projected similarly. More information about the assumptions for Medicare cost 

growth can be found in Note 22 and the Required Supplementary Information for Social Insurance. As discussed in 

Note 22, there is uncertainty about whether the reductions in health care cost growth projected in the Medicare 

trustees’ report will be fully achieved. Note 22 illustrates this uncertainty by considering Medicare cost growth 

assumptions under varying policy assumptions. 

• Medicaid: The Medicaid spending projections start with the projections from the 2016 Actuarial Report on the 

Financial Outlook for Medicaid prepared by the Office of the Actuary, Centers for Medicare & Medicaid Services 

(CMS)18. These projections are based on recent trends in Medicaid spending, the demographic, economic, and 

health cost growth assumptions in the 2016 Medicare Trustees’ Report, and projections of the effect of the ACA on 

Medicaid enrollment. The projections, which end in 2025, are adjusted to accord with the actual Medicaid 

expenditures in fiscal year 2017. After 2025, the projections assume no further change in State Medicaid coverage 

under the ACA, with the number of Medicaid beneficiaries expected to grow at the same rate as total population, 

and Medicaid costs per beneficiary assumed to grow at the same rate as Medicare benefits per beneficiary, as is 

generally consistent with the experience since 1987. Between 1987 and 2015, the average annual growth rate of 

outlays per beneficiary for Medicaid and Medicare were within 0.2 percentage point of each other. Projections of 

Medicaid spending are subject to added uncertainty related to: (1) assumed reductions in health care cost growth 

discussed above in the context of Medicare, and (2) the projected size of the Medicaid enrolled population, which 

depends on a variety of factors, including future actions by States regarding the ACA Medicaid expansion. 

• Other Mandatory Spending: Other mandatory spending, which includes Federal employee retirement, veterans’ 

disability benefits, and means-tested entitlements other than Medicaid, is projected in two steps. First, spending prior 

to the automatic spending cuts called for by the enforcement provisions of the Budget Control Act (BCA) is 

projected and, second, the effect of the BCA enforcement is projected through its statutory expiration in 2025. With 

 17 Medicare Part B and D premiums and State contributions to Part D are subtracted from the Part B and D spending displayed in the basic financial 

statement. The total 75-year present value of these subtractions is $12.4 trillion, or 0.9 percent of GDP. 18 Christopher J. Truffer, Christian J. Wolfe, and Kathryn E. Rennie, 2016 Actuarial Report on the Financial Condition for Medicaid, Office of the Actuary, 

Centers for Medicare and Medicaid Services, United States Department of Health and Human Services, December 2016.
 NOTES TO THE FINANCIAL STATEMENTS 154

regard to pre-BCA spending: (a) current mandatory spending components that are judged permanent under current 

policy are assumed to increase by the rate of growth in nominal GDP starting in 2018, implying that such spending 

will remain constant as a percentage of GDP19; and (b) projected spending for insurance exchange subsidies starting 

in 2018 grows with growth in the non-elderly population and with the National Health Expenditure (NHE) projected 

per enrollee cost growth for other private health insurance for the NHE projection period (through 2026 for the fiscal 

year 2017 projections), and with growth in per enrollee health care costs as projected for the Medicare program after 

that period. As discussed in Note 22, there is uncertainty about whether the reductions in health care cost growth 

projected in the Medicare trustees’ report will be fully achieved. Projected exchange subsidy spending as a 

percentage of GDP remains below the failsafe provision in the ACA that limits this spending to 0.504 percent of 

GDP. 

• Defense and Non-defense Discretionary Spending: Through 2021, discretionary spending other than for OCO is 

dictated by the spending caps and automatic spending cuts called for by the BCA. After 2021, this spending is 

assumed to grow at the same rate as nominal GDP, and thus plateaus at a long-term level of 5.5 percent of GDP. The 

BCA reductions are projected to reduce the present value of spending by $0.3 trillion through 2021, and by an 

additional $4.6 trillion between 2022 and 2092 because of the lower base spending in 2021. Projected OCO 

spending, which is not subject to the caps, is assumed to grow from the level in the most recent year at the same rate 

as nominal GDP. To illustrate uncertainty, present value calculations under alternative discretionary growth 

scenarios are presented in the “Alternative Scenarios” RSI section.

• Receipts (Other than Social Security and Medicare Payroll Taxes): It is assumed that individual income taxes 

will equal the same share of wages and salaries as in the current law baseline projection in the Administration’s 

latest Budget. That baseline accords with current policy as defined above, including the tendency of effective tax 

rates to increase as growth in incomes per capita outpaces inflation (also known as “bracket creep”). After reaching 

about 22 percent of wages and salaries in 2024, individual income taxes increase gradually to 29 percent of wages 

and salaries in 2092 as real taxable incomes rise over time and an increasing share of total income is taxed in the 

higher tax brackets. The ratio of all other receipts combined to GDP is projected to remain at 3.6 percent of GDP, 

based on a long-run historical average. To illustrate uncertainty, present value calculations under higher and lower 

individual income tax receipts growth scenarios are presented in the “Alternative Scenarios” section.

• Debt and Interest Spending: Interest spending is determined by projected interest rates and the level of outstanding 

debt held by the public. The long-run interest rate assumptions accord with those in the 2017 Social Security 

trustees’ report.20 The average interest rate over the projection period is 5.1 percent. These rates are also used to 

convert future cash flows to present values as of the start of fiscal year 2018. Debt at the end of each year is 

projected by adding that year’s deficit and other financing requirements to the debt at the end of the previous year.

The methods described above include one significant revision from those used to produce the fiscal year 2016 

projections. As discussed under changes in long-term fiscal projections, OCO spending now grows with GDP from the level 

of outlays in the most recent fiscal year, rather than being assumed to steadily decline and fully phase out during the first 10 

years of the projection period. In the years following enactment of the BCA in 2011, appropriations for OCO – which was 

exempt from the BCA’s discretionary spending limits – were declining as operations in Afghanistan and Iraq phased down. 

In the last few years, however, appropriations for OCO have stabilized and even increased slightly. The future path of 

appropriations for OCO is uncertain, but “current policy without change” can no longer be characterized as consistent with 

phasing OCO funding out entirely.21

Departures of Current Policy from Current Law 

The long-term fiscal projections are made on the basis of current Federal policy, which in some cases is different from 

current law. The notable differences between current policy that underlies the projections and current law are: (1) projected 

spending, receipts, and borrowing levels assume raising or suspending the current statutory limit on Federal debt, (2) 

continued discretionary appropriations are assumed throughout the projection period, (3) scheduled Social Security and 

Medicare benefit payments are assumed to occur beyond the projected point of trust fund exhaustion, and (4) many 

mandatory programs with expiration dates prior to the end of the 75-year projection period are assumed to be reauthorized. 

As is true in the Medicare trustees’ report and in the Statement of Social Insurance, the projections incorporate programmatic 

changes already scheduled in law, such as the ACA productivity adjustment for non-physician Medicare services and the 

expiration of certain physician bonus payments in 2025.

 19 This assumed growth rate for other mandatory programs exceeds the growth rate in the most recent OMB and CBO 10-year budget baselines. 20 As indicated in the more detailed discussion of Social Insurance in Note 22 to the financial statements. 21 The revised assumption of continued OCO funding in these long-term fiscal projections should not be interpreted as a change in the Administrations’s 

proposed future funding levels for OCO. As with other assumptions in the long-term fiscal projections, the OCO assumption is meant to project the 

implications of current policy without change, rather than to indicate a preferences or a prediction of future budget outcomes.
155 NOTES TO THE FINANCIAL STATEMENTS 

Note 24. Stewardship Land and Heritage Assets

Stewardship land is federally-owned land set aside for the use and enjoyment of present and future generations, and land 

on which military bases are located. Except for military bases, this land is not used or held for use in general government 

operations. Stewardship land is land that the government does not expect to use to meet its obligations, unlike the assets listed 

in the Balance Sheets. Stewardship land is measured in non-financial units such as acres of land and lakes, and the number of 

National Parks and National Marine Sanctuaries. Examples of stewardship land include national parks, national forests, 

wilderness areas, and land used to enhance ecosystems for the encouragement of animal and plant species, and nature 

conservation. This category excludes lands administered by the Bureau of Indian Affairs and held in trust.

The majority of public lands that are under the management of DOI were acquired by the government during the first 

century of the Nation’s existence between 1781 and 1867.

Stewardship land is used and managed in accordance with the statutes authorizing acquisition or directing use and 

management. Additional detailed information concerning stewardship land, such as agency stewardship policies, physical 

units by major categories, and the condition of stewardship land, can be obtained from the financial statements of DOI, DOD, 

TVA, and USDA.

Heritage assets are government-owned assets that have one or more of the following characteristics:

• Historical or natural significance;

• Cultural, educational, or artistic importance; and/or

• Significant architectural characteristics

The cost of heritage assets often is not determinable or relevant to their significance. Like stewardship land, the 

government does not expect to use these assets to meet its obligations. The most relevant information about heritage assets is 

non-financial. The public entrusts the government with these assets and holds it accountable for their preservation. Examples 

of heritage assets include the Mount Rushmore National Memorial and Yosemite National Park. Other examples of heritage 

assets include the Declaration of Independence, the U.S. Constitution, and the Bill of Rights preserved by the National 

Archives. Also included are national monuments/structures such as the Vietnam Veterans Memorial, the Jefferson Memorial, 

and the Washington Monument, as well as the Library of Congress. Many other sites such as battlefields, historic structures, 

and national historic landmarks are placed in this category, as well.

Many laws and regulations govern the preservation and management of heritage assets. Established policies by 

individual federal agencies for heritage assets ensure the proper care and handling of the assets under their control and 

preserve these assets for the benefit of the American public.

Some heritage assets are used both to remind us of our heritage and for day-to-day operations. These assets are referred 

to as multi-use heritage assets. One typical example is the White House. The cost of acquisition, betterment, or reconstruction

of all multi-use heritage assets is capitalized as general Property, Plant, and Equipment (PP&E) and is depreciated.

The government classifies heritage assets into two broad categories: collection type and non-collection type. Collection 

type heritage assets include objects gathered and maintained for museum and library collections. Non-collection type heritage 

assets include national wilderness areas, wild and scenic rivers, natural landmarks, forests, grasslands, historic places and

structures, memorials and monuments, buildings, national cemeteries, and archeological sites.

This discussion of the government’s heritage assets is not exhaustive. Rather, it highlights significant heritage assets 

reported by federal agencies. Please refer to the individual financial statements of the DOC, VA, DOT, State, DOD, as well 

as websites for the Library of Congress (https://loc.gov), the Smithsonian Institution (https://si.edu), and the Architect of the 

Capitol (https://aoc.gov) for additional information on multi-use heritage assets, agency stewardship policies, and physical 

units by major categories. 
 NOTES TO THE FINANCIAL STATEMENTS 156

Note 25. Subsequent Events

Disaster Relief

In August and September of 2017, Hurricanes Harvey, Irma, and Maria struck the continental United States, Puerto

Rico and the U.S. Virgin Islands. While the full future effect of these disasters is still unknown, there will be an impact on

some federal government entities as a result in assisting these areas as they strive to recover. The fiscal year 2017 financial

statements did not reflect any liabilities for additional disaster relief amounts that may be authorized by legislation enacted

after September 30, 2017. The SBA has begun to increase its rate of administrative spending as it conducts its disaster

response. This spending is consistent with the Agency’s experience in responding to prior disasters. The SBA could

experience future variations in the performance of existing disaster and business loan portfolios as businesses in the affected

areas strive to recover.

Congress enacted the Additional Supplemental Appropriations for Disaster Relief Requirements Act of 2017 (Pub.L.

115-72) on October 26, 2017 as a result of the hurricanes. This Act provides Federal Emergency Management Agency’s

(FEMA) Disaster Relief Fund with an additional $13.8 billion for response and recovery activity, and FEMA’s Disaster

Assistant Direct Loan Program $4.9 billion for direct loans to assist local governments in providing essential services. The

act also provides debt relief and additional borrowing authority for the National Flood Insurance Program (NFIP) by

canceling $16.0 billion of the NFIP’s debt to Treasury.

Statutory Debt Limit

As of September 30, 2017, debt subject to the statutory debt limit was $20,208.6 billion, as stated in Note 11—Federal

Debt Securities Held by the Public and Accrued Interest. However, per P.L. 115-56, the statutory debt limit was temporarily

suspended through December 8, 2017. Effective December 9, 2017, the statutory debt limit was set at $20,456.0 billion and

on Monday, December 11, 2017, the Secretary of the Treasury notified the Congress that the statutory debt limit would be

reached on or after that day. Treasury began to depart from its normal debt management procedures and invoke legal

authorities to avoid exceeding the statutory debt limit on December 11, 2017. See Note 11—Federal Debt Securities Held by

Public and Accrued Interest for further information.

Tax Reform

As stated in Note 23, the Statement of Long-Term Fiscal Projections is based on current policy that was in effect on

September 30, 2017, and does not reflect legislation enacted after that date. Therefore, such projections do not reflect

legislation enacted subsequent to September 30 that changes policy that was in effect as of the end of the fiscal year.

Subsequent to the end of the fiscal year, and after the preparation of the long-term fiscal projections (LTFP), Congress passed

and on December 22, 2017, the President signed the Tax Cuts and Jobs Act (P.L. 115-97), which enacts comprehensive

reforms to the tax code. The Joint Committee on Taxation (JCT) estimated that the outlays and receipt effects of the enacted

law will increase deficits from 2018 through 2027 by $1.5 trillion, primarily due to lower tax receipts. According to the JCT

estimates, the deficit effects peak at 1.4 percent of GDP in 2019 and fall to 0.4 percent of GDP by 2025, after which many of

the provisions in the bill affecting individual income taxes expire. The JCT also provided supplemental estimates of the

macroeconomic effect of the law that indicated the tax changes would boost GDP growth, producing increased receipts that

would offset a significant portion of the law’s effect on the deficit. The Statement of LTFP and Note 23 in next year’s

Financial Report will incorporate the effects of the law on the long-range receipt projection, based on an updated economic

forecast from the Social Security trustees that reflects the tax law and other economic developments in the period since the

previous forecast was prepared. At the time the Financial Report was issued, management had not assessed the impact of the

Tax Cuts and Jobs Act on the Statement of LTFP.
157 NOTES TO THE FINANCIAL STATEMENTS 

GSEs

On December 22, 2017, the Department of the Treasury and FHFA agreed to modify the Senior Preferred Stock

Purchase Agreements (SPSPAs) between Treasury and the GSEs to increase the capital reserve amount for each GSE to $3

billion, effective with the December 2017 dividend payment. Absent the agreement, the GSEs’ capital reserves would have

declined to zero on January 1, 2018. In exchange for the increase in the capital reserve, Treasury’s liquidation preference in

each GSE increased by $3 billion on December 31, 2017.

The reduction in the U.S. corporate income tax rate resulting from the enactment of the Tax Cuts and Jobs Act on

December 22, 2017, required that each of Fannie Mae and Freddie Mac record a reduction in the value of their deferred tax

assets in the quarter in which the legislation was enacted, impacting potential future draws. The funding draws and the

associated amounts are expected to be realized in March 2018. Refer to Note 8—Investments in Government Sponsored

Enterprises for additional information.
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 158 

United States Government

Required Supplementary Information 

(Unaudited) For the Fiscal Years Ended

September 30, 2017, and 2016

The Sustainability of Fiscal Policy

One of the important purposes of the Financial Report is to help citizens and policymakers assess whether current fiscal 

policy is sustainable and, if it is not, the urgency and magnitude of policy reforms necessary to make fiscal policy 

sustainable. A sustainable policy is one where the ratio of debt held by the public to GDP (the debt-to-GDP ratio) is 

ultimately stable or declining. 

As discussed below, the projections in this report indicate that current policy is not sustainable1.

If current policy is left 

unchanged, the projections show the debt-to-GDP ratio will fall about 4 percentage points between 2017 and 2023 before 

commencing a steady rise, exceeding its 2017 level by 2029, exceeding 100 percent by 2037, and reaching 297 percent in 

2092. For comparison, under the 2016 projections, the debt-to-GDP ratio fell about 6 percentage points between 2016 and 

2024 before commencing a steady rise, exceeding its 2016 level by 2030, exceeding 100 percent by 2039, and reaching 252 

percent in 2091.

These conclusions are rooted in the projected trends in receipts, spending, and deficits in the context of current law and 

policy, although, as described in the following pages, there is considerable uncertainty surrounding these projections. The 

projections are on the basis of policies currently in place and are neither forecasts nor predictions. Changes in policy – from 

 1

The projections in this report do not reflect the Tax Cuts and Jobs Act (P.L. 115-97), which was enacted on December 22, 2017. For more information on 

the Tax Cuts and Jobs Act, see Note 25. Subsequent Events.
159 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

sweeping changes such as major reform of the tax system, to more routine developments such as changes in aggregate 

funding for discretionary programs – could have a significant effect on eventual fiscal outcomes.

Current Policy Projections for Primary Deficits

A key determinant of growth in the debt-to-GDP ratio and hence fiscal sustainability is the ratio of the primary deficitto-GDP. The primary deficit is the difference between non-interest spending and receipts, and the primary deficit-to-GDP 

ratio is the primary deficit expressed as a percent of GDP. As shown in Chart 1, the primary deficit-to-GDP ratio spiked 

during 2009 through 2012 due to the 2008-09 financial crisis and the ensuing severe recession, as well as the increased

spending and temporary tax reductions enacted to stimulate the economy and support recovery. These elevated primary 

deficits resulted in a sharp increase in the ratio of debt to GDP, which rose from 39 percent at the end of 2008 to 70 percent at 

the end of 2012. As an economic recovery took hold, the primary deficit ratio fell, averaging 1.9 percent of GDP over 2013 

through 2017. This deficit level was still high enough that the debt held by the public increased further relative to GDP, 

ending 2017 at 76 percent. The primary deficit is projected to shrink further in the next few years as the discretionary 

spending limits called for in the Budget Control Act of 2011 (BCA) remain in effect and the economic recovery boosts tax 

receipts. After 2021, however, increased spending for Social Security and health programs due in part to the continued 

retirement of the baby boom generation is projected to result in increasing primary deficits that reach 1.1 percent of GDP in

2027. The primary deficit peaks at 2.1 percent of GDP in 2037 and 2038, gradually decreases beyond that point as the aging 

of the population continues at a slower pace, and reaches 0.6 percent in 2088 through 2092. 

Trends in the primary deficit are heavily influenced by tax receipts. The receipt share of GDP was markedly depressed 

in 2009 through 2012 because of the recession and tax reductions enacted as part of the 2009 American Recovery and 

Reinvestment Act (ARRA) and the Tax Relief, Unemployment Insurance Reauthorization, and Job Creation Act of 2010. The 

share has increased in subsequent years and was 17.2 percent in 2017, similar to its 30-year average of 17.3 percent due to 

continued economic growth and the higher tax rates enacted under the American Tax Relief Act (ATRA) of 2012. Receipts 

are projected to grow slightly more rapidly than GDP over the projection period as increases in real (i.e., inflation-adjusted) 

incomes cause more taxpayers and a larger share of income to fall into the higher individual income tax brackets. Other 

possible paths for the receipts-to-GDP ratio and the implications for projected debt held by the public are analyzed in the 

“Alternative Scenarios” section. 

On the spending side, the non-interest spending share of GDP is projected to stay at or below its current level of about 

19 percent until 2025, and to then rise gradually to 21.5 percent of GDP in 2037 and 21.8 percent of GDP in 2070 through 

2092. Slight reductions in the non-interest spending share of GDP over the next few years are mostly due to the caps on 

discretionary spending which hold growth in discretionary spending below GDP growth. The subsequent increases are 

principally due to faster growth in Medicare, Medicaid, and Social Security spending (see Chart 1). The aging of the baby 

boom generation over the next 25 years, among other factors, is projected to increase the Social Security, Medicare, and 

Medicaid spending shares of GDP by about 1.1 percentage points, 1.5 percentage points, and 0.5 percentage points, 

respectively. After 2042, the Social Security spending share of GDP remains relatively stable, while the combined Medicare 

and Medicaid spending share of GDP continues to increase, albeit at a slower rate, due to projected increases in health care 

costs.

Current Policy Projections for Debt and Interest Payments

The primary deficit projections in Chart 1, along with projections for interest rates and GDP, are the principal 

determinants of the projections for the debt-to-GDP ratio that are shown in Chart 2. That ratio was 76 percent at the end of 

fiscal year 2017, and under current policy is projected to be 74 percent in 2027, 136 percent in 2047, and 297 percent in 

2092. The continuous rise of the debt-to-GDP ratio after 2023 indicates that current policy is unsustainable.
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 160 

The change in debt held by the public from one year to the next is approximately equal to the budget deficit, the 

difference between total spending and total receipts.2 Total spending is non-interest spending plus interest spending. Chart 3 

shows that the rapid rise in total spending and the unified deficit is almost entirely due to projected interest payments on the 

growing debt. As a percent of GDP, interest spending was 1.4 percent in 2017, and under current policy is projected to reach 

5.1 percent in 2037 and 15.1 percent in 2092. 

 2 The change in debt each year is also affected by certain transactions not included in the budget deficit, such as changes in Treasury’s cash balances and the 

non-budgetary activity of Federal credit financing accounts. These transactions are assumed to hold constant at about 0.4 percent of GDP each year, with the 

same effect on debt as if the primary deficit was higher by that amount.
161 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

Another way of viewing the change in the financial outlook in this year’s report relative to previous years’ reports is in 

terms of the projected debt-to-GDP ratio in 2090, the last year of the projection period in the FY 2015 report. This ratio is 

projected to reach 289 percent in the fiscal year 2017 projections, which compares with 249 percent projected in the fiscal 

year 2016 projections and 223 percent projected in the fiscal year 2015 projections.3

The Cost of Delay in Closing the 75-Year Fiscal Gap

The longer policy action to close the fiscal gap is delayed, the larger the post reform primary surpluses must be to 

achieve the target debt-to-GDP ratio at the end of the 75-year period. This can be illustrated by varying the years in which 

reforms closing the fiscal gap are initiated while holding the target ratio of debt to GDP in 2092 equal to the 2017 ratio (76 

percent). Three reforms are considered, each one beginning in a different year, and each one increasing the primary surplus 

relative to current policy by a fixed percent of GDP starting in the reform year. The analysis shows that the longer policy 

action is delayed, the larger the post-reform primary surplus must be to bring the debt-to-GDP ratio to 76 percent of GDP in 

2092. Future generations are harmed by delays in policy changes because delay necessitates higher primary surpluses during 

their lifetimes, and those higher primary surpluses must be achieved through some combination of lower spending and higher 

taxes and other receipts.

As previously shown in Chart 1, under current policy, primary deficits occur throughout the projection period. Table 1 

shows primary surplus changes necessary to make the debt-to-GDP ratio in 2092 equal to its level in 2017 under each of the 

three policies. If reform begins in 2018, then it is sufficient to raise the primary surplus share of GDP by 2.0 percentage 

points in every year between 2018 and 2092 in order for the debt-to-GDP ratio in 2092 to equal its level in 2017 (76 percent). 

This policy raises the average 2018-2092 primary surplus-to-GDP ratio from -1.2 percent to +0.8 percent.

 3

For further information on changes from the 2015 projections, see the Required Supplementary Information in the 2016 Financial Report.
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 162 

In contrast to a reform that begins immediately, if reform begins in 2028 or 2038, then the primary surpluses must be 

raised by 2.4 percent and 3.0 percent of GDP, respectively, in order for the debt-to-GDP ratio in 2092 to equal 76 percent. 

The difference between the primary surplus increase necessary if reform begins in 2028 and 2038 (2.4 and 3.0 percent of 

GDP, respectively) and the increase necessary if reform begins in 2018 (2.0 percent of GDP) is a measure of the additional 

burden policy delay would impose on future generations. The costs of delay are due to the additional debt that accumulates 

between 2017 and the year reform is initiated, in comparison to the scenario in which reform begins immediately. 

Alternative Scenarios 

The long-run outlook for the budget is extremely uncertain. This section illustrates this inherent uncertainty by 

presenting alternative scenarios for the growth rate of health care costs, interest rates, discretionary spending, and receipts. 

(Not considered here are the effects of alternative assumptions for long-run trends in birth rates, mortality, and immigration.) 

The population is aging rapidly and will continue to do so over the next several decades, which puts pressure on 

programs such as Social Security, Medicare, and Medicaid. A shift in projected fertility, mortality, or immigration rates could 

have important effects on the long-run projections. Higher-than-projected immigration, fertility, or mortality rates would 

improve the long-term fiscal outlook. Conversely, lower-than-projected immigration, fertility, or mortality rates would result 

in deterioration in the long-term fiscal outlook. 

Effect of Changes in Health Care Cost Growth

One of the most important assumptions underlying the projections is the future growth of health care costs. These future 

growth rates – both for health care costs in the economy generally and for federal health care programs such as Medicare, 

Medicaid, and ACA exchange subsidies – are highly uncertain. In particular, enactment of the ACA in 2010 and the 

Medicare Access and CHIP Reauthorization Act (MACRA) in 2015 established cost controls for Medicare hospital and 

physician payments whose long-term effectiveness is still to be demonstrated. The Medicare spending projections in the 

long-term fiscal projections are based on the projections in the 2017 Medicare Trustees’ Report, which assume the ACA and 

MACRA cost control measures will be effective in producing a substantial slowdown in Medicare cost growth. As discussed 

in Note 22—Social Insurance, the Medicare projections are subject to much uncertainty about the ultimate effects of these 

provisions to reduce health care cost growth. For the long-term fiscal projections, that uncertainty also affects the projections 

for Medicaid and exchange subsidies, because the cost per beneficiary in these programs is assumed to grow at the same 

reduced rate as Medicare cost growth per beneficiary. 

As an illustration of the dramatic effect of variations in health care cost growth rates, Table 2 shows the effect on the 

size of reforms necessary to close the fiscal gap of per capita health care cost growth rates that are one percentage point 

higher or two percentage points higher than the growth rates in the base projection, as well as the effect of delaying closure of 

the fiscal gap.4 As indicated earlier, if reform is initiated in 2018, eliminating the fiscal gap requires that the 2018-2092 

primary surplus increase by an average of 2.0 percent of GDP in the base case. However, that figure increases to 5.0 percent 

of GDP if per capita health cost growth is assumed to be 1 percentage point higher, and 10.0 percent of GDP if per capita 

 4 The base case health cost growth rates are derived from the projections in the 2017 Medicare trustees’ report. These projections are summarized and 

discussed in Note 22 (see Table 1B in particular) and the “Medicare Projections” section of the RSI for the SOSI.
163 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

health cost growth is 2 percentage points higher. The cost of delaying reform is also increased if health care cost growth is 

higher, due to the fact that debt accumulates more rapidly during the period of inaction. For example, the lower part of Table 

2 shows that delaying reform initiation from 2018 to 2028 requires that 2028-2092 primary surpluses be higher by an average 

of 0.4 percent of GDP in the base case, 1.0 percent of GDP if per capita health cost growth is 1 percentage point higher, and

1.9 percent of GDP if per capita health cost growth is 2 percentage points higher. The dramatic deterioration of the long-run 

fiscal outlook caused by higher health care cost growth shows the critical importance of managing health care cost growth.

Effects of Changes in Interest Rates

A higher debt-to-GDP ratio is likely to increase the interest rate on Government debt, making it more costly for the 

Government to service its debt. Table 3 displays the effect of several alternative scenarios using different nominal (and real) 

interest rates than assumed in the base case on the size of reforms to close the fiscal gap as well as the effect of delaying 

closure of the fiscal gap. If reform is initiated in 2018, eliminating the fiscal gap requires that the 2018-2092 primary surplus 

increase by an average of 2.0 percent of GDP in the base case, 2.6 percent of GDP if the interest rate is 1.0 percentage point 

higher in every year, and 1.3 percent of GDP if the interest rate is 1.0 percentage point lower in every year. The cost of 

delaying reform is also increased if interest rates are higher, due to the fact that interest paid on debt accumulates more 

rapidly during the period of inaction. For example, the lower part of Table 3 shows that delaying reform initiation from 2018

to 2028 requires that 2028-2092 primary surpluses be higher by an average of 0.4 percent of GDP in the base case, 0.7 

percent of GDP if the interest rate is 1.0 percentage point higher in every year, and 0.2 percent of GDP if the interest rate is 

1.0 percentage point lower in every year. 
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 164 

Effects of Changes in Discretionary Spending Growth

The growth of discretionary spending has a large impact on long-term fiscal sustainability. The current base projection 

for discretionary spending assumes that discretionary spending stays within the statutory caps that apply through 2021, and 

grows with GDP after that point. The implications of two alternative scenarios are shown in Table 4. The first alternative 

scenario allows discretionary spending to grow with inflation and population after 2021 so as to hold discretionary spending 

constant on a real per capita basis. (This growth rate assumption is slower than growth with GDP but is still higher than the

standard 10-year budget baseline assumption, which assumes that discretionary spending grows with inflation but not with 

population.) The second alternative scenario sets discretionary spending from 2018 to 2021 to levels consistent with the path

established prior to the cap reductions required by the failure of the Joint Select Committee on Deficit Reduction, and then 

grows discretionary spending with GDP from that point forward. As shown in Table 4, if discretionary spending grows with 

inflation and population, eliminating the fiscal gap requires that the 2018-2092 primary surplus increase by an average of 0.3 

percent of GDP. If discretionary spending rises to the levels prior to Joint Committee sequestration and then grows with 

GDP, the fiscal gap increases from 2.0 percent of GDP to 2.4 percent of GDP. The cost of delaying reform is greater when

discretionary spending levels are higher. Initiating reforms in 2028 requires that the primary surplus increase by an average of 

0.4 percent of GDP per year in the base case, and increase by 0.5 percent of GDP if discretionary levels return to pre-Joint 

Committee sequestration levels in 2018. If delayed until 2038, the primary surplus must increase by an average of 1.0 percent 

of GDP in the base case, and increase by 1.1 percent of GDP at pre-sequestration levels.
165 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

Effects of Changes in Individual Income Receipt Growth

The growth rate of receipts, specifically individual income taxes, is another key determinant of long-term sustainability. 

The base projections assume growth in individual income taxes over time to account primarily for the slow shift of 

individuals into higher tax brackets due to real wage growth (“real bracket creep”). This assumption approximates the longterm historical growth in individual income taxes relative to wages and salaries and is consistent with current tax code policy 

without change, as future legislation would be required to prevent real bracket creep. As an illustration of the effect of 

variations in individual income tax growth, Table 5 shows the effect on the size of reforms necessary to close the fiscal gap

and the effect of delaying closure of the fiscal gap if long-term receipt growth as a share of wages and salaries is 0.1 

percentage point higher, than the base case, as well as 0.1 percentage point lower than the base case. If reform is initiated in 

2018, eliminating the fiscal gap requires that the 2018-2092 primary surplus increase by an average of 2.0 percent of GDP in 

the base case, only 0.9 percent of GDP if receipt growth is 0.1% higher, but 3.1 percent of GDP if receipt growth is 0.1% 

lower. The cost of delaying reform is also affected if receipt growth assumptions change, much as was the case in the 

previous alternative scenarios. 
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 166 

Fiscal Projections in Context

In this report, a sustainable fiscal policy has been defined as one where the Federal debt-to-GDP ratio is stable or 

declining. However, this definition does not indicate what a sustainable debt-to-GDP ratio might be. Any particular debt ratio 

is not the ultimate goal of fiscal policy. Rather, the goals of fiscal policy are many. They include financing public goods, such 

as infrastructure and government services; promoting a strong and growing economy; and managing the debt so that it is not 

a burden on future generations. These goals are interrelated, and readers should consider how policies intended to affect one 

might depend on or affect another. 

This report shows that current policy is not sustainable. In evaluating policies that could make policy sustainable, note 

that debt may play roles in both facilitating and hindering a healthy economy. For example, Government deficit spending 

supports demand and allows economies to emerge from recessions more quickly. Debt may also be a cost-effective means of 

financing capital investment that promotes future economic growth, which may in turn make future debt levels more 

manageable. However, economic theory also suggests that high levels of debt may contribute to higher interest rates, leading 

to lower private investment and a smaller capital stock which the economy can use to grow. Unfortunately, it is unclear what 

debt-to-GDP ratio would be sufficiently high to produce these negative outcomes, or whether the key concern is the level of 

debt per se, or a trend that shows debt increasing over time. 

While several empirical studies have attempted to discern a definite relationship between debt and economic growth 

from the past experience of countries, the evidence is mixed. One study suggested that as advanced countries’ debt-to-GDP 

ratios exceeded 90 percent it had significant negative consequences for real GDP growth through rising interest rates, 

crowding out of private investment, and reduced capital formation.5 Real GDP growth is generally lower by about 1 percent 

when the countries’ debt-to-GDP ratios are above 90 percent relative to the times when they are below 90 percent.6 However, 

 5 Reinhart, Carmen M., and Kenneth S. Rogoff. 2010. “Growth in a Time of Debt.” American Economic Review, 100(2): 573-78. 6 Errata: “Growth in a Time of Debt,” Carmen M. Reinhart and Kenneth S. Rogoff. Harvard University, 2013.
167 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

after removing sample countries with very high indebtedness – those with debt-to-GDP ratios of more than 120 percent – and 

very low indebtedness – those with debt-to-GDP ratios of less than 30 percent – the negative relationship between growth 

and debt is difficult to determine. Another study reports that differences in average GDP growth in countries with debt-toGDP ratios between 30-60 percent, 60-90 percent, and 90-120 percent cannot be statistically distinguished.7 Some countries 

with high debt-to-GDP ratios have been observed to experience lower-than-average growth, while other countries with 

similarly high debt ratios have continued to enjoy robust growth. Analogously, low debt-to-GDP ratios are no guarantee of 

strong economic growth. Moreover, the direction of causality is unclear. High debt may undermine growth through increased 

interest rates and lower business confidence, or low growth may contribute to high debt by depressed tax revenues and 

increased deficit spending on social safety net programs.

Nevertheless, to put the current and projected debt-to-GDP ratios in context, it is instructive to examine how the United 

States experience compares with that of other countries. The United States Government’s debt as a percentage of GDP is 

relatively large compared with central government debt of other countries, but far from the largest among developed 

countries. Based on historical data as reported by the International Monetary Fund (IMF) for 13 select countries, the debt-toGDP ratio in 2015 ranged from 0.2 percent of GDP to 100.6 percent of GDP.8 The United States is not included in this set of 

statistics, which underscores the difficulty in calculating debt ratios under consistent definitions, but the IMF does report a 

similar debt statistic for the United States as 84 percent of GDP.9 Despite using consistent definitions where available, these 

debt measures are not strictly comparable due to differences in the share of government debt that is debt of the central 

government, how government responsibilities are shared between central and local governments, how current policies 

compare with the past policies that determine the current level of debt, and how robustly each economy grows. 

The historical experience of the U.S. may also provide some perspective. As Chart 4 shows, the debt-to-GDP ratio was 

highest in the 1940s, following the debt buildup during World War II. In the projections in this report, the U.S. would reach

the previous peak debt ratio in 2039. However, the origins of current and future Federal debt are quite different from the 

wartime debt of the 1940s, which limits the pertinence of past experience.

 7 Herndon, Thomas, Michael Ash, and Robert Pollard, “Does High Public Debt Consistently Stifle Economic Growth? A Critique of Reinhart and Rogoff,” 

Cambridge Journal of Economics, 2013. 8 Government Finance Statistics Yearbook, Main Aggregates and Balances, available at https://data.imf.org. Data is for D1 debt liabilities for the central 

government, excluding social security funds. 9

Data is for D1 debt liabilities for the central government, including social security funds. For the few countries where both central government debt ratios 

(excluding and including social security funds) are reported, the values are similar.
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 168 

As the cross-country and historical comparisons suggest, there is a very imperfect relationship between the current level 

of central government debt and the sustainability of overall government policy. Past accrual of debt is certainly important, but 

current policies and their implications for future debt accumulation are as well. 

Conclusion

The past nine years saw debt held by the public nearly double as a share of GDP, bringing it to a level not seen since 

shortly after World War II. The projections in this Financial Report indicate that if policy remains unchanged, the debt-toGDP ratio will hold roughly stable over the next decade but then begin a steady increase that soon far exceeds historical 

levels and continues throughout the projection period and beyond. This implies that current policies are not sustainable and 

must ultimately change. Subject to the important caveat that policy changes are not so abrupt that they slow economic 

growth, the sooner policies are put in place to avert these trends, the smaller are the adjustments necessary to return the 

Nation to a sustainable fiscal path, and the lower the burden of the debt will be to future generations.
169 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

Social Insurance

The social insurance programs consisting of Social Security, Medicare, Railroad Retirement, and Black Lung were

developed to provide income security and health care coverage to citizens under specific circumstances as a responsibility of

the Government. Because taxpayers rely on these programs in their long-term planning, social insurance program information

should indicate whether the current statutory provisions of the programs can be sustained, and more generally what effect

these provisions likely have on the Government’s financial condition. The resources needed to run these programs are raised

through taxes and fees. Eligibility for benefits depends in part on earnings and time worked by the individuals. Social

Security benefits are generally redistributed intentionally toward lower-wage workers (i.e., benefits are progressive). In

addition, each social insurance program has a uniform set of eligibility events and schedules that apply to all participants.

Social Security and Medicare

Social Security

The Federal Old Age and Survivors Insurance (OASI) Trust Fund was established on January 1, 1940, as a separate 

account in the Treasury. The Federal Disability Insurance (DI) Trust Fund, another separate account in the Treasury, was 

established on August 1, 1956. The OASI fund pays cash retirement benefits to eligible retirees and their eligible dependents

and survivors, and the much smaller DI fund pays cash benefits to eligible individuals who are unable to work because of 

medical conditions and certain family members of such eligible individuals. Though the events that trigger benefit payments 

are quite different, both trust funds have the same dedicated financing structure: primarily payroll taxes and income taxes on 

benefits. All financial operations of the OASI and DI Programs are handled through these respective funds. The two funds 

are often referred to as the combined OASDI Trust Funds. At the end of calendar year 2016, OASDI benefits were paid to 

approximately 61 million beneficiaries.

The primary financing source for these two funds are taxes paid by workers, their employers, and individuals with selfemployment income, based on work covered by the OASDI Program. Currently, employers and employees each pay 6.2 

percent of taxable earnings, and the self-employed pay 12.4 percent of taxable earnings. Payroll taxes are levied on wages 

and net earnings from self-employment up to a specified maximum annual amount, referred to as maximum taxable earnings 

($127,200 in 2017), that increases each year with economy-wide average wages.

Legislation passed in 1984 subjected up to half of OASDI benefits to income tax and allocated the revenue to the 

OASDI Trust Funds. In 1993 legislation increased the potentially taxed portion of benefits to 85 percent and allocated the 

additional revenue to the Medicare’s Hospital Insurance Trust Fund.

Medicare

The Medicare Program, created in 1965, has two separate trust funds: the Hospital Insurance (HI) Trust Fund (otherwise 

known as Medicare Part A) and the Supplementary Medical Insurance (SMI) Trust Funds (which consists of the Medicare 

Part B and Part D10 accounts). HI pays for acute inpatient hospital services, hospice, and major alternatives to hospitals 

(skilled nursing services, for example). SMI pays for hospital outpatient services, physician services, and assorted other 

services and products through the Part B account and for prescription drugs through the Part D account. 

Though the events that trigger benefit payments are similar, HI and SMI have different dedicated financing structures. 

Similar to OASDI, HI is financed primarily by payroll contributions. Currently, employers and employees each pay 1.45 

percent of earnings, while self-employed workers pay 2.9 percent of their net earnings. Beginning in 2013, employees and 

self-employed individuals with earnings above certain thresholds pay an additional HI tax of 0.9 percent on earnings above 

those thresholds. Other income to the HI Trust Fund includes a small amount of premium income from voluntary enrollees, a 

portion of the federal income taxes that beneficiaries pay on Social Security benefits (as explained above), and interest 

credited on Treasury securities held in the HI Trust Fund. As is explained in the next section, these Treasury securities and 

related interest have no effect on the consolidated statement of governmentwide finances.

For SMI, direct transfers from the General Fund financed 74 percent and 76 percent of 2017 program costs for Parts B 

and D, respectively. Premiums paid by beneficiaries and, for Part D state transfers, generally financed the remainder of 

 10 Medicare legislation in 2003 created the new Part D account in the SMI Trust Fund to track the finances of a new prescription drug benefit that began in 

2006. As is the case for Medicare Part B, a little more than three-quarters of revenues to the Part D account will come from future transfers from the General 

Fund. Consequently, the nature of the relationship between the SMI Trust Fund and the Federal Budget described below is largely unaffected by the 

presence of the Part D account though the magnitude will be greater.
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 170 

expenditures. For beneficiaries dually eligible for Medicare and Medicaid, states must pay the Part D account a portion of 

their estimated foregone drug costs for this population (referred to as state transfers). As with HI, interest received on 

Treasury securities held in the SMI Trust Fund is credited to the fund. These Treasury securities and related interest have no 

effect on the consolidated statement of governmentwide finances. See Note 22—Social Insurance, for additional information 

on Medicare program financing.

Figure 1

Social Security, Medicare, and Governmentwide Finances

Social Security, Medicare, and Governmentwide Finances

The current and future financial status of the separate OASDI, HI, and SMI Trust Funds is the focus of the Social 

Security and Medicare Trustees’ Reports, a focus that may appropriately be referred to as the “trust fund perspective.” In 

contrast, the Government primarily uses the budget concept as the framework for budgetary analysis and presentation. It 

represents a comprehensive display of all federal activities, regardless of fund type or on- and off-budget status, and has a 

broader focus than the trust fund perspective that may appropriately be referred to as the “budget perspective” or the 

“governmentwide perspective.” Social Security and Medicare are among the largest expenditure categories of the U.S. 

federal budget. This section describes in detail the important relationship between the trust fund perspective and the 

governmentwide perspective.

Figure 1 is a simplified depiction of the interaction of the Social Security and Medicare Trust Funds with the rest of the 

federal budget.11 The boxes on the left show sources of funding, those in the middle represent the trust funds and other 

Government accounts, which include the General Fund into which that funding flows, and the boxes on the right show 

simplified expenditure categories. The figure is intended to illustrate how the various sources of program revenue flow 

through the budget to beneficiaries. The general approach is to group revenues and expenditures that are linked specifically to 

Social Security and/or Medicare separately from those for other government programs.

Each of the trust funds has its own sources and types of revenue. With the exception of General Fund transfers to SMI, 

each of these revenue sources represents revenue from the public that is dedicated specifically for the respective trust fund 

and cannot be used for other purposes. In contrast, personal and corporate income taxes as well as other revenue go into the 

 11 The federal budget encompasses all Government financing and is synonymous with a governmentwide perspective.

Surplus 

Borrowed

Interest 

Credited

Benefit 

Taxes

Interest 

Credited

Surplus 

Borrowed

E

X

P

E

N

D

I

T

U

R

E

S

General

Government

Expenditures,

Net Interest

SMI Trust

Fund 

Account

Other

Government

Accounts

HI, OASDI

Trust Fund 

Accounts

M

E

A

N

S

O

F

F

I

N

A

N

C

I

N

G

Supplementary

Medical Insurance

Premiums and 

State Transfers

Income Taxes,

Benefit Taxes, 

Other Revenues,

Borrowing from

the Public

Payroll Taxes and

Hospital 

Insurance

Premiums

HI, OASDI, SMI

Benefits

Other 

Government 

Transfers
171 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

General Fund and are drawn down for any Government program for which Congress has approved spending.12 The arrows 

from the boxes on the left represent the flow of the revenues into the trust funds and other Government accounts.

The heavy line between the top two boxes in the middle of Figure 1 represents intragovernmental transfers to the SMI 

Trust Fund from other Government accounts. The Medicare SMI Trust Fund is shown separately from the two Social 

Security Trust Funds (OASI and DI) and the Medicare HI Trust Fund to highlight the unique financing of SMI. Currently, 

SMI is the only one of the programs that is funded through transfers from the General Fund, which is part of the other 

Government accounts (the SMI Part D account also receives transfers from the states). The direct transfers finance roughly 

three-fourths of SMI Program expenses. The transfers are automatic; their size depends on how much the program requires, 

not on how much revenue comes into the Treasury. If General Fund revenues become insufficient to cover both the mandated 

transfer to SMI and expenditures on other general Government programs, Treasury has to borrow to make up the difference. 

In the longer run, if transfers to SMI increase beyond growth in general revenues—and as shown in the Medicare Trustees 

Report and Chart 5 later in this section, they are projected to increase significantly in coming years—then Congress must 

either raise taxes, cut other Government spending, reduce SMI benefits, or borrow even more.

The dotted lines between the middle boxes of Figure 1 also represent intragovernmental transfers but those transfers 

arise in the form of “borrowing/lending” between the Government accounts. Interest credited to the trust funds arises when 

the excess of program income over expenses is loaned to the General Fund. The vertical lines labeled Surplus Borrowed

represent these flows from the trust funds to the other Government accounts. These loans reduce the amount the General 

Fund has to borrow from the public to finance a deficit (or likewise increase the amount of debt paid off if there is a surplus). 

However, the General Fund has to credit interest on the loans from the trust fund programs, just as if it borrowed the money 

from the public. The credits lead to future obligations for the General Fund (which is part of the other Government accounts). 

These transactions are indicated in Figure 1 by the vertical arrows labeled Interest Credited. The credits increase trust fund 

income exactly as much as they increase credits (future obligations) in the General Fund. From the governmentwide 

standpoint, at least in an accounting sense, these interest credits are a wash.

When the trust funds get the receipts that they loan to the General Fund, these receipts provide additional authority to 

spend on benefits and other program expenses. The General Fund, in turn, has taken on the obligation of paying interest on 

these loans every year and repaying the principal when trust fund income from other sources falls below expenditures.

How loans from the trust funds to the General Fund and later repayments of those loans affect tax income and 

expenditures of the General Fund is uncertain. Two extreme cases encompass the possibilities. At one extreme, each dollar 

the trust funds loan to the General Fund might reduce borrowing from the public by a dollar at the time the loan is extended,

in which case the General Fund could repay all trust fund loans by borrowing from the public without raising the level of 

public debt above the level that would have occurred in the absence of the loans. At the other extreme, each dollar the trust

funds loan to the General Fund might result in some combination of higher General Fund spending and lower General Fund 

revenues amounting to one dollar at the time the loans are extended, in which case General Fund loan repayments to the trust 

funds might initially be financed with borrowing from the public but must at some point be financed with a combination of 

higher General Fund taxes and lower General Fund spending than would have occurred in the absence of the loans. In this 

latter extreme, trust fund loans result in additional largess (i.e., higher spending and/or lower taxes) in General Fund 

programs at the time the loans are extended, but ultimately that additional largess is financed with additional austerity (i.e., 

lower spending and/or higher taxes) in General Fund programs at later dates. The actual impact of trust fund loans to the 

General Fund and their repayment on General Fund programs is at one of these two extremes or somewhere in between.

Actual dollar amounts roughly corresponding to the flows presented in Figure 1 are shown in Table 1 for fiscal year 

2017. In Table 1, revenues from the public (left side of Figure 1) and expenditures to the public (right side of Figure 1) are 

shown separately from transfers between Government accounts (middle of Figure 1). Note that the transfers ($311.7 billion) 

and interest credits ($96.3 billion) received by the trust funds appear as negative entries under “All Other” and are thus 

offsetting when summed for the total budget column. These two intragovernmental transfers are the key to the differences 

between the trust fund and budget perspectives.

From the governmentwide perspective, only revenues received from the public (and states in the case of Medicare, Part 

D) and expenditures made to the public are important for the final balance. Trust fund revenue from the public consists of 

payroll taxes, benefit taxes, and premiums. For HI, the difference between total expenditures made to the public ($293.3 

billion) and revenues ($289.0 billion) was $4.3 billion in 2017, indicating that HI had a relatively small negative effect on the 

overall budget outcome in that year. For the SMI account, revenues from the public (primarily premiums) fell short of total 

 12 Other programs also have dedicated revenues in the form of taxes and fees (and other forms of receipt) and there are a large number of dedicated trust 

funds in the federal budget. Total trust fund receipts account for about 40 percent of total Government receipts with the Social Security and Medicare Trust 

Funds accounting for about two-thirds of trust fund receipts. For further discussion, see the report issued by the Government Accountability Office, Federal 

Trust and Other Earmarked Funds, GAO-01-199SP, January 2001. In the figure and the discussion that follows, all other programs, including these other 

dedicated trust fund programs, are grouped under “Other Government Accounts” to simplify the description and maintain the focus on Social Security and 

Medicare.
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 172 

expenditures made to the public by $303.6 billion in 2017, which resulted in a net draw on the overall budget balance in that 

year. For OASDI, the difference between total expenditures made to the public ($944.7 billion) and revenues from the public 

($905.4 billion) was $39.3 billion in 2017, indicating that OASDI had a negative effect on the overall budget outcome in that 

year. Combined OASDI payroll and benefit tax revenues were increased by $46.0 billion in fiscal year 2017.

The trust fund perspective is captured in the bottom section of each of the three trust fund columns. For HI, total 

revenues exceeded total expenditures by $5.3 billion in 2017, as shown at the bottom of the first column. For SMI, total 

revenues exceeded total expenditures by $8.3 billion. The total revenue for SMI is $422.4 billion ($110.4 + $312.0), which 

includes $312.0 billion transferred from other Government accounts (General Fund). Transfers to the SMI Program from 

other Government accounts (the General Fund), amounting to about 75 percent of program costs, are obligated under current 

law and, therefore, appropriately viewed as revenue from the trust fund perspective. For OASDI, total revenues of $991.9

billion ($905.4 + $86.5) exceeded total expenditures of $944.7 billion by $47.2 billion. Total revenues for OASDI included 

$86.5 billion in transfers from the General Fund, made up of interest credits of $86.5 billion.
173 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

Table 1

Revenues and Expenditures for Medicare and Social Security Trust Funds and the Total

Federal Budget for the Fiscal Year ended September 30, 2017

Trust Funds

(In billions of dollars) HI SMI OASDI Total All Other Total1

Payroll taxes and other public 

revenues:

Payroll and benefit taxes ..................... 283.9 - 905.4 1,189.3 - 1,189.3

Premiums........................................... 5.1 95.2 - 100.3 - 100.3

Other taxes and fees........................... - 15.2 - 15.2 2,010.1 2,025.3

Total .................................................. 289.0 110.4 905.4 1,304.8 2,010.1 3,314.9

 Total expenditures to the public2 ........ 293.3 414.0 944.7 1,652.0 2,328.6 3,980.6

Net results for budget perspective3..... (4.3) (303.6) (39.3) (347.2) (318.5) (665.7)

Revenues from other Government 

accounts:

Transfers ........................................... 2.1 309.6 - 311.7 (311.7)

Interest credits.................................... 7.4 2.4 86.5 96.3 (96.3)

Total ................................................. 9.5 312.0 86.5 408.0 (408.0)

Net results for trust fund 

perspective3 ........................................ 5.3 8.3 47.2 60.8 N/A N/A

1 This column is the sum of the preceding two columns and shows data for the total federal budget. The figure $665.7 was the total federal 

deficit in fiscal year 2017.

2 The OASDI figure includes $4.5 billion transferred to the Railroad Retirement Board for benefit payments and is therefore an expenditure 

to the public.

3 Net results are computed as revenues less expenditures.

Notes: Totals may not equal the sum of components due to rounding.

 "N/A" indicates not applicable.

Cash Flow Projections

Background

Economic and Demographic Assumptions. The Boards of Trustees13 of the OASDI and Medicare Trust Funds provide in their

annual reports to Congress short-range (10-year) and long-range (75-year) actuarial estimates of each trust fund. Because of

the inherent uncertainty in estimates for 75 years into the future, the Boards use three alternative sets of economic and

demographic assumptions to show a range of possibilities. The economic and demographic assumptions used for the most

recent set of intermediate projections for Social Security and Medicare are shown in the “Social Security” and “Medicare”

sections of Note 22—Social Insurance.

 13 There are six trustees: the Secretaries of the Treasury (managing trustee), Health and Human Services, and Labor; the Commissioner of the Social Security

Administration; and two public trustees who are appointed by the President and confirmed by the Senate for a 4-year term. By law, the public trustees cannot both

be members of the same political party.
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 174 

Worker-to-Beneficiary Ratio. The expenditure projections for both the OASDI and Medicare Programs reflect the aging 

of the large baby-boom generation, born in the years 1946 to 1964, and its ultimate passing. Under the intermediate 

assumptions, cost rates are projected to rise rapidly between 2017 and 2035, primarily because the number of beneficiaries 

rises much more rapidly than the number of covered workers as the baby-boom generation retires. For the most part, current 

workers pay for current benefits. Due to the lower fertility rates of the baby-boom generation as compared to those of their 

parents’ generation, and the expected low fertility rates of all future generations, there is a relatively smaller number of 

persons born after the baby boom who will then finance the retirement of the baby-boom generation. Chart 1 shows that in 

2016, every OASDI beneficiary had 2.8 workers to pay for his or her benefit. In 2030, however, after the last baby boomer 

turns 65, there will be only about 2.3 workers per beneficiary. The projected ratio continues to decline until there are just 2.0 

workers per beneficiary by 2091. A similar demographic pattern confronts the Medicare Program. The number of workers per 

HI beneficiary declines from 3.1 in 2016 to 2.4 in 2030, and continues to decline throughout the projection period to 2091, 

when there are just 2.1 workers per HI beneficiary.

Chart 1—Number of Covered Workers per OASDI Beneficiary

1970-2091
175 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

Social Security Projections

Income and Expenditures. Chart 2 shows historical values and actuarial estimates of combined OASDI annual 

noninterest income and expenditures for 1970-2091. The estimates are for the open-group population of all workers and 

beneficiaries projected to be alive in each year. The expenditure projections in Chart 2 and all subsequent charts assume all

scheduled benefits are paid regardless of whether the income and assets are available to finance them.

Chart 2—OASDI Income (Excluding Interest) and Expenditures

1970-2091

(In billions of dollars)

Annual OASDI cost exceeded noninterest income in 2010 for the first time since 1983. It is projected that cost will 

continue to exceed noninterest income throughout the 75-year valuation period. Projected OASDI cost increases more rapidly 

than projected noninterest income through 2037 primarily because the retirement of the baby-boom generation will increase 

the number of beneficiaries much faster than the number of covered workers increases, as subsequent lower-birth-rate 

generations replace the baby-boom generation at working ages. From 2038 to 2051, the cost rate (the ratio of program cost to 

taxable payroll) generally declines because the aging baby-boom generation is gradually replaced at retirement ages by 

historically low-birth-rate generations. Thereafter, increases in life expectancy cause OASDI cost to increase generally 

relative to noninterest income, but more slowly than between 2010 and 2037. Nevertheless, total trust fund income, including 

interest income, is more than sufficient to cover costs through 2021, so trust fund asset reserves continue to grow. Beginning 

in 2022, cost exceeds total income, and combined OASI and DI Trust Fund reserves diminish until they become depleted in 

2034. After trust fund reserve depletion, continuing income is sufficient to support expenditures at a level of 77 percent of

program cost for the rest of 2034, declining to 73 percent for 2091. To meet all OASDI cost on a timely basis, the combined 

OASI and DI Trust Funds need to redeem Treasury securities. To finance this redemption, the government will increase its 

borrowing from the public, raise taxes (other than OASDI payroll taxes), and/or reduce expenditures (other than OASDI 

cost).
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 176 

Income and Expenditures as a Percent of Taxable Payroll. Chart 3 shows annual noninterest income and expenditures 

expressed as percentages of taxable payroll, commonly referred to as the income rate and cost rate, respectively. Under the 

intermediate assumptions, demographic factors would by themselves cause the projected cost rate to rise rapidly for the next 

two decades before leveling off in about 2035. However, the recent recession temporarily depressed taxable earnings and 

increased the number of beneficiaries, which in turn sharply, but temporarily, increased the cost rate starting in 2009. From a

peak in 2013, the cost rate declines through 2017 under the economic recovery and thereafter returns to a gradually rising 

trend. The projected income rate is stable at about 13 percent throughout the 75-year period.

Chart 3—OASDI Income (Excluding Interest) and Expenditures

as a Percent of Taxable Payroll

1970-2091
177 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

Income and Expenditures as a Percent of GDP. Chart 4 shows estimated annual noninterest income and expenditures, 

expressed as percentages of GDP, which is the total value of goods and services produced in the United States. This 

alternative perspective shows the size of the OASDI Program in relation to the capacity of the national economy to sustain it. 

In calendar year 2016, OASDI cost was about $922 billion, which was about 5.0 percent of GDP. The cost of the program 

(based on current law) rises rapidly to 6.1 by 2037, then declines to 5.9 percent by 2050, and generally increases to 6.1 

percent of GDP by 2091. The rapid increase from 2017 to 2035 is projected to occur as baby boomers become eligible for 

OASDI benefits, lower birth rates result in fewer workers per beneficiary, and beneficiaries continue to live longer. In 2091, 

expenditures are projected to exceed income by approximately 1.54 percent of GDP. As the economy recovers, Social 

Security’s noninterest income, which reflects scheduled tax rates, remains at its current level of about 4.8 percent of GDP 

through 2040. Thereafter, noninterest income as a percent of GDP declines gradually, to about 4.6 percent by 2091, because 

the share of employee compensation provided as non-covered fringe benefits is expected to increase gradually.

Chart 4—OASDI Income (Excluding Interest) and Expenditures

as a Percent of GDP

1970-2091
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 178 

Sensitivity Analysis. Projections of the future financial status of the OASDI program depend on many demographic and 

economic assumptions, including fertility, mortality, net immigration, average wages, inflation, and interest rates on Treasury 

securities. The income will depend on how these factors affect the size and composition of the working population and the 

level and distribution of wages and earnings. Similarly, the cost will depend on how these factors affect the size and 

composition of the beneficiary population and the general level of benefits.

Because perfect long-range projections of these factors are impossible and actual experience is likely to differ from the 

estimated or assumed values of these factors, this section is included to illustrate the sensitivity of the long-range projections 

to changes in assumptions by analyzing six key assumptions: average annual reduction in death rates, total fertility rate, realwage differential, Consumer Price Index (CPI) change, net immigration, and real interest rate. For this analysis, the 

intermediate assumptions are used as the reference point, and each selected assumption is varied individually. The variation 

used for each individual assumption reflects the levels used for that assumption in the low-cost (Alternative I) and high-cost 

(Alternative III) projections. For example, when analyzing sensitivity with respect to variation in real wages, income, and 

expenditure projections using the intermediate assumptions are compared to the outcome when projections are done by 

changing only the real wage assumption to either low-cost or high-cost alternatives.

The low-cost alternative is characterized by assumptions that improve the financial status of the program (relative to the 

intermediate assumption) such as slower improvement in mortality (beneficiaries die younger). In contrast, assumptions 

under the high-cost alternative worsen the financial outlook. All present values are calculated as of January 1, 2017 and are 

based on estimates of income and cost during the 75-year projection period 2017-2091.

Table 2 shows the effects of changing individual assumptions on the present value of estimated OASDI expenditures in 

excess of income (the shortfall of income relative to expenditures in present value terms). The assumptions are shown in 

parentheses. For example, if the annual reduction in death rates were changed from 0.77 percent, the intermediate 

assumption, to 0.42 percent, meaning that people die younger, the shortfall for the period of estimated OASDI income 

relative to cost would decrease to $12,976 billion from $15,357 billion; if the annual reduction were changed to 1.16 percent, 

meaning that people live longer, the shortfall would increase to $17,942 billion.

A higher fertility rate means more workers relative to beneficiaries over the projection period, thereby lowering the 

shortfall relative to the intermediate assumption. Table 2 demonstrates that if the ultimate total fertility rate were changed 

from 2.0 children per woman, the intermediate assumption, to 1.8 children per woman, the shortfall for the period of 

estimated OASDI income relative to cost would increase to $16,683 billion from $15,357 billion; if the ultimate rate were 

changed to 2.2 children per woman, the shortfall would decrease to $13,899 billion.

The annual real-wage differential is the difference between the percentage increases in: (1) the average annual wage in 

OASDI covered employment; and (2) the average annual Consumer Price Index (CPI). Higher real wage growth results in 

faster income growth relative to expenditure growth. As shown in Table 2, if the ultimate real-wage differential were changed 

from 1.20 percentage points, the intermediate assumption, to 0.58 percentage points, the shortfall for the period of estimated 

OASDI income relative to cost would increase to $17,629 billion from $15,357 billion; if the ultimate real-wage differential 

were changed from 1.20 to 1.82 percentage points, the shortfall would decrease to $11,928 billion.

Table 2 demonstrates that if the ultimate annual increase in the CPI were changed from 2.6 percent, the intermediate 

assumption, to 2.0 percent, the shortfall for the period of estimated OASDI income relative to cost would increase to $15,827 

billion from $15,357 billion; if the ultimate annual increase in the CPI were changed to 3.2 percent, the shortfall would 

decrease to $14,876 billion. The seemingly counter-intuitive result that higher CPI increases result in decreased shortfalls 

(and vice versa) is explained by the time lag between the effects of the CPI changes on taxable payroll and on benefit 

payments. The effect on taxable payroll due to a greater increase in average wages is experienced immediately, while the 

effect on benefits is experienced with a lag of about one year. For this reason, larger increases in the CPI cause earnings and 

income to increase sooner and, therefore, by more each year, than benefits and cost.

Immigration generally occurs at relatively young adult ages, so there is no significant effect on beneficiaries (and, 

therefore, on benefits) in the early years of the projection period, but the effect on the numbers of workers (and, therefore, on 

payroll tax income) is immediate. Therefore, even in the early years, the present values, year by year, are generally higher (less 

negative in later years) for higher net annual immigration. However, the increased payroll taxes for a given year are eventually 

offset by benefits paid in that year to earlier immigrant cohorts. Therefore, the present values based on the three assumptions 

about net annual immigration become more similar at the end of the projection period. Table 2 shows that if the intermediate 

immigration assumptions were changed so that the average level for the 75-year period decreased from 1,286,000 persons to 

961,000 persons, the present value of the shortfall for the period of estimated OASDI income relative to cost would increase to 

$16,181 billion from $15,357 billion. If, instead, the immigration assumptions were changed so that net annual immigration 

would be expected to average 1,623,000 persons, the present value of the shortfall would decrease to $14,620 billion.

Finally, Table 2 shows the sensitivity of the shortfall to variations in the real interest rate or, in present value 

terminology, the sensitivity to alternative discount rates assuming a higher discount rate results in a lower present value. If 

the ultimate real interest rate were changed from 2.7 percent, the intermediate assumption, to 2.2 percent, the shortfall for the 
179 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

period of estimated OASDI income relative to cost, when measured in present-value terms would increase to $18,200 billion 

from $15,357 billion; if the ultimate annual real interest rate were changed to 3.2 percent, the present-value shortfall would 

decrease to $13,089 billion.

Table 2

Present Values of Estimated OASDI Expenditures in Excess of Income

Under Various Assumptions, 2017-2091

(Dollar values in billions; values of assumptions shown in parentheses)

Financing Shortfall Range

Assumption Low Intermediate High

Average annual reduction in death rates .................................... 12,976 15,357 17,942 

(0.42) (0.77) (1.16)

Total fertility rate....................................................................... 13,899 15,357 16,683 

(2.2) (2.0) (1.8)

Real wage differential ............................................................... 11,928 15,357 17,629 

(1.82) (1.20) (0.58)

CPI change.............................................................................. 14,876 15,357 15,827 

(3.2) (2.6) (2.0)

Net immigration1 ....................................................................... 14,620 15,357 16,181 

(1,623,000) (1,286,000) (961,000)

Real interest rate...................................................................... 13,089 15,357 18,200 

(3.2) (2.7) (2.2)

1 Amounts represent the average annual net immigration over the 75-year projection period.

Source: 2017 OASDI Trustees Report and SSA.

Medicare Projections

Medicare Legislation. The projections in this year’s report are based on current law, with one exception related to the

projected depletion of the Medicare Part A Trust Fund, and include the enactment of the Medicare Access and CHIP

Reauthorization Act of 2015 (MACRA; P.L. 114-10), which repealed the sustainable growth rate (SGR) formula that set

physician fee schedule payments. While the physician payment updates and new incentives put in place by MACRA avoid

the significant short-range physician payment issues that would have resulted from the SGR system approach, they

nevertheless raise important long-range concerns. In particular, additional payments of $500 million per year for one group of

physicians and 5-percent annual bonuses for another group are scheduled to expire in 2025, resulting in a significant one-time

payment reduction for most physicians. In addition, the law specifies the physician payment update amounts for all years in

the future, and these amounts do not vary based on underlying economic conditions, nor are they expected to keep pace with

the average rate of physician cost increases. The specified rate updates could be an issue in years when levels of inflation are

high and would be problematic when the cumulative gap between the price updates and physician costs becomes large. The

gap will continue to widen throughout the projection, and it is estimated that physician payment rates under current law will

be lower than they would have been under the SGR formula by 2048. Absent a change in the delivery system or level of
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 180 

update by subsequent legislation, access to Medicare-participating physicians may become a significant issue in the long term

under current law.

Incorporated in these projections is the sequestration of non-salary Medicare expenditures as required by the following

laws:

• Budget Control Act of 2011 (P.L. 112-25, enacted on August 2, 2011), as amended by the American Taxpayer Relief

Act of 2012 (P.L. 112-240, enacted on January 2, 2013);

• Continuing Appropriations Resolution, 2014 (P.L. 113-67, enacted on December 26, 2013);

• Sections 1 and 3 of P.L. 113-82, enacted on February 15, 2014;

• Protecting Access to Medicare Act of 2014 (P.L. 113-93, enacted on April 1, 2014); and

• Bipartisan Budget Act of 2015 (P.L. 114-74, enacted on November 2, 2015).

The sequestration reduces benefit payments by 2 percent from April 1, 2013 through March 31, 2025, and by 4 percent

from April 1, 2025 through September 30, 2025. Due to sequestration, non-salary administrative expenses are reduced by an

estimated 5 percent from March 1, 2013 through September 30, 2025.

These projections also incorporate the effects of the Patient Protection and Affordable Care Act, as amended by the

Health Care and Education Reconciliation Act of 2010. This legislation, referred to collectively as the Affordable Care Act or

ACA, contains roughly 165 provisions affecting the Medicare program by reducing costs, increasing revenues, improving

benefits, combating fraud and abuse, and initiating a major program of research and development to identify alternative

provider payment mechanisms, health care delivery systems, and other changes intended to improve the quality of health care

and reduce costs.

The 2017 Medicare Trustees’ Report warns that the financial projections for the Medicare program reflect substantial, 

but very uncertain, cost savings deriving from provisions of the ACA and MACRA that lower increases in Medicare payment 

rates to most categories of health care providers. Without fundamental change in the current delivery system, these 

adjustments would probably not be viable indefinitely. It is conceivable that providers could improve their productivity,

reduce wasteful expenditures, and take other steps to keep their cost growth within the bounds imposed by the Medicare price

limitations. For such efforts to be successful in the long range, however, providers would have to generate and sustain

unprecedented levels of productivity gains—a very challenging and uncertain prospect. In view of the factors described 

above, it is important to note that Medicare’s actual future costs are highly uncertain for reasons apart from the inherent

challenges in projecting health care cost growth over time.

Changes in Projection Methods. The projections in this year’s report, with one exception related to Part A, are based on 

current law; that is, it is assumed that laws on the books will be implemented and adhered to with respect to scheduled taxes, 

premium revenues, and payments to providers and health plans. The one exception is that the projections disregard payment 

reductions that would result from the projected depletion of the Medicare Hospital Insurance (HI) Trust Fund. Under current 

law, payments would be reduced to levels that could be covered by incoming tax and premium revenues when the HI Trust 

Fund was depleted.
181 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

Total Medicare. Chart 5 shows expenditures and current-law noninterest revenue sources for HI and SMI combined as a 

percentage of GDP. For 2017, total Medicare expenditures are expected to exceed noninterest revenue, but by only a very 

small margin, and modest surpluses are projected to continue for 2018 through 2020. Deficits are expected to return in 2021 

and to remain for the balance of the projection, as expenditures grow faster than revenue. Under the ACA, beginning in 2013 

the HI Trust Fund receives an additional 0.9 percent tax on earnings in excess of $250,000 for joint tax return filers and 

$200,000 for individual tax return filers. As a result of this provision, it is projected that payroll taxes will grow slightly faster 

than GDP. HI revenue from income taxes on Social Security benefits will gradually increase as a share of GDP as the share 

of benefits subject to such taxes increases. Beginning in 2009, as HI payroll tax receipts declined due to the recession and 

general revenue transfers increased, the latter income source became the largest single source of income to the Medicare 

program as a whole. General revenue transfers to the Part B account increased significantly in 2016, as required by the 

Bipartisan Budget Act (BBA) of 2015 to compensate for premium revenue that was not received in 2016 due to the hold 

harmless provision, which limited the Part B premium increase for a majority of beneficiaries. After decreasing from 2016 to 

2017, general revenues will gradually increase as a share of Medicare financing from 2017 through 2029 and grow to about 

48 percent by 2030, stabilizing thereafter. SMI premiums will also grow in proportion to general revenue transfers, placing a 

growing burden on beneficiaries. For high-income enrollees, SMI premiums began to increase more rapidly in 2011 and will 

continue to do so as a result of ACA provisions that increase Part D premiums and freeze the income thresholds used to 

determine Part B and Part D income-related premiums for 2011-2019. MACRA contains further provisions that affect the 

income-related premium thresholds and that will result in more premium income to Part B and Part D. SMI general revenues 

currently equal 1.5 percent of GDP and will increase to an estimated 2.7 percent in 2091 under current law.

Chart 5—Total Medicare (HI and SMI) Expenditures and Noninterest Income

as a Percent of GDP

1970-2091
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 182 

Medicare, Part A (Hospital Insurance)─ Income and Expenditures. Chart 6 shows historical and actuarial estimates of 

HI annual income (excluding interest) and expenditures for 1970-2091 in nominal dollars. The estimates are for the opengroup population.

Chart 6—Medicare Part A Income (Excluding Interest) and Expenditures

1970-2091

(In billions of dollars)
183 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

Medicare, Part A Income and Expenditures as a Percent of Taxable Payroll. Chart 7 illustrates income (excluding 

interest) and expenditures as a percentage of taxable payroll over the next 75 years. The projected HI cost rates shown in the 

2017 report are lower than those from the 2016 report for all years largely due to lower utilization assumptions for inpatient 

hospital services, which were primarily based on lower-than-expected utilization in 2016. Since the standard HI payroll tax 

rates are not scheduled to change in the future under present law, most payroll tax income as a percentage of taxable payroll

is estimated to remain constant at 2.90 percent. In addition, starting in 2013, high-income workers pay an additional 0.9 

percent of their earnings above $200,000 (for single workers) or $250,000 (for married couples filing joint income tax 

returns). Because these income thresholds are not indexed, over time an increasing proportion of workers will become subject 

to the additional HI tax rate, and consequently total HI payroll tax revenues will increase steadily as a percentage of taxable 

payroll. Income from taxation of benefits will also increase as a greater proportion of Social Security beneficiaries become 

subject to such taxation, since the income thresholds determining taxable benefits are not indexed for price inflation. Thus, as 

Chart 7 shows the income rate is expected to gradually increase over current levels. As indicated in the chart, the cost rate is 

projected to decline through 2018, largely due to (i) expenditure growth that was constrained in part by low utilization and 

low payment updates, and (ii) a rebound of taxable payroll growth from 2007-2009 recession levels. After 2018 the cost rate 

is projected to rise primarily due to retirements of those in the baby-boom generation and partly due to a projected return to 

modest health services cost growth. This cost rate increase is moderated by the accumulating effect of the productivity 

adjustments to provider price updates, which are estimated to reduce annual HI per capita cost growth by an average of 0.8 

percent through 2026 and 1.1 percent thereafter. The percentage of expenditures covered by noninterest income is projected 

to decrease from 88 percent in 2029, the year the HI Trust Fund is projected to be depleted, to 81 percent in 2041, and then to 

increase to about 88 percent again by the end of the projection period.

Chart 7—Medicare Part A Income (Excluding Interest) and Expenditures

as a Percent of Taxable Payroll

1970-2091
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 184 

Medicare, Part A Income and Expenditures as a Percent of GDP. Chart 8 shows estimated annual noninterest income 

and expenditures, expressed as percentages of GDP, the total value of goods and services produced in the United States. This 

alternative perspective shows the size of the HI Program in relation to the capacity of the national economy to sustain it. 

Under the intermediate assumptions, the HI balance is positive for 2017 through 2020, and then negative thereafter. Annual 

deficits increase through 2045, and then generally decline thereafter. The gap between expenditure and income shares of 

GDP widens to 0.42 percent in 2045, and then commences a slight decline, reaching 0.26 percent of GDP in 2091.

Chart 8—Medicare Part A Income (Excluding Interest) and Expenditures

as a Percent of GDP

1970-2091
185 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

Medicare, Parts B and D (Supplementary Medical Insurance). Chart 9 shows historical and actuarial estimates of 

Medicare Part B and Part D premiums (and Part D state transfers) as well as expenditures for each of the next 75 years, in 

dollars. Beneficiary premiums and general revenue contributions for both Part B and Part D are established annually to cover 

the expected costs for the upcoming year. Should actual costs exceed those anticipated when the financing is determined, 

future financing rates can include adjustments to recover the shortfall. Likewise, should actual costs be less than those 

anticipated, the savings would result in lower future financing rates. The gap between program expenditures and revenues 

from premiums, drug fees, and state transfers grows throughout the projection period. This gap will need to be filled with 

general revenue transfers.

Chart 9—Medicare Part B and Part D Premium and State

Transfer Income and Expenditures

1970-2091

(In billions of dollars)
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 186 

Medicare Part B and Part D Premium as well as State Transfer Income and Expenditures as a Percent of GDP. Chart 

10 shows expenditures for the Supplementary Medical Insurance Program over the next 75 years expressed as a percentage of 

GDP, providing a perspective on the size of the SMI Program in relation to the capacity of the national economy to sustain it. 

SMI costs are projected to continue to outpace growth in GDP but at a slower rate compared to the last 10 years. Total SMI 

expenditures amounted to 2.1 percent of GDP in 2016 and are projected to grow to about 3.5 percent of GDP within 25 years 

and to 3.7 percent by the end of the projection period. The relatively high growth during the period 2017-2026 is due to the 

continuing retirement of the baby-boom generation, further economic recovery, and modest increases in cost trends. Growth 

rates are projected to decline during the 2027-2041 period primarily as a result of a deceleration in beneficiary population 

growth. For the last 50 years of the projection period, cost growth moderates further due to the continued deceleration in 

beneficiary population growth and lower health care cost growth rate assumptions. To match the faster growth rates for SMI 

expenditures, beneficiary premiums, along with general revenue contributions, would increase more rapidly than GDP over 

time but at a slower rate compared to the last 10 years. Average per beneficiary costs for Part B and Part D benefits are 

projected to increase after 2016 by about 4.2 percent annually. The associated beneficiary premiums—and general revenue 

financing—would increase by approximately the same rate.

Chart 10—Medicare Part B and Part D Premium and State Transfer

Income and Expenditures as a Percent of GDP

1970-2091

Medicare Sensitivity Analysis. This section illustrates the sensitivity of long-range cost and income estimates for the 

Medicare Program to changes in selected individual assumptions. As with the OASDI analysis, the intermediate assumption 

is used as a reference point, and each selected assumption is varied individually to produce three scenarios. The variation 

used for each individual assumption reflects the levels used for that assumption in the low-cost and high-cost projections (see 

description of sensitivity analysis for OASDI). All present values are calculated as of January 1, 2017 and are based on 

estimates of income and expenditures during the 75-year projection period.

Table 3 shows the net present value of cash flow during the 75-year projection period under three alternative 

assumptions for the annual growth rate in the aggregate cost of providing covered health care services to beneficiaries. These 

assumptions are that the ultimate annual growth rate in such costs, relative to taxable payroll, will be 1 percent slower than 

the intermediate assumptions, the same as the intermediate assumptions, and 1 percent faster than the intermediate 

assumptions. The assumptions are shown in parentheses. The table demonstrates that if the ultimate growth rate assumption 

is 1 percentage point lower than the intermediate assumption, the deficit decreases by $7,194 billion. On the other hand, if the 

ultimate growth rate assumption is 1 percentage point higher than the intermediate assumption, the deficit increases 
187 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

substantially by $11,496 billion. This assumption has a dramatic impact on projected HI cash flow. The present value of the 

net cash flow under the ultimate growth rate assumption of 1 percentage point lower than the intermediate assumption 

actually becomes a surplus due to the improved financial outlook for the HI trust fund as a result of the ACA. Several factors, 

such as the utilization of services by beneficiaries or the relative complexity of services provided, can affect costs without 

affecting tax income. As the table indicates, the financial status of the HI Trust Fund is extremely sensitive to the relative 

growth rates for health care service costs.

The fertility rate assumption has a substantial impact on projected HI cash flows. As demonstrated by Table 3, for an 

increase of 0.2 in the assumed ultimate fertility rate, the projected present value of the HI deficit decreases by approximately 

$537 billion, and for a decrease of 0.2 in the assumed ultimate fertility rate, the projected present value of the HI deficit 

increases by approximately $486 billion. Under the higher fertility rate assumptions, there will be additional workers in the

labor force after 20 years, and many will become subject to the additional HI tax, thereby lowering the deficit proportionately 

more on a present-value-dollar basis. On the other hand, under the lower fertility rate assumptions, there will be fewer 

workers in the workforce with a smaller number subject to the additional tax, in turn raising the HI deficit. It is important to 

point out that if a longer projection period were used, the impact of a fertility rate change would be more pronounced.

Relative to the intermediate case, for an increase in the ultimate real-wage differential assumption of 0.6 percentage 

points, the deficit—expressed in present-value dollars—decreases by approximately $2,397 billion. Conversely, for a 

decrease in the ultimate real-wage differential assumption of 0.6 percentage points, the deficit increases by about $1,429 

billion. When expressed in present-value dollars, faster real-wage growth results in smaller HI cash flow deficits. A higher 

real-wage differential immediately increases both HI expenditures for health care and wages for all workers. There is a full 

effect on wages and payroll taxes, but the effect on benefits is only partial, since not all health care costs are wage-related. In 

practice, faster real-wage growth always improves the financial status of the HI trust fund, regardless of whether there is a 

small or large imbalance between income and expenditures.

As Table 3 indicates, the change in CPI inflation has an impact when the cash flow is expressed as present values. If the 

ultimate CPI-increase assumption is changed from 2.6 percent, the intermediate assumption, to 3.2 percent, the deficit 

decreases by $1,038 billion. On the other hand, if the ultimate CPI-increase is changed from 2.6 percent, the intermediate 

assumption, to 2.0 percent, the deficit increases by $1,320 billion. The projected present values of HI cash flow are relatively 

insensitive to the assumed level of general price inflation because price inflation has about the same proportionate effect on 

income as it does on costs. In present value terms, a smaller deficit results under high-inflation conditions because the present 

values of HI expenditures are not significantly different under the various CPI scenarios, but under high-inflation conditions 

the present value of HI income increases as more people become subject to the additional 0.9-percent HI tax rate required by 

the ACA for workers with earnings above $200,000 or $250,000 (for single and joint income-tax filers, respectively). Since 

the thresholds are not indexed, additional workers become subject to the additional tax more quickly under conditions of 

faster inflation, and vice versa.

Higher net immigration results in smaller HI cash flow deficits. Since immigration tends to occur most often among 

people at working ages, who work and pay taxes into the HI system, a change in the net immigration assumption affects 

revenues from payroll taxes almost immediately. However, the impact on expenditures occurs later as those individuals age 

and become beneficiaries.

Table 3 also shows that the present value of net HI expenditures is approximately 15 percent lower if the real interest 

rate is 3.2 percent rather than 2.7 percent, and approximately 19 percent higher if the real interest rate is 2.2 percent rather 

than 2.7 percent.
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 188 

Table 3

Present Values of Estimated Medicare Part A Expenditures in Excess of Income

Under Various Assumptions, 2017-2091

(Dollar values in billions; values of assumptions shown in parentheses)

Financing Shortfall Range

Assumption1 Low Intermediate High

Average annual growth in health costs2 ..................................... (3,662) 3,532 15,028 

(2.7) (3.7) (4.7)

Total fertility rate3 ..................................................................... 2,995 3,532 4,018 

(2.2) (2.0) (1.8)

Real wage differential .............................................................. 1,135 3,532 4,961 

(1.8) (1.2) (0.6)

CPI change ............................................................................. 2,494 3,532 4,852 

(3.2) (2.6) (2.0)

Net immigration4....................................................................... 3,240 3,532 3,879 

(1,623,000) (1,286,000) (961,000)

Real interest rate ..................................................................... 3,006 3,532 4,197 

(3.2) (2.7) (2.2)

1 The sensitivity of the projected HI net cash flow to variations in future mortality rates also is of interest. At this time, however,

relatively little is known about the relationship between improvements in life expectancy and the associated changes in health 

status and per beneficiary health expenditures. As a result, it is not possible at present to prepare meaningful estimates of the 

Part A, mortality sensitivity.

2 Annual growth rate is the aggregate cost of providing covered health care services to beneficiaries. The low-cost and high-cost 

alternatives assume that costs increase 1 percent slower or faster, respectively, than the intermediate assumption, relative to 

growth in taxable payroll.

3 The total fertility rate for any year is the average number of children who would be born to a woman in her lifetime if she were 

to experience the birth rates by age observed in, or assumed for, the selected year and if she were to survive the entire 

childbearing period.

4 Amount represents the average annual net immigration over the 75-year projection period.

Source: Center for Medicare & Medicaid Services

Table 4 shows the effects of various assumptions about the growth in health care costs on the present value of estimated

SMI (Medicare Parts B and D) expenditures in excess of income. As with HI, net SMI expenditures are very sensitive to

changes in the health care cost growth assumption. For the low-cost alternative, the slower assumed growth in health costs

reduces the governmentwide resources needed for Part B from $22,392 billion to $16,220 billion and in Part D from $7,618

billion to $5,388 billion, about a 28 percent and 29 percent difference for Part B and Part D, respectively. The high-cost

assumption increases governmentwide resources needed to $32,019 billion for Part B and to $11,170 billion for Part D, about

a 43 percent and a 47 percent difference for Part B and Part D, respectively.
189 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

Table 4

Present Values of Estimated Medicare Parts B and D Future Expenditures 

Less Premium Income and State Transfers Under Three Health Care Cost

Growth Assumptions, 2017-2091

(In billions of dollars)

Governmentwide Resources Needed

Low Intermediate High

Medicare Program1 (3.3) (4.3) (5.3)

Part B........................................................................................... 16,220 22,392 32,019

Part D........................................................................................... 5,388 7,618 11,170

1 Annual growth rate is the aggregate cost of providing covered health care services to beneficiaries. The low and high scenarios

assume that costs increase one percent slower or faster, respectively, than the intermediate assumption.

Source: Centers for Medicare & Medicaid Services

Sustainability of Social Security and Medicare

75-Year Horizon

According to the 2017 Medicare Trustees Report, the HI Trust Fund is projected to remain solvent until 2029 and,

according to the 2016 Social Security Trustees Report, the OASI and DI Trust Funds are projected to have sufficient asset

reserves to pay full benefits on time until 2035 and 2028, respectively. In each case, some general revenues must be used to

satisfy the authorization of full benefit payments until the year of trust fund depletion. This occurs when the trust fund

interest income and balances accumulated during prior years are needed to pay benefits, which leads to a transfer from

general revenues to the trust funds. Moreover, under current law, General Fund transfers to the SMI Trust Fund will occur

into the indefinite future and will continue to grow with the growth in health care expenditures.

The potential magnitude of future financial obligations under these three social insurance programs is, therefore,

important from a budget perspective as well as for understanding generally the growing resource demands of the programs on

the economy. A common way to present future cash flows is in terms of their present value. This approach recognizes that a

dollar paid or collected next year is worth less than a dollar today because a dollar today could be saved and earn a year’s

worth of interest. From the 75-year budget perspective, the present value of the additional resources that would be necessary

to meet projected expenditures, for the three programs combined, is $48.9 trillion. To put this figure in perspective, it would

represent 3.9 percent of the present value of projected GDP over the same period ($1,250 trillion). These resource needs

would be in addition to the payroll taxes, benefit taxes, and premium payments. Asset redemptions and SMI general revenue

transfers represent formal budget commitments, but no provision exists for covering the HI and OASDI Trust Fund deficits

once assets are depleted.

Table 5 shows the magnitudes of the primary expenditures and sources of financing for the three trust funds computed

on an open-group basis for the next 75 years and expressed in present values. The data are consistent with the Statements of

Social Insurance included in the principal financial statements. For HI, revenues from the public are projected to fall short of

total expenditures by $3,532 billion in present value terms which is the additional amount needed in order to pay scheduled

benefits over the next 75 years.14 From the trust fund perspective, the amount needed is $3,333 billion in present value after

subtracting the value of the existing trust fund balances (an asset to the trust fund account but an intragovernmental transfer

to the overall budget). For SMI, revenues from the public for Part B and D combined are estimated to be $30,010 billion less

than total expenditures for the two accounts, an amount that, from a budget perspective, will be needed to keep the SMI

program solvent for the next 75 years. From the trust fund perspective, however, the present values of total revenues and total

expenditures for the SMI Program are roughly equal due to the annual adjustment of revenue from other Government

 14 Interest income is not a factor in this table as dollar amounts are in present value terms.
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 190 

accounts to meet program costs.15 For OASDI, projected revenues from the public fall short of total expenditures by $15,357

billion in present value dollars, and by $12,509 billion from the trust fund perspective.

From the governmentwide perspective, the present value of the total resources needed for the Social Security and

Medicare Programs over and above current-law funding sources (payroll taxes, benefit taxes, and premium payments from

the public) is $48,898 billion. From the trust fund perspective, which counts the trust funds ($3,143 billion in present value)

and the general revenue transfers to the SMI Program ($30,010 billion in present value) as dedicated funding sources,

additional resources needed to fund the programs are $15,745 billion in present value.

Table 5

Present Values of Costs Less Revenues of 75-Year Open Group Obligations

HI, SMI, and OASDI

SMI

(In billions of dollars, as of January 1, 2017) HI Part B Part D OASDI Total

Revenues from the public:

Taxes ..................................................................... 21,738 - - 62,131 83,869

Premiums and state transfers................................... - 8,391 3,138 - 11,529

Total....................................................................... 21,738 8,391 3,138 62,131 95,398

Total costs to the public ........................................... 25,270 30,783 10,756 77,487 144,296

Net results - budget perspective1 .............................. 3,532 22,392 7,618 15,357 48,898

Revenues from other Government accounts ............. - 22,392 7,618 - 30,010

Trust fund balances as of 1/1/2017........................... 199 88 8 2,848 3,143

Net results - trust fund perspective1 .......................... 3,333 (88) (8) 12,509 15,745

1

Net results are computed as costs less revenues and trust fund balances. Negative values are indicative of surpluses.

Note: Totals may not equal the sum of components due to rounding.

Source: 2017 OASDI and Medicare Trustees' Reports

Infinite Horizon

The 75-year horizon represented in Table 5 is consistent with the primary focus of the Social Security and Medicare

Trustees’ Reports. For the OASDI Program, for example, an additional $15.4 trillion in present value will be needed above

currently scheduled taxes to pay for scheduled benefits ($12.5 trillion from the trust fund perspective). Experts have noted

that limiting the projections to 75 years understates the magnitude of the long-range unfunded obligations because summary

measures (such as the actuarial balance and open-group unfunded obligations) reflect the full amount of taxes paid by the

next two or three generations of workers, but not the full amount of their benefits. One approach to addressing the limitations

of 75-year summary measures is to extend the projection horizon indefinitely, so that the overall results reflect the projected

costs and revenues after the first 75 years. Such extended projections can also help indicate whether the financial imbalance

would be improving or continuing to worsen beyond the normal 75-year period. The open-group infinite horizon net

obligation is the present value of all expected future program outlays less the present value of all expected future program tax

and premium revenues. Such a measure is provided in Table 6 for the three trust funds represented in Table 5.

From the budget or governmentwide perspective, the values in line 1 plus the values in line 4 of Table 6 represent the

value of resources needed to finance each of the programs into the infinite future. The sums are shown in the last line of the

table (also equivalent to adding the values in the second and fifth lines). The total resources needed for all the programs sums

to $93.8 trillion in present value terms. This need can be satisfied only through increased borrowing, higher taxes, reduced

program spending, or some combination.

 15 The SMI Trust Fund has $96 billion of existing assets.
191 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

The second line shows the value of the trust fund at the beginning of 2017. For the HI and OASDI Programs this

represents, from the trust fund perspective, the extent to which the programs are funded. From that perspective, when the

trust fund is subtracted, an additional $34.2 trillion is needed to sustain the OASDI program into the infinite future, while the

HI program reflects a projected surplus of $3.6 trillion over the infinite horizon. However, looking just at present values

ignores timing differences in the underlying projected cash flows; the HI Trust Fund is projected to remain solvent only until

2029. As described above, from the trust fund perspective, the SMI Program is fully funded; from a governmentwide basis,

the substantial gap that exists between premiums, state transfer revenue, and program expenditures in the SMI Program

($41.3 trillion and $18.7 trillion for Parts B and D, respectively) represents future general revenue obligations of the federal

budget.

In comparison to the analogous 75-year number in Table 5, extending the calculations beyond 2091, captures the full

lifetime benefits, plus taxes and premiums of all current and future participants. The shorter horizon understates the total

financial needs by capturing relatively more of the revenues from current and future workers and not capturing all of the

benefits that are scheduled to be paid to them.

Table 6

Present Values of Costs Less Tax, Premium and State Transfer Revenue

through the Infinite Horizon, HI, SMI, OASDI

SMI

(in trillions of dollars as of January 1, 2017) HI Part B Part D OASDI Total

Present value of future costs less future taxes, 

premiums, and state transfers for current 

participants ............................................................. 10.6 18.7 5.6 33.6 68.5

Less current trust fund balance ................................ 0.2 0.1 - 2.8 3.1

Equals net obligations for past and current

participants ............................................................. 10.4 18.6 5.6 30.8 65.4

Plus net obligations for future participants ................. (13.9) 22.7 13.1 3.4 25.3

Equals net obligations through the infinite future for 

all participants ......................................................... (3.6) 41.3 18.7 34.2 90.6

Present values of future costs less the present 

values of future income over the infinite horizon ........ (3.3) 41.4 18.7 37.0 93.8

Note: Totals may not equal the sum of components due to rounding.

Source: 2017 OASDI and Medicare Trustees' Reports
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 192 

Railroad Retirement, Black Lung, and Unemployment Insurance

Railroad Retirement

The Railroad Retirement Board (RRB) was created in the 1930s to establish a retirement benefit program for the

Nation’s railroad workers. As the Social Security Program legislated in 1935 would not give railroad workers credit for

service performed prior to 1937, legislation was enacted in 1934, 1935, and 1937 (collectively the Railroad Retirement Acts

of the 1930s) to establish a railroad retirement system separate from the Social Security Program.

As was discussed previously in this report, railroad retirement pays full retirement annuities at age 60 to railroad

workers with 30 years of service. The program pays disability annuities based on total or occupational disability. It also pays

annuities to spouses, divorced spouses, widow(er)s, remarried widow(er)s, surviving divorced spouses, children, and parents

of deceased railroad workers. Medicare covers qualified railroad retirement beneficiaries in the same way as it does Social

Security beneficiaries.

Payroll taxes paid by railroad employers and their employees provide a primary source of income for the Railroad

Retirement and Survivors’ Benefit Program. Other sources of program income include: the RRB-SSA-CMS Financial

Interchanges with the Social Security and Medicare Trust Funds, earnings on investments, federal income taxes on railroad

retirement benefits, and appropriations.

For further detail related to Railroad Retirement Program financing and actuarial assumptions, see Note 22—Social

Insurance.

Cash Flow Projections

Income and Expenditures. Railroad retirement cash flow projections are based on the intermediate set of assumptions

used in the RRB’s actuarial valuation of the program. The estimates are for the open-group population, which includes all

persons projected to participate in the Railroad Retirement Program as railroad workers or beneficiaries during the period.

Thus, the estimates include payments from, and on behalf of, those who will be employed by the railroads during the period

as well as those already employed at the beginning of the period. They also include expenditures made to, and on behalf of,

such workers during that period. Estimated railroad retirement expenditures are expected to exceed estimated income

(excluding interest and financial interchange income), in dollars, for the entire projection period (2017-2091).

Income and Expenditures as a Percent of Taxable Payroll. Estimated expenditures as a percentage of Tier II taxable

payroll range between 68 percent and 72 percent through 2057, after which the percentage decreases until reaching 52

percent in 2088 through 2091. This is largely due to the projected decline in the number of annuitants per full-time employee.

Sensitivity Analysis. The projections of the future financial status of the Railroad Retirement Program depend on many

economic and demographic assumptions. For further information on the sensitivity of the long-range projections of the

Railroad Retirement Program and how the projections are impacted by changes in certain key assumptions, refer to RRB’s

financial statements.

Sustainability of Railroad Retirement

Consistent with the Statements of Social Insurance the primary expenditures and sources of financing for the Railroad

Retirement Program are computed on an open-group basis for the next 75 years and are expressed in present values as of

October 1, 2016. From a governmentwide perspective, revenues are expected to fall short of expenditures by approximately

$108.9 billion, which represents the present value of resources needed to sustain the Railroad Retirement Program. From a

trust fund perspective, when the trust fund balance ($26.6 billion) and the financial interchange and transfers ($84.0 billion)

are included, the combined balance of the NRRIT, the Railroad Retirement Account, and the SSEB Account show a slight

surplus ($1.7 billion). For further detail related to the sustainability of the Railroad Retirement Program, refer to RRB’s

financial statements.
193 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

Black Lung

The Federal Coal Mine Health and Safety Act of 1969 created the Black Lung Disability Benefit Program to provide

compensation, medical, and survivor benefits for eligible coal miners who are totally disabled due to pneumoconiosis (black

lung disease) arising out of their coal mine employment and the Black Lung Disability Trust Fund (BLDTF) provides benefit

payments when no responsible mine operator (RMO) can be assigned the liability.

As was stated in the note to Social Insurance earlier in this report, black lung disability benefit payments are funded by

excise taxes from coal mine operators based on the domestic sale of coal, as are the program’s administrative costs. These

taxes are collected by the Internal Revenue Service (IRS) and transferred to the BLDTF.

P.L. 110-343, Division B-Energy Improvement and Extension Act of 2008, enacted on October 3, 2008, in section 113,

(1) allowed for the temporary increase in coal excise tax rates to continue an additional five years beyond the statutory limit

and (2) restructured the BLDTF debt by refinancing the outstanding repayable advances (which had higher interest rates)

with discounted debt instruments similar in form to zero-coupon bonds (which had lower interest rates), plus a one-time

appropriation. This Act also allowed that any subsequent debt issued by the BLDTF may be used to make benefit payments,

other authorized expenditures, or to repay debt and interest from the initial refinancing. All debt issued by the BLDTF was

effected as borrowing from the Treasury’s Bureau of the Fiscal Service.

For more information on Black Lung Disability Benefit Program financing and actuarial assumptions, see Note 22—

Social Insurance.

Cash Flow Projections

Projected Cash Inflows and Outflows, in Constant Dollars, for the Open Group. Effective for fiscal year 2017

reporting, DOL revised its projection period from a fixed terminus of fiscal year 2040 to a rolling 25-year period beginning

on the valuation date. In order to be consistent with Executive Branch policy on regulations pursuant to the Clean Power Plan

(CPP), DOL’s estimates of future excise tax income were based on Energy Information Administration (EIA) projections of

future coal production that do not reflect CPP regulation. The EIA projections reflect the continuing trend of lower coal

production which would lead to lower future excise tax income. The projections, in constant dollars for the open group, made

over the 25-year period ending September 30, 2042, indicate that cash inflows from excise taxes will exceed cash outflows

for benefit payments and administrative expenses for fiscal years 2018 and 2019, but cash outflows will exceed cash inflows

for fiscal years 2020 through 2032 before reversing again in fiscal year 2033.

Sensitivity Analysis. For the projected cash inflows and outflows with sensitivity analysis, in constant dollars for the

open group, the significant assumption for medical cost inflation was increased by one percent. For the sensitivity analysis,

the other significant assumptions (coal excise tax revenue estimates, tax rate structure, number of beneficiaries, life

expectancy, federal civilian pay raises, interest rate on new debt issued by the BLDTF, and CPI-U for goods and services)

were left unchanged. Cash projections depend on the assumptions used and actual experience may differ materially from the

projections. These projections with sensitivity analysis, in constant dollars for the open group, made over the 25-year period

ending September 30, 2042, indicate that cash inflows from excise taxes will exceed cash outflows for benefit payments and

administrative expenses for fiscal years 2018 and 2019, but cash outflows exceed cash inflows for fiscal years 2020 through

2033 before reversing again in fiscal year 2034. For further information on the sensitivity of the projections of the Black

Lung Disability Benefit Program and how the projections are impacted by changes in assumptions, refer to DOL’s financial

statements.

Sustainability of Black Lung

On September 30, 2017, total liabilities of the BLDTF exceeded assets by $5.6 billion. This net position represents the

accumulated shortfall of excise taxes necessary to meet benefit payments, administrative costs, and interest expense incurred

prior to and subsequent to the debt refinancing pursuant to P.L. 110-343. Prior to the enactment of P.L. 110-343, this shortfall

was funded by repayable advances to the BLDTF, which were repayable with interest. Pursuant to P.L. 110-343, any shortfall

will be financed with debt instruments similar in form to zero-coupon bonds, with a maturity date of one year and bear

interest at the Treasury 1-year rate. For further detailed information on the sustainability of the Black Lung Disability Benefit

Program, refer to DOL’s financial statements.

Unemployment Insurance

The Unemployment Insurance (UI) Program was created in 1935 to provide income assistance to unemployed workers

who lose their jobs generally through no fault of their own, and are unemployed due to a lack of suitable work. The program

protects workers during temporary periods of unemployment through the provision of unemployment compensation benefits.

The program is administered through a unique system of federal and state partnerships established in federal law but executed

through conforming state laws by state agencies. The federal government provides broad policy guidance and program
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 194 

direction through the oversight of DOL, while program details are established through individual state UI statutes,

administered through state UI agencies.

The UI Program is financed through the collection of federal and state unemployment taxes levied on subject employers

and deposited in the Unemployment Trust Fund (UTF) and federal appropriations. The fund was established to account for

the receipt, investment, and disbursement of unemployment taxes. Federal unemployment taxes are used to pay for the

administrative costs of the UI Program, including grants to each state to cover the costs of state UI operations and the federal

share of extended UI benefits. Federal unemployment taxes are also used to fund an account within the UTF to make

advances to state UI accounts when a state’s UI account balance has been exhausted and the state is unable to make benefit

payments.

The UI Program provides regular and extended benefit payments to eligible unemployed workers. Regular UI program

benefits are established under state law and are payable for a period not to exceed a maximum duration. In 1970 federal law

began to require states to extend this maximum period of benefit duration by 50 percent during periods of high

unemployment. These extended benefit payments are paid equally from federal and state accounts.

Cash Flow Projections

The significant assumptions used in the cash flow projections of the UTF include total unemployment rates, civilian

labor force levels, percent of unemployed receiving benefits, total wages, distribution of benefit payments by state, state tax

rate structures, state taxable wage bases, interest rates on UTF investments, and the CPI-U for good and services. Cash

projections depend on the assumptions used and actual experience may differ materially from the projections. Under expected

economic conditions, total cash inflows, excluding interest earnings, are projected to exceed total cash outflows through the

end of the projection period.

Sensitivity Analysis. The effect on the accumulated UTF assets of projected total cash inflows and cash outflows of the

UTF, in constant dollars, over the ten-year period ending September 30, 2027, are demonstrated in two sensitivity analyses.

Each sensitivity analysis uses an open group, which includes current and future participants in the UI Program. Sensitivity

Analysis I assumes higher rates of unemployment and Sensitivity Analysis II assumes even higher rates of unemployment

compared to expected economic conditions. In Sensitivity Analysis I, which uses a higher unemployment rate of 5.72 percent

beginning in fiscal year 2018, net cash inflows are negative in fiscal years 2018 through 2021, become positive in fiscal year

2022, and remain positive through 2027. In Sensitivity Analysis II, net cash outflows, including interest earnings and

expenses, are projected in fiscal years 2019 through 2023, but outflows exceed inflows in fiscal years 2024 through 2027. Net

cash inflows are reestablished in fiscal year 2024 and peak in fiscal year 2026, with a drop in the unemployment rate to 8.28

percent in fiscal year 2022, and then steadily downward for fiscal years 2023 through 2027. The example of expected

economic conditions and two sensitivity analyses, in constant dollars, demonstrate the counter cyclical nature of the UI

Program, which experiences net cash inflows during periods of low unemployment that are depleted by net cash outflows

during periods of increased unemployment. For further detail on the sensitivity of the projections of the UI Program, refer to

DOL’s financial statements.

Sustainability of Unemployment Insurance

The ability of the UI Program to meet a participant’s future benefit payment needs depends on the availability of

accumulated taxes and earnings within the UTF. The effect of projected benefit payments on the accumulated net assets of

the UTF is measured, under an open group scenario, which includes current and future participants in the UI Program. As of

September 30, 2017, total assets within the UTF exceeded total liabilities by $58.6 billion. At the present time there is a

surplus; any surplus of tax revenues and earnings on these revenues over benefit payment expenses is available to finance

benefit payments in future periods when tax revenues may be insufficient. For more information on the sustainability of the

UI Program, refer to DOL’s financial statements.

Unemployment Trust Fund Solvency

Each state’s accumulated UTF net assets or reserve balance should provide a defined level of benefit payments over a

defined period. To be minimally solvent, a state’s reserve balance should provide for one year’s projected benefit payment

needs based on the highest levels of benefit payments experienced by the state over the last 20 years. A ratio of 1.0 or greater

indicates that the state UTF account balance is minimally solvent. States below this level are vulnerable to exhausting their

funds in a recession. States exhausting their reserve balance must borrow funds from the Federal Unemployment Account

(FUA) to make benefit payments. In fiscal year 2017, there were no FUA borrowings.

The results of DOL’s state by state analysis indicate 28 state funds plus the fund of the Virgin Islands were below the

minimal solvency ratio of 1.0 at September 30, 2017.
195 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

Deferred Maintenance and Repairs

Deferred maintenance and repairs result from maintenance not being performed on a timely basis and is the estimated 

cost to bring Government-owned property, plant, and equipment to an acceptable condition. Deferred maintenance and 

repairs exclude the cost of expanding the capacity of assets or upgrading them to serve needs different from those originally

intended. The consequences of not performing regular maintenance and repairs could include increased safety hazards, poor 

service to the public, higher costs in the future, and inefficient operations. Estimated deferred maintenance and repairs costs 

are not accrued in the Statements of Net Cost or recognized as a liability on the Balance Sheets.

The amounts disclosed for deferred maintenance and repairs are allowed to be measured using one of the following 

three methods:

• Condition assessment surveys which are periodic inspections of Government-owned property to determine the 

current condition and estimated cost to bring the property to an acceptable condition.

• Life-cycle cost forecast that is an acquisition or procurement technique that considers operation, maintenance, and 

other costs in addition to the acquisition cost of assets.

• Any other method of choice that is similar to the condition assessment survey or life-cycle costing methods.

The table below of deferred maintenance and repairs is presented as a single estimate in accordance with SFFAS No. 

42, Deferred Maintenance and Repairs: Amending Statements of Federal Financial Accounting Standards 6, 14, 29, and 32.

These amounts were all measured using the condition assessment survey method. Please refer to the individual financial 

statements of DOI, DOD, USDA, DOE, HHS, NASA, and VA for detailed significant information on deferred maintenance 

and repairs. 

Deferred Maintenance and Repairs as of September 30, 2017, and 2016

(In billions of dollars) 2017 2016

Asset category:

General property, plant, and equipment ........................................................................ 151.6 165.3

Heritage assets ........................................................................................................... 18.1 19.5

Stewardship land......................................................................................................... 0.5 0.4

Total deferred maintenance and repairs ..................................................................... 170.2 185.2

Other Claims for Refunds

Management has estimated amounts that may be paid out as other claims for tax refunds. This estimate represents an

amount (principal and interest) that may be paid for claims pending judicial review by the federal courts or, internally, by

appeals. The total estimated payout (including principal and interest) for claims pending judicial review by the federal courts

is $8.2 billion and $4.8 billion for fiscal years 2017 and 2016, respectively. For those under appeal, the estimated payout is

$2.2 billion and $2.3 billion for fiscal years 2017 and 2016, respectively. Although these refund claims have been deemed to

be probable, they do not meet the criteria in SFFAS No. 5, Accounting for Liabilities of the Federal Government, for

reporting the amounts in the balance sheets or for disclosure in the notes to the financial statements. However, they meet the

criteria in SFFAS No. 7, Accounting for Revenue and Other Financing Sources and Concepts for Reconciling Budgetary and

Financial Accounting, as amended, for inclusion as required supplementary information. To the extent judgments against the

Government for these claims prompt other similarly situated taxpayers to file similar refund claims, these amounts could

become significantly greater.
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 196 

Tax Assessments

The Government is authorized and required to make inquiries, determinations, and assessments of all taxes that have not

been duly paid. Unpaid assessments result from taxpayers filing returns without sufficient payment, as well as enforcement

programs such as examination, under-reporter, substitute for return, and combined annual wage reporting. Under federal

accounting standard, unpaid assessments are categorized as taxes receivable if taxpayers agree or a court has determined the

assessments are owed. If neither of these conditions are met, the unpaid assessments are categorized as compliance

assessments. Assessments with little or no future collection potential are called write-offs. Although compliance assessments

and write-offs are not considered receivables under federal accounting standards, they represent legally enforceable claims of

the Government. There is, however, a significant difference in the collection potential between compliance assessments and

receivables.

Compliance assessments and pre-assessment work in process are $75.8 billion and $77.3 billion for fiscal years 2017

and 2016, respectively. The amount of allowance for uncollectible amounts pertaining to compliance assessments cannot be

reasonably estimated, and thus the net realizable value of the value of the pre-assessment work-in-process cannot be

determined. The amount of assessments that agencies have statutory authority to collect at the end of the period but that have

been written off and excluded from accounts receivable are $111.0 billion and $139.0 billion for fiscal years 2017 and 2016,

respectively.
197 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

Federal Oil and Gas Resources

The DOI is responsible for managing the nation’s oil and natural gas resources and the mineral revenues on federal

lands, both onshore and on the Outer Continental Shelf. This management process can be broken down into six essential

analysis components: pre-leasing, post-leasing and pre-production, production and post-production, revenue collection, fund

disbursement, and compliance.

Federal Oil and Gas Resources as of September 30, 2017, and 2016

(In billions of dollars) Offshore Onshore Total

2017 2016 2017 2016 2017 2016

Oil and lease condensate.................. 23.7 23.7 12.2 12.8 35.9 36.5

Natural gas, wet after lease 

separation........................................ 1.8 2.6 9.3 12.3 11.1 14.9

Total ............................................. 25.5 26.3 21.5 25.1 47.0 51.4

The above table presents the estimated present value of future federal royalty receipts on estimated proved reserves16 as

of September 30, 2017 and 2016. The federal government’s estimated petroleum royalties have as their basis the DOE’s

Energy Information Administration (EIA) estimates of proved reserves. The EIA provides such estimates for federal offshore

areas and they are adjusted to extract the federal subset of onshore proved reserves. The federal proved reserves were then

further adjusted to correspond with the effective date of the actual production for calendar year 2015, the most recently

published EIA proved reserves report and then are projected, separately for oil and natural gas, over time to simulate a

schedule of when the reserves would be produced. Future royalties are then calculated from these production streams by

applying future price estimates by the OMB, and effective royalty rates, adjusted for transportation allowances and other

allowable deductions. The valuation method used for gas captures royalties from three products–dry gas, wet gas, and natural

gas liquids–which collectively are reported as natural gas, wet after lease separation. The present value of these royalties are

then determined by discounting the revenue stream back to the effective date at a public discount rate assumed to be equal to

the OMB’s estimates of future 30-year Treasury bill rates. The 30-year rate was chosen because this maturity life most

closely approximates the productive lives of the proved reserves estimates.

 16 Per the EIA, lease condensate is a mixture consisting primarily of pentanes and heavier hydrocarbons which is recovered as a liquid from natural gas in

lease separation facilities. This category excludes natural gas plant liquids, such as butane and propane, which are recovered at downstream natural gas

processing plants or facilities. Also per the EIA, natural gas, wet after lease separation, is the volume of natural gas remaining after removal of lease

condensate in lease and/or field separation facilities, if any, and after exclusion of nonhydrocarbon gases where they occur in sufficient quantity to render the

gas unmarketable. Natural gas liquids may be recovered from volume of natural gas, wet after lease separation, and at natural gas processing plants

(https://www.eia.gov/naturalgas/data.cfm).
 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 198 

Estimated Federal Oil and Gas Petroleum Royalties (Proved Reserves)

As of September 30, 2017, and 2016

Average Purchase Average Royalty

Quantity (in millions) Price ($) Rate (%)

Petroleum Category 2017 2016 2017 2016 2017 2016

Oil and lease condensate (Bbl):

Offshore ......................................... 4,022.4 4,362.2 46.86 37.77 13.06 13.08 

Onshore ......................................... 2,278.0 2,655.0 45.20 35.79 12.12 12.14 

Total ............................................. 6,300.4 7,017.2

Natural gas, wet after lease 

separation (Mcf):

Offshore ......................................... 5,946.4 7,327.7 3.28 2.43 11.99 11.77 

Onshore ......................................... 39,877.7 44,836.7 3.07 2.31 10.58 9.68 

Total ............................................. 45,824.1 52,164.4

Bbl = barrels

Mcf = 1,000 cubic feet

The table above provides the estimated quantity, a weighted average purchase price, and a weighted average royalty rate

by category of estimated federal petroleum royalties at the end of fiscal year 2017 and 2016.17 The estimated quantities,

average purchase prices and royalty rates vary by region; the above table reflects an overall weighted average purchase price

and royalty rate, and is not presented on a regional basis, but is instead calculated based on regional averages. The prices and

royalty rates are based upon historical (or estimated) averages, excluding prior-period adjustments, if any, and are affected by

such factors as accounting adjustments and transportation allowances, resulting in effective average prices and royalty rates.

Prices are valued at the lease rather than at the market center, and differ from those used to compute the asset estimated

present values, which are forecasted and discounted based upon OMB economic assumptions. For further details on federal

oil and gas resources, refer to the financial statements of DOI. In addition to the oil and gas resources discussed above, the

federal government also owns oil and gas resources that are not currently under lease.

 17 Gulf of Mexico proved reserves are royalty bearing volumes. In the Gulf of Mexico, an additional 689.7 million Bbl for fiscal year 2017 and 884.3 million

Bbl for fiscal year 2016 of proved oil reserves, and 1,180.3 million Mcf for fiscal year 2017 and 1,104.2 million Mcf for fiscal year 2016 of proved gas

reserves are not reflected in these totals as they are estimated to be producible royalty free under various royalty relief provisions. The net present value of

the royalty value of the royalty free proved reserves volumes in the Gulf of Mexico is estimated to be $4.4 billion for fiscal year 2017 and $5.0 billion for

fiscal year 2016.
199 REQUIRED SUPPLEMENTARY INFORMATION (UNAUDITED) 

Federal Natural Resources Other than Oil and Gas

Federal Natural Resources Other than Oil and Gas as of September 30, 2017, and 2016

(in billions of dollars)

Natural Resource Category 2017 2016

Coal royalties .......................................................................................... 9.0 8.8

Total..................................................................................................... 9.0 8.8

The Office of Natural Resources Revenue (ONRR) within DOI is responsible for the management and collection of

revenues associated with federal coal leases which are managed by the Bureau of Land Management (BLM) within DOI. The

ONRR achieves optimal value by ensuring that all natural resource revenues are efficiently and accurately collected as well

as disbursed to recipients in a timely manner by performing audit and revenue compliance activities.

The Mineral Leasing Act of 1920, as amended, and the Mineral Leasing Act for Acquired Lands of 1947, as amended,

gives DOI the responsibility for coal leasing on approximately 700 million acres of federal mineral estate which includes 570

million of acres where coal development is allowed. The surface estate of these lands may be under the control of BLM, the

U.S. Forest Service (within USDA), private or state land owners, or other federal agencies.

Public lands are available for coal leasing after the lands have been evaluated through a multiple-use planning process.

The Mineral Leasing Act, as amended by the Federal Coal Leasing Amendments Act of 1976, generally requires that coal be

leased competitively and that the federal government must receive a fair market value for land leased for coal development.

Once a lease is issued, federal coal leasing laws and lease terms determine the federal government’s share of production from

coal leasing operations.

DOI receives coal leasing revenues from a bonus paid at the time of the lease, an annual rent payment of $3.00 per acre,

and royalties paid on the value of the coal after it has been mined. A portion of the total federal coal royalties will be

distributed to other non-federal entities. The royalty rate for surface-mining methods is 12.5 percent and is 8 percent for

underground mining, and the BLM can approve reduced royalty rates based on maximum economic recovery. Regulations

that govern BLM’s coal leasing program are contained in Title 43, Groups 3000 and 3400 of the Code of Federal

Regulations.

The above table presents the estimated present value of federal coal royalties under lease contract or other long-term

arrangements as of September 30, 2017 and 2016. The federal government’s estimated coal royalties have as their basis the

DOI’s BLM estimates of recoverable reserves. The federal recoverable reserves are then further adjusted to correspond with

the effective date of the analysis and then are projected over time to simulate a schedule of when the reserves would be

produced. Futures royalties are then calculated by applying future price estimates and effective royalty rates, adjusted for

transportation allowances and other allowable deductions. The present value of these royalties are then determined by

discounting the revenue stream back to the effective date at a public discount rate assumed to be equal to the OMB’s

estimates of future 30-year Treasury bill rates. The 30-year rate was chosen because this maturity life most closely

approximates the productive lives of the recoverable reserves estimates.

In addition to the coal resources discussed above, the federal government has other natural resources under lease

contract whereby the lessee is required to pay royalties on the sale of the natural resource. These natural resources include

soda ash, potash muriates of potash and langbeinite phosphate, lead concentrate, copper concentrate, and zinc concentrate.

Soda ash and potash have the largest estimated present value of future royalties. The federal government also owns coal

resources and certain other natural resources that are not currently under lease. For further details on federal natural

resources-other than oil and gas, refer to the financial statements of DOI.
 OTHER INFORMATION (UNAUDITED) 200

United States Government

Other Information (Unaudited) for the

Years Ended September 30, 2017, and 2016

Tax Burden

The Internal Revenue Code provides for progressive tax rates, whereby higher earned income is generally subject to

higher tax rates. The following tables present the latest available information on income tax and related income, deductions,

and credit: for individuals by income level, and for corporations by size of assets.

Individual Income Tax Liability for Tax Year 2015

Average

Total Average Income

Number of Income AGI Per Tax per Income

Taxable AGI Tax Return Return Tax as a

Adjusted Gross Income Returns (in millions (in millions (in whole (in whole Percentage

(AGI) (In thousands) of dollars) of dollars) dollars) dollars) of AGI

Under $15,000 .................... 35,824 61,630 2,033 1,720 57 3.3%

$15,000 under $30,000........ 30,043 662,661 18,468 22,057 615 2.8%

$30,000 under $50,000........ 26,539 1,040,372 57,698 39,202 2,174 5.5%

$50,000 under $100,000...... 32,802 2,339,474 205,693 71,321 6,271 8.8%

$100,000 under $200,000 .... 18,533 2,506,498 316,350 135,245 17,070 12.6%

$200,000 under $500,000 .... 5,428 1,546,515 299,832 284,914 55,238 19.4%

$500,000 or more................ 1,324 2,053,160 557,817 1,550,725 421,312 27.2%

Total ............................... 150,493 10,210,310 1,457,891
201 OTHER INFORMATION (UNAUDITED) 

Corporation Income Tax Liability for Tax Year 2014

Percentage of

Income Subject Total Income Tax Income Tax After

Total Assets to Tax After Credits Credits to 

(In thousands of dollars) (in millions of dollars) (in millions of dollars) Taxable Income

Zero Assets ................................ 16,236 5,347 32.9%

$1 under $500............................. 8,728 1,786 20.5%

$500 under $1,000 ...................... 3,787 918 24.2%

$1,000 under $5,000 ................... 13,567 4,080 30.1%

$5,000 under $10,000.................. 8,587 2,802 32.6%

$10,000 under $25,000................ 13,741 4,526 32.9%

$25,000 under $50,000................ 12,827 4,170 32.5%

$50,000 under $100,000.............. 15,225 4,919 32.3%

$100,000 under $250,000 ............ 32,119 8,303 25.9%

$250,000 under $500,000 ............ 29,921 9,453 31.6%

$500,000 under $2,500,000 ......... 120,328 35,316 29.3%

$2,500,000 or more ..................... 1,126,109 254,458 22.6%

 Total ...................................... 1,401,175 336,078

Tax Gap

The tax gap is the difference between what taxpayers should pay and what they actually pay on time. The tax gap, about

$458.0 billion annually based on updated estimates, represents the amount of noncompliance with the tax laws. It is estimated

that $52.0 billion of the gross tax gap will eventually be collected resulting in a net tax gap of $406.0 billion. The IRS

remains committed to finding ways to increase compliance and reduce the tax gap, while minimizing the burden on the vast

majority of taxpayers who pay their taxes accurately and on time.

The tax gap is the aggregate amount of tax (excluding interest and penalties) that is imposed by the tax laws for any

given tax year but is not paid voluntarily and timely. The tax gap arises from three types of noncompliance: not filing

required tax returns on time or at all (the nonfiling gap), underreporting the correct amount of tax on timely filed returns (the

underreporting gap), and not paying on time the full amount reported on timely filed returns (the underpayment gap).

Underreporting of income tax, employment taxes, and other taxes represents 84.5 percent of the gross tax gap. Each instance

of noncompliance by a taxpayer contributes to the tax gap, whether or not the IRS detects it, and whether or not the taxpayer

is even aware of the noncompliance. Some of the tax gap arises from intentional (willful) noncompliance, and some of it

arises from unintentional mistakes.

The collection gap is the cumulative amount of assessed tax, penalties, and interest that has been assessed over many

years, but has not been paid by a certain point in time and which the IRS expects to remain uncollectible. In essence, it

represents the difference between the total balance of unpaid assessments and the net taxes receivable reported on the IRS’

balance sheet. The tax gap and the collection gap are related and overlapping concepts, but they have significant differences.

The collection gap is a cumulative balance sheet concept for a particular point in time, while the tax gap is like an income

statement item for a single year. Moreover, the tax gap estimates include all noncompliance, while the collection gap includes

only amounts that have been assessed (a small portion of all non-compliance).
 OTHER INFORMATION (UNAUDITED) 202

Unmatched Transactions and Balances

Restated

Fiscal Year Fiscal Year

(in millions of dollars) 2017 2016

Change in intragovernmental unmatched balances:

Debt/investment..................................................................... (4,145.3) 4,130.3

Interest payable/receivable ..................................................... - 18.6

Interest payable/receivable-loans and not otherwise classified .. - 6.5

Accounts payable/receivable capital transfers .......................... - (13.4)

Loans payable/receivable ....................................................... - (1.1)

Benefit program contributions payable/receivable..................... 10.6 12.4

Accounts payable/receivable ................................................ (574.9) 167.6

Advances from/to others & deferred credits/prepayments ......... 61.2 (301.7)

Transfers payable/receivable .................................................. (50.2) 14.5

Other assets/liabilities............................................................. - 1,976.1

Fund balance with Treasury.................................................... 399.0 1,074.7

Asset for custodial and non-entity asset/liability........................ - 13,727.7

(4,299.6) 20,812.2

Unmatched intragovernmental transactions:

Federal securities interest revenue/expense-investment 

exchange............................................................................... - (629.2)

Borrowings interest revenue/expense-exchange ...................... - 2.9

Borrowings gains/losses ......................................................... - (9.0)

Non-expenditure transfers-in/out ............................................. (438.4) 2,218.2

Expenditure transfers-in/out .................................................... 688.2 426.9

Transfers-in/out without reimbursement................................... (89.5) 208.3

Imputed financing source/cost................................................. - (0.1)

Benefit program revenue/cost ................................................. (896.3) (906.1)

Non-reciprocating* ................................................................. 8,914.8 (19,150.8)

Revenue and other financing sources* .................................... 297.4 -

Appropriations expended........................................................ 342.4 (361.3)

Appropriations used ............................................................... (342.4) 300.3

Appropriations received/warrants issued.................................. (390.1) 3,296.0

Appropriations of unavailable special or trust fund receipts 

transferred out/in.................................................................... - (3.0)

Custodial and non-entity collections transferred out/in .............. (6,865.6) (11,445.5)

Other taxes and receipts/trust fund warrants ............................ - (2,787.6)

Accrual amounts collected/transferred in.................................. - 5.0

Other..................................................................................... 501.4 (113.7)

1,721.9 (28,948.7)

Unmatched transactions and balances, net ................................ (2,577.7) (8,136.5)

( ) Parentheses indicate a decrease to Net Position.

* The fiscal year 2016 amounts for revenue and other financing sources are included under "Non-reciprocating."
203 OTHER INFORMATION (UNAUDITED) 

The Statement of Operations and Changes in Net Position includes an amount for unmatched transactions and balances

that result from the consolidation of federal reporting entities. Transactions between federal entities must be eliminated in

consolidation to calculate the financial position of the government. Many of the amounts included in the table represent

intragovernmental activity and balances that differed between federal agency trading partners and often totaled significantly

more in the absolute than the net amounts shown. The table also reflects other consolidating adjustments and other

adjustments that contributed to the unmatched transactions and balances amount. In fiscal year 2017, a number of lines in the

unmatched transactions and balances table were adjusted to zero after intragovernmental difference analysis determined they

were immaterial at or below $0.1 billion. The adjustments were added to, subtracted from, gross cost in the Statement of Net

Cost.

Unmatched transactions and balances between federal entities impact not only in the period in which differences

originate but also in the periods where differences are resolved. As a result, it would not be proper to conclude that increases

or decreases in the unmatched amounts shown in the “Unmatched Transactions and Balances” table reflect improvements or

deteriorations in the Government’s ability to resolve intragovernmental transactions. The federal community considers the

identification and accurate reporting of intragovernmental activity a priority.
 REQUIRED SUPPLEMENTARY STEWARDSHIP INFORMATION (UNAUDITED) 204 

United States Government

Required Supplementary Stewardship

Information (Unaudited) for the Years

Ended September 30, 2017, and 2016

Stewardship Investments

Stewardship investments focus on government programs aimed at providing long-term benefits by improving the

Nation’s productivity and enhancing economic growth. These investments can be provided through direct federal spending or

grants to state and local governments for certain education and training programs, research and development, and federally

financed but not federally owned property, such as bridges and roads. When incurred, these investments are included as

expenses in determining the net cost of operations. Stewardship investments for the current year and for the immediately

preceding four years are shown in the table below.

Stewardship Investments for the Years Ended

September 30, 2013, through 2017

Fiscal Fiscal Fiscal Fiscal Fiscal

Year Year Year Year Year

(In billions of dollars) 2017 2016 2015 2014 2013

Investments in non-federal physical property... 65.0 65.1 64.8 65.6 66.1

Investments in human capital ......................... 111.6 131.1 97.8 108.5 58.7

Research and development:

Investments in basic research...................... 36.5 35.5 29.4 34.0 35.2

Investments in applied research................... 32.7 32.5 28.8 28.1 28.0

Investments in development ........................ 68.2 64.9 63.3 61.8 64.1

Total investments ..................................... 314.0 329.1 284.1 298.0 252.1
205 REQUIRED SUPPLEMENTARY STEWARDSHIP INFORMATION (UNAUDITED) 

Non-Federal Physical Property

The Government makes grants and provides funds for the purchase, construction, and/or major renovation of state and

local government physical properties. Costs for non-federal physical property programs are included as expenses in the

Statements of Net Cost and are reported as investments in the table. They are measured on the same accrual basis of

accounting used in the Financial Report statements. DOT, HUD, and EPA had $56.8 billion (87.4 percent), $3.4 billion (5.2

percent), and $2.8 billion (4.3 percent), respectively, of the total non-federal physical property investments in fiscal year

2017. Within DOT, the Federal Highway Administration invested $42.0 billion during fiscal year 2017, primarily via

reimbursement from the Highway Trust Fund, for States’ construction costs on projects related to the federal highway

system. The main programs in which the States participate are the National Highway System, Interstate Systems, Surface

Transportation, and Congestion Mitigation/Air Quality Improvement programs. The States’ contribution is 10 percent for the

Interstate System and 20 percent for most other programs.

Human Capital

The Government runs several programs that invest in human capital. Those investments go toward increasing and

maintaining a healthy economy by educating and training the general public. Costs do not include training expenses for

federal workers.

Education, VA, and DOL had $83.4 billion (74.7 percent), $15.0 billion (13.4 percent), and $6.2 billion (5.6 percent),

respectively, of the total human capital investments in fiscal year 2017. Increases and decreases in Education’s annual human

capital investments are primarily attributable to fluctuations in the loan program subsidy estimate and loan modification

costs.

Education administers a wide variety of programs related to general public education and training programs that are

intended to increase or maintain national economic productive capacity. The Office of Federal Student Aid administers needbased financial assistance programs for students pursuing postsecondary education and makes available federal grants, direct

loans, and work-study funding to eligible undergraduate and graduate students.

The significant human capital programs administered by DOL relate to grants for job training and employment

programs. The significant human capital programs administered by VA include veterans rehabilitation and employment

programs which are provided to service disabled veterans; they are designated to improve employability and promote

independence for the disabled. They also include education and training programs intended to provide higher education to

dependents that might not be able to participate otherwise.

Research and Development

Federal investments in research and development (R&D) comprise those expenses for basic research, applied research, 

and development that are intended to increase or maintain national economic productive capacity or yield other future 

benefits.

• Investments in basic research are for systematic studies to gain knowledge or understanding of the fundamental 

aspects of phenomena and of observable facts without specific applications toward processes or products in mind.

• Investments in applied research are for systematic studies to gain knowledge or understanding necessary for 

determining the means by which a recognized and specific need may be met.

• Investments in development are the systematic use of the knowledge and understanding gained from research for the 

production of useful materials, devices, systems, or methods, including the design and development of prototypes 

and processes.

With regard to basic and applied research, HHS had $17.9 billion (49.0 percent) and $12.5 billion (38.3 percent), of the 

total basic and applied research investments, respectively, in fiscal year 2017. HHS also had similar R&D investment 

amounts (and percentage contributions) in each of the preceding four years.

Within HHS, the National Institutes of Health (NIH) conducts almost all (97 percent) of the Department’s basic and 

applied research. The NIH research program includes all aspects of the medical research continuum, including basic and 

disease-oriented research, observational and population-based research, behavioral research, and clinical research, including 

research to understand both health and disease states, to move laboratory findings into medical applications, to assess new 

treatments or compare different treatment approaches; and health services research. The NIH regards the expeditious transfer 
 REQUIRED SUPPLEMENTARY STEWARDSHIP INFORMATION (UNAUDITED) 206 

of the results of its medical research for further development and commercialization of products of immediate benefit to 

improved health as an important mandate.

With regard to development, the DOD and NASA had $58.0 billion (85.0 percent) and $6.6 billion (9.7 percent), 

respectively, of total development investments in fiscal year 2017. Major outputs of DOD development 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 research and uses it to establish technological feasibility, assessment of operability, and production capability.

Development is comprised of five stages: 1) advanced technology development, 2) advanced component development and 

prototypes, 3) system development and demonstration, 4) research, development, test and evaluation management support, 

and 5) operational systems development.

NASA development includes activities to extend the knowledge of Earth, its space environment, and the universe, and 

to invest in new aeronautics and advanced space transportation technologies that support the development and application of 

technologies critical to the economic, scientific, and technical competitiveness of the United States.
207 REQUIRED SUPPLEMENTARY STEWARDSHIP INFORMATION (UNAUDITED) 

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 APPENDIX A 208

Appendix A: Reporting Entity

This appendix lists the organizations and agencies (entities) included in the U.S. Government’s consolidated reporting 

entity for the Financial Report, as well as some entities not included in the reporting entity. Federal Accounting Standards 

Advisory Board’s (FASAB) Statement of Federal Financial Accounting Concept (SFFAC) 2, Entity and Display, provides 

criteria for determining which entities are included in the reporting entity. 

Under the first, conclusive criterion, any entity appearing in the “Federal Programs by Agency and Account” section of 

the federal budget is included in the consolidated reporting entity. Also, based on a consideration of the indicative criteria in 

the aggregate, certain entities not meeting the conclusive criteria are also included in the consolidated reporting entity, as the 

general purpose financial statements might be misleading or incomplete if the organization were not included therein. 

Indicative criteria are that an entity (1) exercises government sovereign power to carry out federal functions, (2) is owned by 

the federal government, particularly if the ownership is of the organization and not just the property, (3) is subject to the 

direct or continuing administrative control of the reporting entity, (4) carries out federal missions and objectives, (5) 

determines the outcome or disposition of matters affecting recipients of services that the federal government provides, and (6) 

has a fiduciary relationship with a reporting entity.

1. Entities included in the Reporting Entity for the Financial Report:

There are a total of 156 entities that met either the conclusive or indicative criteria, and as such are included in the 

Financial Report. The lists below describe three groups of entity types that comprise the reporting entity for the Financial 

Report and include entities from all three branches of government.

Twenty-Four Chief Financial Officer Act Agencies

Department of Agriculture

www.usda.gov

Department of Transportation

www.dot.gov

Department of Commerce

www.doc.gov

Department of the Treasury

www.treasury.gov

Department of Defense

www.defense.gov

Department of Veterans Affairs

www.va.gov

Department of Education

www.ed.gov

Environmental Protection Agency

www.epa.gov

Department of Energy

www.energy.gov

General Services Administration

www.gsa.gov

Department of Health and Human Services

www.hhs.gov

National Aeronautics and Space Administration

 www.nasa.gov

Department of Homeland Security

www.dhs.gov

National Science Foundation

www.nsf.gov

Department of Housing and Urban Development

www.hud.gov

Office of Personnel Management

www.opm.gov

Department of the Interior

www.doi.gov

Small Business Administration

www.sba.gov

Department of Justice

www.usdoj.gov

Social Security Administration

www.ssa.gov

Department of Labor

www.dol.gov

U.S. Agency for International Development

www.usaid.gov

Department of State

www.state.gov

U.S. Nuclear Regulatory Commission

www.nrc.gov
209 APPENDIX A 

Fifteen Additional Significant Entities

Defense Security Cooperation Agency

 www.dsca.mil

Export-Import Bank of the United States 

www.exim.gov

Farm Credit System Insurance Corporation

 www.fcsic.gov

Federal Communications Commission

 www.fcc.gov

Federal Deposit Insurance Corporation

 www.fdic.gov

General Fund of the U.S. Government

 www.fiscal.treasury.gov

Millennium Challenge Corporation

 www.mcc.gov

National Credit Union Administration

 www.ncua.gov

Overseas Private Investment Corporation

 www.opic.gov

Pension Benefit Guaranty Corporation

www.pbgc.gov

Railroad Retirement Board 

 www.rrb.gov

Securities and Exchange Commission

 www.sec.gov

Smithsonian Institution

 www.si.edu

Tennessee Valley Authority

 www.tva.gov

U.S. Postal Service

 www.usps.com

One Hundred Seventeen Additional Entities/Funds

Administrative Conference of the United States Corporation for National and Community Service

Advisory Council on Historic Preservation Council of the Inspector General on Integrity and

African Development Foundation Efficiency

American Battle Monuments Commission Court of Appeals for Veterans Claims

Appalachian Regional Commission Court Services and Offender Supervision Agency for DC

Architect of the Capitol DC Courts

Architectural and Transportation Barriers Compliance DC Courts–Defender Services

 Board Defense Nuclear Facilities Safety Board

Armed Forces Retirement Home Delta Regional Authority

Barry Goldwater Scholarship and Excellence in Denali Commission

 Education Foundation Dwight D. Eisenhower Memorial Commission

Broadcasting Board of Governors Election Assistance Commission

Bureau of Consumer Financial Protection Environmental Dispute Resolution Fund

Central Intelligence Agency Equal Employment Opportunity Commission

Chemical Safety Hazard Investigation Board Executive Office of the President

Christopher Columbus Fellowship Foundation Farm Credit Administration

Commission for the Preservation of America’s Federal Election Commission

 Heritage Abroad Federal Financial Institutions Examination Council

Commission on Civil Rights Appraisal Subcommittee

Commission of Fine Arts Federal Housing Finance Agency

Commission on International Religious Freedom Federal Labor Relations Authority

Commission on Security and Cooperation in Europe Federal Maritime Commission

Commission to Eliminate Child Abuse and Neglect Federal Mediation and Conciliation Service

 Fatalities* Federal Mine Safety and Health Review Commission

Committee for Purchase from People Who Are Blind Federal Trade Commission

 or Severely Disabled Financial Crisis Inquiry Commission*

Commodity Futures Trading Commission Government Accountability Office

Congressional Budget Office Government Publishing Office

Congressional-Executive Commission on the People’s Gulf Coast Ecosystem Restoration Council

 Republic of China Harry S. Truman Scholarship Trust Fund

Consumer Product Safety Commission Indian Law and Order Commission*
 APPENDIX A 210

Institute of Museum and Library Services Nuclear Waste Technical Review Board

Intelligence Community Management Account Occupational Safety and Health Review Commission

Interagency Council on the Homeless Office of Compliance

Inter-American Foundation Office of Government Ethics

International Trade Commission Office of Navajo and Hopi Indian Relocation

James Madison Memorial Fellowship Foundation Office of Nuclear Waste Negotiator*

Japan-United States Friendship Commission Office of Special Counsel

John C. Stennis Center Office of the Federal Coordination for Alaska Natural

John F. Kennedy Center for the Performing Arts Gas Transportation Projects*

Library of Congress Open World Leadership Center

Marine Mammal Commission Patient Centered Outcomes Research Trust Fund

Medicaid and Children’s Health Insurance Program Peace Corps

 Payment and Access Commission Presidio Trust

Medicare Payment Advisory Commission Privacy and Civil Liberties Oversight Board

Merit Systems Protection Board Public Defender Service

Military Compensation and Retirement Modernization Recovery Act Accountability and Transparency Board*

 Commission* Ronald Reagan Centennial Commission*

Morris K. Udall Scholarship Foundation Selective Service System

National Archives and Records Administration Senate Preservation Fund

National Capital Planning Commission St. Lawrence Seaway Development Corporation

National Commission on Military, National and Public State Justice Institute

 Service Surface Transportation Board

National Council on Disability Thrift Savings Fund

National Endowment for the Arts U.S. Capitol Police

National Endowment for the Humanities U.S. Capitol Preservation Commission

National Gallery of Art U.S. China Security Review Commission

National Labor Relations Board U.S. Holocaust Memorial Museum

National Mediation Board U.S. Institute of Peace

National Railroad Passenger Corporation, Office of the U.S. Tax Court

 Inspector General U.S. Trade and Development Agency

National Railroad Retirement Investment Trust Vietnam Education Foundation

National Transportation Safety Board Women’s Suffrage Centennial Commission

Neighborhood Reinvestment Corporation Woodrow Wilson International Center for Scholars

Northern Border Regional Commission WWI Centennial Commission

*These entities are no longer active and have either returned all remaining fund balances to Treasury during fiscal year 2017

or have remaining fund balances pending final return to Treasury as of September 30, 2017.
211 APPENDIX A 

Legislative and Judicial Branches

There are no legal or other requirements for the legislative or judicial branches to prepare consolidated audited financial 

statements or to provide accrual-based accounting data for inclusion in the governmentwide financial statements. However, a 

portion of legislative and judicial branch entities voluntarily prepare accrual-based financial statements (e.g., Government 

Accountability Office, Government Publishing Office, and Library of Congress) and are included in the 156 entities listed 

above. The other entities of the legislative and judicial branch voluntarily provide accrual-based accounting data for inclusion 

in the governmentwide financial statements, except for the U.S. Senate which is included on a cash basis.

2. Entities not Included in the Reporting Entity of the Financial Report

The entities discussed below either do not meet the conclusive criteria or indicative criteria or were specifically 

excluded from the consolidated reporting entity in accordance with SFFAC 2. Information about the federal government’s 

relationship with and investments in or liabilities to certain of these entities are disclosed in the notes to the financial 

statements.

Entities that Did not Meet the Conclusive or Indicative Criteria

The following entities are examples of entities with which the federal government has business relationships but did not 

meet the above mentioned conclusive or indicative criteria:

Federal Home Loan Banks

National Railroad Passenger Corporation (does business as Amtrak)

Resolution Funding Corporation

Student Loan Marketing Association

The Financing Corporation

Entities Specifically Excluded From the Consolidated Reporting Entity

SFFAC 2 specifically excludes the Federal Reserve System—the Board of Governors of the Federal Reserve System 

and the Federal Reserve Banks. The Federal Reserve System could be considered as functioning consistent with the 

indicative criteria presented above since it establishes and monitors monetary policy. However, in the United States, the 

organization and functions pertaining to monetary policy are traditionally separated from and independent of the other central 

government organizations and functions in order to achieve more effective monetary and fiscal policies and economic results. 

Therefore, the Federal Reserve System is not considered part of the governmentwide reporting entity.

SFFAC 2 also excludes bailout entities. The Federal government may guarantee or pay debt for a privately owned entity 

whose failure could have an adverse impact on the nation's economy, commerce, national security, etc. As a condition of the 

bailout, the Federal government may obtain rights similar to the authorities associated with the indicative criteria presented 

above. However, the existence of these rights does not make the bailed out entity part of the governmentwide reporting 

entity. 

Examples of bailout entities are:

Federal Home Loan Mortgage Corporation (Freddie Mac)

Federal National Mortgage Association (Fannie Mae)
 APPENDIX B 212

Appendix B: Acronyms

This appendix lists the acronyms used in the MD&A, Financial Statements, Notes to the Financial Statements, RSI, 

RSSI, and Other Information sections of this Financial Report. 

ACA Affordable Care Act

ACH Automated Clearing House

AIG American International Group, Inc.

APM Alternative Payment Models

ARRA American Recovery and Reinvestment Act of 2009

ASC Accounting Standards Codification

ATRA American Taxpayer Relief Act of 2012

Bbl Barrel

BCA Budget Control Act

BLDTF Black Lung Disability Trust Fund

BLM Bureau of Land Management

Board

BRS

CCIIO

Federal Reserve Board of Governors

Blended Retirement System

Center for Consumer Information and Insurance Oversight

CERCLA Comprehensive Environmental Response, Compensation, and Liability Act

CFO Chief Financial Officers

CFO Act

CFOC

Chief Financial Officers Act of 1990

Chief Financial Officers Council

CHIP Children’s Health Insurance Program

CMS

COFAR

Centers for Medicare and Medicaid Services

Council on Financial Assistance Reform

COLA Cost of Living Adjustments

CPI Consumer Price Index

CPI-U Consumer Price Index for All Urban Consumers

CPIM Consumer Price Index–Medical

CPI-W Consumer Price Index for Urban Wage Earners and Clerical Workers

CPP Capital Purchase Program

CSRDF Civil Service Retirement and Disability Fund

CSRS Civil Service Retirement System

DACA

DATA Act

Deferred Action for Childhood Arrivals

Digital Accountability and Transparency Act of 2014

DEA Dependent Education Assistance

DHS Department of Homeland Security

DI Disability Insurance

DIF Deposit Insurance Fund

DOC Department of Commerce

DOD Department of Defense

DOE Department of Energy
213 APPENDIX B 

DOI Department of the Interior

DOJ Department of Justice

DOL Department of Labor

DOT Department of Transportation

DSCA

DSL

Defense Security Cooperation Agency

Debt Subject to the Statutory Limit

Education

EIA

Department of Education

Energy Information Administration

ERM Enterprise Risk Management

ESF Exchange Stabilization Fund

Ex-Im Bank Export-Import Bank of the United States

Fannie Mae Federal National Mortgage Association

FASAB Federal Accounting Standards Advisory Board

FASB Financial Accounting Standards Board

FCRA Federal Credit Reform Act of 1991

FCSIC Farm Credit System Insurance Corporation

FDIC Federal Deposit Insurance Corporation

FECA Federal Employees’ Compensation Act

FEGLI Federal Employees’ Group Life Insurance

FEHB Federal Employees Health Benefits Program

FERS Federal Employees Retirement System

FEVBP Federal Employee and Veteran Benefits Payable

FFATA Federal Funding Accountability and Transparency Act of 2006

FFEL Federal Family Education Loan

FFMIA

FFS

Federal Financial Management Improvement Act of 1996

Fee for Service

FHA Federal Housing Administration

FHFA Federal Housing Financing Agency

FHWA Federal Highway Administration

FICA Federal Insurance Contribution Act

FMFIA Federal Managers’ Financial Integrity Act

FOMC

FPS

Federal Open Market Committee

Fraud Prevention System

FR Financial Report

FR System Federal Reserve System

FRBNY Federal Reserve Bank of New York

FRBs Federal Reserve Banks

Freddie Mac Federal Home Loan Mortgage Corporation

FRTIB Federal Retirement Thrift Investment Board

FTF Freeze the Footprint

FUA Federal Unemployment Account

GAAP U.S. Generally Accepted Accounting Principles

GAO U.S. Government Accountability Office
 APPENDIX B 214

GDP Gross Domestic Product

General Fund

Government

General Fund of the U.S. Government

United States Government

GSA General Services Administration

GSE Government-Sponsored Enterprises

HEA Higher Education Act of 1965

HERA Housing and Economic Recovery Act of 2008

HHS Department of Health and Human Services

HI Hospital Insurance

HMO Health Maintenance Organization

HUD Department of Housing and Urban Development

IHS Indian Health Service

IRS Internal Revenue Service

LAC Latest Acquisition Cost

LOC Library of Congress 

MAC

MACRA

Moving Average Cost

Medicare Access and CHIP Reauthorization Act of 2015

MBS Mortgage-Backed Securities

Mcf The volume of 1,000 cubic feet of natural gas

MDBs Multilateral Development Banks

MERHCF Medicare Eligible Retiree Health Care Fund

MGIB-AD Montgomery GI Bill-Active Duty

NASA National Aeronautics and Space Administration

NCUA

NHE

National Credit Union Administration

National Health Expenditure

NIH National Institutes of Health

NRC U.S. Nuclear Regulatory Commission

NRRIT National Railroad Retirement Investment Trust

NSF National Science Foundation

NSLI National Service Life Insurance

NWPA Nuclear Waste Policy Act of 1982

OASDI Old-Age, Survivors, and Disability Insurance

OASI Old-Age and Survivors Insurance

OCO Overseas Contingency Operations

OMB Office of Management and Budget

ONRR Office of Natural Resources Revenue

OPEB Other Postemployment Benefits

OPIC Overseas Private Investment Corporation

OPM Office of Personnel Management

ORB Other Retirement Benefits

PAR

PAYGO

Performance and Accountability Reports

Pay As You Go

PBGC Pension Benefit Guaranty Corporation
215 APPENDIX B 

PEFCO Private Export Funding Corporation

PMAs Power Marketing Authorities

PP&E Property, Plant, and Equipment

PPO Preferred Provider Organization

PSRHB Postal Service Retiree Health Benefits

PV Present Value

R&D Research and Development

RCRA Resource Conservation and Recovery Act

RMO Responsible Mine Operator

RRB Railroad Retirement Board

RSI Required Supplementary Information

RSSI Required Supplementary Stewardship Information

RTF

SAFRA

Reduce the Footprint

Student Aid and Fiscal Responsibility Act

SBA Small Business Administration

SCSIA Statement of Changes in Social Insurance Amounts

SDRs Special Drawing Rights

SDRCs

S-DVI

SDR Certificates

Service-Disabled Veterans Insurance

SECA Self-Employment Contributions Act

SFFAC Statement of Federal Financial Accounting Concept

SFFAS Statement of Federal Financial Accounting Standards

SGLI Service Members Group Life Insurance

SGR Sustainable Growth Rate

SLTFP Statements of Long-Term Fiscal Projections

SMI

SNF

Supplementary Medical Insurance

Spent Nuclear Fuel

SOCNP Statements of Operations and Changes in Net Position 

SOMA System Open Market Account

SOSI Statement of Social Insurance

SPSPA Senior Preferred Stock Purchase Agreements

SSA Social Security Administration

SSEB Social Security Equivalent Benefit

TFL TRICARE for Life

TIPS Treasury Inflation-Protected Securities

Treasury Department of the Treasury

TRIA

TRIP

TSF

TSGLI

Terrorism Risk Insurance Act

Terrorism Risk Insurance Program

Thrift Savings Fund

Traumatic Injury Protection Service Members Group Life Insurance

TSP Thrift Savings Plan

TVA Tennessee Valley Authority

TVARS

UI

Tennessee Valley Authority Retirement System

Unemployment Insurance
 APPENDIX B 216

U.S.C. United States Code

USDA United States Department of Agriculture

U.S. GAAP U.S. Generally Accepted Accounting Principles

USPS United States Postal Service

UTF Unemployment Trust Fund

VA Department of Veterans Affairs

VR&E Vocational Rehabilitation and Employment

VSLI Veterans Special Life Insurance
217 APPENDIX B 

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 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 218 

Independent Auditor’s Report

The President

The President of the Senate

The Speaker of the House of Representatives

In our audits of the U.S. government’s consolidated financial statements as of and for the fiscal 

years ended September 30, 2017, and 2016, we found the following:

• Certain material weaknesses1 in internal control over financial reporting and other limitations 

on the scope of our work resulted in conditions that continued to prevent us from expressing 

an opinion on the accompanying accrual-based consolidated financial statements as of and 

for the fiscal years ended September 30, 2017, and 2016.2

• Significant uncertainties (discussed in Note 22 to the consolidated financial statements), 

primarily related to the achievement of projected reductions in Medicare cost growth, 

prevented us from expressing an opinion on the sustainability financial statements,3 which 

consist of the 2017 and 2016 Statements of Long-Term Fiscal Projections;4 the 2017, 2016, 

2015, 2014, and 2013 Statements of Social Insurance;5 and the 2017 and 2016 Statements 

of Changes in Social Insurance Amounts. A material weakness in internal control also 

prevented us from expressing an opinion on the 2017 and 2016 Statements of Long-Term 

Fiscal Projections.

 1

A material weakness is a deficiency, or combination of deficiencies, in internal control over financial reporting, such 

that there is a reasonable possibility that a material misstatement of the entity’s financial statements will not be 

prevented, or detected and corrected, on a timely basis. A deficiency in internal control exists when the design or 

operation of a control does not allow management or employees, in the normal course of performing their assigned 

functions, to prevent, or detect and correct, misstatements on a timely basis.

2

The accrual-based consolidated financial statements as of and for the fiscal years ended September 30, 2017, and 

2016, consist of the (1) Statements of Net Cost, (2) Statements of Operations and Changes in Net Position, 

(3) Reconciliations of Net Operating Cost and Budget Deficit, (4) Statements of Changes in Cash Balance from 

Budget and Other Activities, and (5) Balance Sheets, including the related notes to these financial statements. Most 

revenues are recorded on a modified cash basis. We previously reported that certain material weaknesses and, for 

some years, other limitations on the scope of our work prevented us from expressing an opinion on the accrual-based 

consolidated financial statements of the U.S. government for fiscal years 1997 through 2016.

3

The sustainability financial statements are based on projections of future receipts and spending, while the accrualbased consolidated financial statements are based on historical information, including the federal government’s 

assets, liabilities, revenue and net cost.

4

The Statements of Long-Term Fiscal Projections for fiscal years 2017 and 2016 present, for all the activities of the 

federal government, the present value of projected receipts and noninterest spending under current policy without 

change, the relationship of these amounts to projected gross domestic product (GDP), and changes in the present 

value of projected receipts and noninterest spending from the prior year. The valuation date for the Statements of 

Long-Term Fiscal Projections is September 30.

5

Statements of Social Insurance are presented for the current year and each of the 4 preceding years as required by 

U.S. generally accepted accounting principles. For the Statements of Social Insurance, the valuation date is January 

1 for the Social Security and Medicare programs, October 1 for the Railroad Retirement program (January 1 for fiscal 

years 2013, 2014, and 2015), and September 30 for the Black Lung program.
219 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 

• Material weaknesses resulted in ineffective internal control over financial reporting for fiscal 

year 2017.

• Material weaknesses and other scope limitations discussed in this audit report limited tests 

of compliance with selected provisions of applicable laws, regulations, contracts, and grant 

agreements for fiscal year 2017.

The following sections of this audit report discuss in more detail (1) our report on the 

accompanying consolidated financial statements, which includes (a) two emphasis of matters—

equity investments, related to the federal government’s actions to stabilize financial markets and 

to promote economic recovery, and long-term fiscal challenges, (b) Required Supplementary 

Information (RSI),6 Required Supplementary Stewardship Information (RSSI),7 and Other 

Information8 included with the consolidated financial statements in the Fiscal Year 2017 

Financial Report of the United States Government (2017 Financial Report), and (c) information 

on Chief Financial Officers Act of 1990 (CFO Act) agency financial management systems; 

(2) our Report on Internal Control over Financial Reporting; (3) our Report on Compliance with 

Laws, Regulations, Contracts, and Grant Agreements; and (4) the Department of the Treasury’s 

(Treasury) and the Office of Management and Budget’s (OMB) comments on a draft of this audit 

report. Appendix I discusses our audit objectives, scope, and methodology.

Report on the Consolidated Financial Statements 

The Secretary of the Treasury, in coordination with the Director of OMB, is required to annually 

submit audited financial statements for the U.S. government to the President and Congress. 

GAO is required to audit these statements.9 As noted above, the consolidated financial 

statements consist of the accrual-based consolidated financial statements as of and for the 

fiscal years ended September 30, 2017, and 2016, and the sustainability financial statements, 

consisting of the 2017 and 2016 Statements of Long-Term Fiscal Projections; the 2017, 2016, 

2015, 2014, and 2013 Statements of Social Insurance; the 2017 and 2016 Statements of 

Changes in Social Insurance Amounts; and the related notes to the financial statements. 

We performed sufficient audit work to provide this report on the consolidated financial 

statements. We considered the limitations on the scope of our work regarding the accrual-based 

consolidated financial statements and the sustainability financial statements in forming our 

conclusions. Our work was performed in accordance with U.S. generally accepted government 

auditing standards.

 6

RSI consists of Management’s Discussion and Analysis and information in the Required Supplementary Information 

section of the Fiscal Year 2017 Financial Report of the United States Government.

7

RSSI consists of information on stewardship investments in the Required Supplementary Stewardship Information 

section of the Fiscal Year 2017 Financial Report of the United States Government.

8

Other information consists of information in the Fiscal Year 2017 Financial Report of the United States Government 

other than the consolidated financial statements, RSI, RSSI, the auditor’s report, and the Statement of the 

Comptroller General of the United States.

9

The Government Management Reform Act of 1994 has required such reporting, covering the executive branch of 

government, beginning with financial statements prepared for fiscal year 1997. 31 U.S.C. § 331(e). Treasury and 

OMB include the legislative and judicial branches in the consolidated financial statements as well.
 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 220 

Management’s Responsibility

Management of the federal government is responsible for (1) the preparation and fair 

presentation of annual consolidated financial statements of the U.S. government in accordance 

with U.S. generally accepted accounting principles; (2) preparing, measuring, and presenting 

RSI and RSSI in accordance with U.S. generally accepted accounting principles; 

(3) preparing and presenting other information included in documents containing the 

consolidated financial statements and auditor’s report, and ensuring the consistency of that 

information with the consolidated financial statements, RSI, and RSSI; and (4) maintaining 

effective internal control over financial reporting, including the design, implementation, and 

maintenance of internal control relevant to the preparation and fair presentation of financial 

statements that are free from material misstatement, whether due to fraud or error. 

Auditor’s Responsibility

Our responsibility is to express opinions on these consolidated financial statements based on 

conducting the audit in accordance with U.S. generally accepted government auditing 

standards. We are also responsible for applying certain limited procedures to the RSI, RSSI, 

and other information included with the consolidated financial statements. Because of the 

matters discussed below, we were unable to obtain sufficient appropriate evidence to provide a 

basis for audit opinions on the consolidated financial statements.

Basis for Disclaimers of Opinion on the Consolidated Financial Statements

Accrual-Based Consolidated Financial Statements 

The federal government is not able to demonstrate the reliability of significant portions of the 

accompanying accrual-based consolidated financial statements as of and for the fiscal years 

ended September 30, 2017, and 2016, principally resulting from limitations related to certain 

material weaknesses in internal control over financial reporting and other limitations affecting 

the reliability of these financial statements and the scope of our work as discussed below.10 As 

a result of these limitations, readers are cautioned that amounts reported in the accrual-based 

consolidated financial statements and related notes may not be reliable.

The federal government did not maintain adequate systems or have sufficient appropriate 

evidence to support certain material information reported in the accompanying accrual-based 

consolidated financial statements. The underlying material weaknesses in internal control, which 

have existed for years, contributed to our disclaimer of opinion on the accrual-based 

consolidated financial statements. Specifically, these weaknesses concerned the federal 

government’s inability to

 10Such limitations include (1) the Department of Defense, the Department of Housing and Urban Development, and 

the Railroad Retirement Board each received a disclaimer of opinion on their respective fiscal year 2017 financial 

statements; (2) the Department of Energy’s audited financial statements for fiscal year 2017 were not issued as of the 

date of this audit report; (3) the Department of Agriculture obtained an unmodified opinion on its consolidated Balance 

Sheet as of September 30, 2017, but its consolidated Statement of Net Cost, consolidated Statement of Changes in 

Net Position, combined Statement of Budgetary Resources, and the related Notes for the fiscal year ended 

September 30, 2017, were not audited; and (4) for fiscal year 2017, the financial information for Defense Security 

Cooperation Agency and the General Fund of the U.S. Government was not audited.
221 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 

• satisfactorily determine that property, plant, and equipment and inventories and related 

property, primarily held by the Department of Defense (DOD), were properly reported in the 

accrual-based consolidated financial statements; 

• reasonably estimate or adequately support amounts reported for certain liabilities, such as 

environmental and disposal liabilities, or determine whether commitments and contingencies 

were complete and properly reported; 

• support significant portions of the reported total net cost of operations, most notably related 

to DOD, and adequately reconcile disbursement activity at certain federal entities;

• adequately account for and reconcile intragovernmental activity and balances between 

federal entities; 

• reasonably assure that the consolidated financial statements are (1) consistent with the 

underlying audited entities’ financial statements, (2) properly balanced, and (3) in 

accordance with U.S. generally accepted accounting principles; and 

• reasonably assure that the information in the (1) Reconciliations of Net Operating Cost and 

Budget Deficit and (2) Statements of Changes in Cash Balance from Budget and Other 

Activities is complete and consistent with the underlying information in the audited entities’ 

financial statements and other financial data. 

These material weaknesses continued to (1) hamper the federal government’s ability to reliably 

report a significant portion of its assets, liabilities, costs, and other related information; (2) affect 

the federal government’s ability to reliably measure the full cost, as well as the financial and 

nonfinancial performance, of certain programs and activities; (3) impair the federal government’s 

ability to adequately safeguard significant assets and properly record various transactions; and 

(4) hinder the federal government from having reliable financial information to operate in an 

efficient and effective manner. Due to these material weaknesses and to other limitations on the 

scope of our work discussed below, additional issues may exist that were not identified and 

could affect the accrual-based consolidated financial statements. Appendix II describes these 

material weaknesses in more detail and highlights the primary effects of these material 

weaknesses on the accompanying accrual-based consolidated financial statements and on the 

management of federal government operations.

Sustainability Financial Statements

Significant uncertainties (discussed in Note 22 to the consolidated financial statements), which 

primarily relate to the achievement of projected reductions in Medicare cost growth, affect the 

sustainability financial statements. In addition, the material weakness related to the 

Reconciliations of Net Operating Cost and Budget Deficit and the Statements of Changes in 

Cash Balance from Budget and Other Activities, discussed above, hampers the federal 

government’s ability to demonstrate the reliability of historical budget information used for 

certain key inputs to the 2017 and 2016 Statements of Long-Term Fiscal Projections. As a result 

of these significant uncertainties and this material weakness, readers are cautioned that 

amounts reported in the 2017 and 2016 Statements of Long-Term Fiscal Projections; the 2017, 

2016, 2015, 2014, and 2013 Statements of Social Insurance; the 2017 and 2016 Statements of 

Changes in Social Insurance Amounts; and the related notes to these financial statements may 
 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 222 

not fairly present, in all material respects, the sustainability information for those years in 

accordance with U.S. generally accepted accounting principles.

For 2017 and 2016, these significant uncertainties primarily relate to the following.

• Medicare projections in the 2017 and 2016 Statements of Long-Term Fiscal Projections and 

the 2017, 2016, and 2015 Statements of Social Insurance were based on benefit formulas 

under current law and included a significant reduction in Medicare payment rate updates for 

productivity improvements for most categories of Medicare providers,11 based on full 

implementation of the provisions of the Patient Protection and Affordable Care Act, as 

amended (ACA),12 and physician payment updates specified by the Medicare Access and 

CHIP Reauthorization Act of 2015 (MACRA).13

• Management has noted that actual future costs for Medicare are likely to exceed those 

shown by the current law projections presented in the 2017, 2016, and 2015 Statements of 

Social Insurance due, for example, to the likelihood of modifications to the scheduled 

reductions in Medicare payment rate updates for productivity adjustments relating to most 

categories of Medicare providers and to the specified physician payment updates. The 

extent to which actual future costs exceed the current law amounts due to changes to the 

scheduled reductions in Medicare payment rate updates for productivity adjustments and to 

specified physician payment updates depends on both the specific changes that might be 

enacted and whether enacted legislation would include further provisions to help offset such 

costs. Consequently, there are significant uncertainties concerning the achievement of these 

projected reductions in Medicare payment rate updates.

• Management has developed an illustrative alternative projection intended to provide 

additional context regarding the long-term sustainability of the Medicare program and to 

illustrate the uncertainties in the Statement of Social Insurance projections. The present 

value of future estimated expenditures in excess of future estimated revenue for Medicare, 

included in the illustrative alternative projection in Note 22, exceeds the $33.5 trillion 

estimate in the 2017 Statement of Social Insurance by $12.0 trillion. 

• Management noted that these significant uncertainties about projected reductions in health 

care cost growth also affect the projected Medicare and Medicaid costs reported in the 2017 

and 2016 Statements of Long-Term Fiscal Projections.

 11Under the Patient Protection and Affordable Care Act’s productivity adjustment provisions, productivity

improvements are expected to result in lower overall Medicare spending due to smaller annual increases in the 

Medicare payment rates paid to many health care providers. This is often referred to as a reduction in Medicare 

payment rate updates. The health care provider categories affected include, but are not limited to, inpatient/outpatient 

hospital services, skilled nursing facilities, home health care, ambulance, ambulatory surgical centers, durable 

medical equipment, and prosthetics.

12ACA, Pub. L. No. 111-148, 124 Stat. 119 (Mar. 23, 2010), as amended by the Health Care and Education 

Reconciliation Act of 2010, Pub. L. No. 111-152, 124 Stat. 1029 (Mar. 30, 2010). In this report, references to the ACA 

include any amendments made by the Health Care and Education Reconciliation Act of 2010.

13MACRA, Pub. L. No. 114-10, title I, § 101, 129 Stat. 87, 89 (Apr. 16, 2015). MACRA included many provisions that 

affect Medicare, including the repeal of the sustainable growth rate formula for calculating annual updates to 

Medicare reimbursement payment rates to physicians and certain nonphysician medical providers and established an 

alternative set of annual updates.
223 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 

The 2014 and 2013 Statements of Social Insurance were affected by significant uncertainties, 

primarily related to the achievement of projected reductions in Medicare payment rate updates 

for productivity improvements. The 2013 Statement of Social Insurance was also affected by 

uncertainties related to projected reductions in Medicare payment rates for physician services. 

Specifically, the Medicare projections in the 2013 Statement of Social Insurance were based on 

benefit formulas in current law and included significant reductions in Medicare payment rates for 

productivity improvements and physician services. 

The 2014 Statement of Social Insurance reflected a change from the assumption regarding 

scheduled reductions in Medicare payment rates for physician services that was used in the 

2013 Statement of Social Insurance. Specifically, the 2014 Statement of Social Insurance 

reflected a projected baseline that assumed that the physician payment rate reductions would 

not occur and that physician payment rates would annually increase at a rate equal to the 

average sustainable growth rate override that occurred over the 10-year period ending on 

March 31, 2015. For 2014 and 2013, management noted that actual future costs for Medicare 

were likely to exceed those shown by the current law projections presented in the 2014 and 

2013 Statements of Social Insurance due, for example, to the likelihood of modifications to the 

scheduled reductions in Medicare payment rates for productivity adjustments. 

Projections of Medicare costs are sensitive to assumptions about future decisions by 

policymakers and about the behavioral responses of consumers, employers, and health care 

providers as policy, incentives, and the health care sector change over time. Such secondary 

impacts are not fully reflected in the sustainability financial statements but could be expected to 

influence the excess cost growth rate used in the projections.14 Key drivers of uncertainty about 

the excess cost growth rate include the future development and deployment of medical 

technology, the evolution of personal income, and the cost and availability of insurance, as well 

as federal policy changes, such as the implementation of the ACA. The Required 

Supplementary Information section of the 2017 Financial Report includes unaudited information 

concerning how changes in various assumptions would change the present value of future 

estimated expenditures in excess of future estimated revenue. As discussed in that section, the 

projections are very sensitive to changes in the health care cost growth assumption.

As discussed in Notes 22 and 23 to the financial statements, the sustainability financial 

statements are based on management’s assumptions. These sustainability financial statements 

present the present value of the U.S. government’s estimated future receipts and future 

spending using a projection period sufficient to illustrate long-term sustainability.15 The 

sustainability financial statements are intended to aid users in assessing whether future 

resources will likely be sufficient to sustain public services and to meet obligations as they come 

due. The Statements of Social Insurance and Changes in Social Insurance Amounts are based 

on income and benefit formulas in current law (except for the 2014 Medicare projections, which 

use the projected baseline) and assume that scheduled benefits will continue after any related 

trust funds are exhausted. The Statements of Long-Term Fiscal Projections are based on the 

continuation of current policy and also assume that scheduled benefits will continue after any 

related trust funds are exhausted. The sustainability financial statements are not forecasts or 

predictions.

 14The excess cost growth rate is the increase in health care spending per person relative to the growth of GDP per 

person after removing the effects of demographic changes on health care spending.

15The projection period used for the Social Security, Medicare, and Railroad Retirement social insurance programs is 

75 years. Beginning in fiscal year 2017, the Black Lung program has a rolling 25-year projection period. For fiscal 

years 2013 through 2016, the Black Lung program projection period was through September 30, 2040.
 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 224 

In preparing the sustainability financial statements, management considers and selects 

assumptions and data that it believes provide a reasonable basis to illustrate whether current 

policy or law is sustainable. Assumptions underlying such sustainability information do not 

consider changes in policy or all potential future events that could affect future receipts, future 

spending, and sustainability, such as, for example, implementation of policy changes to avoid 

trust fund exhaustion or unsustainable debt levels.

As discussed in the unaudited Required Supplementary Information section of the 2017 

Financial Report, the Social Security and Medicare Hospital Insurance (Part A) trust funds are, 

based on achievement of the cost reductions discussed above, projected to be exhausted in 

2034 and 2029, respectively, at which time they would be unable to pay the full amount of 

scheduled future benefits.16 For Social Security, future revenues were projected to be sufficient 

to pay 77 percent of scheduled benefits in 2034, the year of projected trust funds (combined) 

exhaustion, and decreasing to 73 percent of scheduled benefits in 2091. For Medicare Hospital 

Insurance (Part A), future revenues were projected to be sufficient to pay 88 percent of 

scheduled benefits in 2029, the year of projected trust fund exhaustion, declining to 81 percent 

by 2041, and then gradually increasing to 88 percent of scheduled benefits again in 2091.

Because of the large number of factors that affect the sustainability financial statements and the 

fact that future events and circumstances cannot be estimated with certainty, even if current 

policy is continued, there will be differences between the estimates in the sustainability financial 

statements and the actual results, and those differences may be material.

Other Limitations on the Scope of Our Work

For fiscal years 2017 and 2016, there were other limitations on the scope of our work, in 

addition to the material weaknesses and significant uncertainties noted above, that contributed 

to our disclaimers of opinion on the consolidated financial statements. Such limitations primarily 

relate to our ability to obtain adequate representations from management. Treasury and OMB 

depend on representations from certain federal entities to provide their representations to us 

regarding the U.S. government’s consolidated financial statements. Treasury and OMB were 

unable to provide us with adequate representations regarding the U.S. government’s accrualbased consolidated financial statements for fiscal years 2017 and 2016, primarily because of 

insufficient or no representations provided to them by certain federal entities, including DOD.

Disclaimers of Opinion on the Consolidated Financial Statements

Accrual-Based Consolidated Financial Statements 

Because of the significance of the related matters described in the Basis for Disclaimer of 

Opinion paragraphs above, we were not able to obtain sufficient appropriate audit evidence to 

provide a basis for an audit opinion on the accrual-based consolidated financial statements. 

Accordingly, we do not express an opinion on the accrual-based consolidated financial 

statements as of and for the fiscal years ended September 30, 2017, and 2016.

 16The combined Social Security trust funds consist of the Federal Old-Age and Survivors Insurance trust fund and the 

Federal Disability Insurance trust fund, whose assets are projected to be exhausted in 2035 and 2028, respectively.
225 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 

Sustainability Financial Statements

Because of the significance of the related matters described in the Basis for Disclaimer of 

Opinion paragraphs above, we were not able to obtain sufficient appropriate audit evidence to 

provide a basis for an audit opinion on the Statements of Long-Term Fiscal Projections for 2017 

and 2016; the Statements of Social Insurance for 2017, 2016, 2015, 2014, and 2013; and the 

Statements of Changes in Social Insurance Amounts for 2017 and 2016. Accordingly, we do not 

express an opinion on these sustainability financial statements.

Emphasis of Matters

The following key items deserve emphasis in order to put the information contained in the 

consolidated financial statements and the Management’s Discussion and Analysis section of the 

2017 Financial Report into context. However, our disclaimers of opinion noted above are not 

modified with respect to these matters.

Equity Investments Related to the Federal Government’s Actions to Stabilize 

Financial Markets and to Promote Economic Recovery 

In 2008, during the financial crisis, the federal government placed the Federal National 

Mortgage Association (Fannie Mae) and the Federal Home Loan Mortgage Corporation 

(Freddie Mac) under conservatorship and entered into preferred stock purchase agreements 

with these government-sponsored enterprises (GSE) to help ensure their financial stability. The 

agreements with the GSEs could affect the federal government’s financial position. As of 

September 30, 2017, the federal government continued to report about $93 billion of 

investments in the GSEs, which is net of about $102 billion in valuation losses. 

In valuing these equity investments, management considered and selected assumptions and 

data that it believed provided a reasonable basis for the estimated values reported in the 

accrual-based consolidated financial statements. However, as discussed in Note 1 to the 

consolidated financial statements, there are many factors affecting these assumptions and 

estimates that are inherently subject to substantial uncertainty arising from the uniqueness of 

the transactions and the likelihood of future changes in general economic, regulatory, and 

market conditions. As such, there will be differences between the estimated values as of 

September 30, 2017, and the actual results, and such differences may be material. Also, as 

discussed in Note 1 to the consolidated financial statements, the financial statements do not 

include the assets, liabilities, or results of operations of entities in which Treasury holds either a 

direct, indirect, or beneficial equity interest. Treasury and OMB have determined that none of 

the entities meet the criteria for a federal entity.17

Long-Term Fiscal Challenges

The 2017 Statement of Long-Term Fiscal Projections and related information in Note 23 and in 

the unaudited Required Supplementary Information section of the 2017 Financial Report show 

that absent policy changes, the federal government continues to face an unsustainable long-

 17For additional information on the criteria used to determine which federal entities are included in the reporting entity 

for the consolidated financial statements, as well as the reasons for not including certain entities, such as Fannie Mae 

and Freddie Mac, see app. A of the 2017 Financial Report. 
 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 226 

term fiscal path.18 For the 2017 projections, debt-to-gross domestic product (GDP) at the end of 

the 75-year projection period was higher than in the 2016 and 2015 projections. The budget 

deficit increased for the second consecutive year in fiscal year 2017. Although the budget deficit 

projections in the 2017 Financial Report show a slight improvement in the near term with the 

budget deficit below current levels for the next 5 years, it increases beginning in 2023. Over the 

long term, the imbalance between spending and revenue that is built into current law and policy 

is projected to lead to continued growth of the deficit and debt held by the public as a share of 

GDP. This situation—in which debt grows faster than GDP—means the current federal fiscal 

path is unsustainable.

Under these projections, spending for the major health and retirement programs are projected to 

increase more rapidly than GDP in the coming decades due to an aging population and 

projected continued increases in health care costs. The projections for Social Security and 

Medicare are based on the same assumptions underlying the information presented in the 

Statement of Social Insurance and assume that the provisions enacted in the ACA designed to 

slow the growth of Medicare costs are sustained and remain effective throughout the projection 

period.19 They also reflect the effects of MACRA, which, among other things, revised the 

methodology for determining physician payment rates. If, however, the Medicare cost 

containment measures and physician payment rate methodology are not sustained over the 

long term—concerns expressed by the Trustees of the Medicare trust funds, the Centers for 

Medicare & Medicaid Services’ Chief Actuary, the Congressional Budget Office (CBO), and 

others—spending on federal health care programs will grow more rapidly than assumed in the 

projections. 

GAO and CBO prepare long-term federal fiscal simulations, which also continue to show debt 

held by the public rising as a share of GDP in the long term.20 GAO, CBO, and the 2017 

Statement of Long-Term Fiscal Projections all project that debt held by the public as a share of 

GDP will surpass its historical high (106 percent in 1946) within the next 14 to 22 years. The 

Tax Cuts and Jobs Act will hold important implications for this timeframe. All of these long-term 

projections each use somewhat different assumptions, but their results are the same; absent 

policy changes, the federal government’s fiscal path is unsustainable. 

At the end of fiscal year 2017, debt held by the public reached about 76 percent of GDP, far 

above the post-World War II (since 1946) average of 45 percent. Debt held by the public at 

these high levels could limit the federal government’s flexibility to address emerging issues and 

unforeseen challenges, such as another economic downturn or large-scale disaster. These 

 18The 2017 Statement of Long-Term Fiscal Projections is based on current policy as of September 30, 2017. 

Therefore, the 2017 projections, related footnotes, and Required Supplementary Information do not reflect the effects 

of the Tax Cuts and Jobs Act, Pub. L. No. 115-97, 131 Stat. 2054, enacted on December 22, 2017, or any other 

legislation enacted after September 30, 2017 that changes policy that was in effect as of the end of the fiscal year. 

Management notes that next year’s 2018 Statement of Long-Term Fiscal Projections in the Financial Report will 

incorporate the effects of such legislation enacted after September 30, 2017, based on an updated economic forecast 

and other economic developments.

19ACA, Pub. L. No. 111-148, 124 Stat. 119 (Mar. 23, 2010), as amended by the Health Care and Education 

Reconciliation Act of 2010, Pub. L. No. 111-152, 124 Stat. 1029 (Mar. 30, 2010).

20Similar to the 2017 Statement of Long-Term Fiscal Projections, GAO and CBO simulations also do not reflect the 

effects of the Tax Cuts and Jobs Act or other legislation enacted after September 30, 2017. For more information on 

GAO’s simulations, see GAO, The Nation’s Fiscal Health: Action is Needed to Address the Federal Government’s 

Fiscal Future, GAO-17-237SP (Washington, D.C.: Jan. 17, 2017). For more information on CBO’s simulations, see 

Congressional Budget Office, The 2017 Long-Term Budget Outlook (Washington, D.C.: March 2017). 
227 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 

unforeseen events, also known as fiscal risks or fiscal exposures, place additional pressure on 

the federal budget. They are responsibilities, programs, and activities that may legally commit or 

create expectations for future federal spending based on current policy, past practices, or other 

factors.21 A more complete understanding of them can help policymakers anticipate changes in 

future spending and can enhance oversight of federal resources. 

Other Matters

Required Supplementary Information and Required Supplementary Stewardship 

Information

U.S. generally accepted accounting principles issued by the Federal Accounting Standards 

Advisory Board (FASAB) require that RSI and RSSI be presented in the 2017 Financial Report

to supplement the financial statements. Although RSI and RSSI are not a part of the financial 

statements, FASAB considers this information to be an essential part of financial reporting for 

placing the financial statements in appropriate operational, economic, or historical context. We 

were unable to apply certain limited procedures to the RSI and RSSI in accordance with U.S. 

generally accepted government auditing standards because of the material weaknesses and 

other scope limitations discussed in this audit report. We did not audit and do not express an 

opinion or provide any assurance on the RSI or RSSI. 

Other Information

Other information included in the 2017 Financial Report contains a wide range of information, 

some of which is not directly related to the consolidated financial statements. This information is 

presented for purposes of additional analysis and is not a required part of the consolidated 

financial statements, RSI, or RSSI. We read the other information included with the consolidated 

financial statements in order to identify material inconsistencies, if any, with the consolidated 

financial statements. We did not audit and do not express an opinion or provide any assurance 

on the other information in the 2017 Financial Report.

Readers are cautioned that the material weaknesses, significant uncertainties, and other scope 

limitations discussed in this audit report may affect the reliability of certain information contained 

in the RSI, RSSI, and other information that is taken from the same data sources as the accrualbased consolidated financial statements and the sustainability financial statements.

CFO Act Agency Financial Management Systems

The federal government’s ability to efficiently and effectively manage and oversee its day-to-day 

operations and programs relies heavily on the ability of entity financial management systems to 

produce complete, reliable, timely, and consistent financial information for use by executive 

branch agencies and Congress.22 The Federal Financial Management Improvement Act of 1996 

(FFMIA) was designed to lead to system improvements that would result in CFO Act agency 

managers routinely having access to reliable, useful, and timely financial-related information 

with which to measure performance and increase accountability throughout the year. 

 21GAO-17-237SP.

22The Federal Financial Management Improvement Act of 1996, which is reprinted in 31 U.S.C. § 3512 note, defines 

“financial management systems” to include the financial systems and the financial portions of mixed systems 

necessary to support financial management, including automated and manual processes, procedures, controls, data, 

hardware, software, and support personnel dedicated to the operation and maintenance of system functions.
 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 228 

The 24 CFO Act agencies are responsible for implementing and maintaining financial 

management systems that substantially comply with the requirements of FFMIA. FFMIA 

requires auditors, as part of the 24 CFO Act agencies’ financial statement audits, to report 

whether those agencies’ financial management systems substantially comply with (1) federal 

financial management systems requirements, (2) applicable federal accounting standards, and 

(3) the federal government’s U.S. Standard General Ledger at the transaction level. 

For fiscal year 2017, auditors at 10 of 23 CFO Act agencies reported that the agencies’ financial 

management systems did not substantially comply with one or more of the three FFMIA 

requirements.23 For fiscal year 2016, auditors at 11 of the 24 CFO Act agencies reported that 

the agencies’ financial management systems did not substantially comply with one or more of 

the three FFMIA requirements. Agency management at the 24 CFO Act agencies also annually 

report on FFMIA compliance. For fiscal year 2017, agency management at 8 of 23 CFO Act 

agencies reported that their agencies’ financial management systems did not substantially 

comply with one or more of the three FFMIA requirements. For fiscal year 2016, agency 

management at 9 of the 24 CFO Act agencies reported that their agencies’ financial 

management systems did not substantially comply with one or more of the three FFMIA 

requirements. Based on agency financial reports, differences in the assessments of substantial 

compliance between the auditors and agency management reflect differences in management’s 

and auditors’ views regarding the impact of reported deficiencies on agencies’ financial 

management systems. 

Long-standing financial management systems weaknesses at several large CFO Act agencies, 

along with the size and complexity of the federal government, continue to present a formidable 

management challenge in providing accountability to the nation’s taxpayers and have 

contributed significantly to certain of the material weaknesses and other limitations discussed in 

this audit report.

Report on Internal Control over Financial Reporting

Management’s Responsibility

Management of the federal government is responsible for (1) maintaining effective internal 

control over financial reporting, including the design, implementation, and maintenance of 

internal control relevant to the preparation and fair presentation of financial statements that are 

free from material misstatement, whether due to fraud or error, and (2) evaluating the 

effectiveness of internal control over financial reporting, based on criteria established under the 

Federal Managers’ Financial Integrity Act (FMFIA).24

 23As of the issue date of this audit report, the audited financial statements were not issued for one of the CFO Act 

agencies—the Department of Energy.

2431 U.S.C. § 3512 (c), (d) (commonly referred to as FMFIA). This act requires executive agency heads to evaluate 

and report annually to the President and Congress on the adequacy of their internal control and accounting systems 

and on actions to correct significant problems. 
229 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 

Auditor’s Responsibility

The purpose of an audit of financial statements is to express an opinion on the financial 

statements. An audit of financial statements includes considering internal control over financial 

reporting to design audit procedures that are appropriate in the circumstances, but not for the 

purpose of expressing an opinion on the effectiveness of internal control over financial reporting. 

Accordingly, we do not express an opinion on the effectiveness of internal control over financial 

reporting. We did not consider all internal controls relevant to operating objectives as broadly 

established under FMFIA, such as those controls relevant to preparing performance information 

and ensuring efficient operations. 

Our responsibility is to report any material weaknesses or significant deficiencies in internal 

control over financial reporting for fiscal year 2017 that come to our attention as a result of our 

audit.25 Based on the scope of our work and the effects of the other limitations on the scope of 

our audit noted throughout this audit report, our internal control work was not designed to, and 

would not necessarily, identify all deficiencies in internal control, including those that might be 

material weaknesses or significant deficiencies. Therefore, additional material weaknesses or 

significant deficiencies may exist that were not identified. Our work was performed in 

accordance with U.S. generally accepted government auditing standards.

Definitions and Inherent Limitations of Internal Control over Financial Reporting

An entity’s internal control over financial reporting is a process effected by those charged with 

governance, management, and other personnel, the objectives of which are to provide 

reasonable assurance that (1) transactions are properly recorded, processed, and summarized 

to permit the preparation of financial statements in accordance with U.S. generally accepted 

accounting principles, and assets are safeguarded against loss from unauthorized acquisition, 

use, or disposition, and (2) transactions are executed in accordance with provisions of 

applicable laws (including those governing the use of budget authority), regulations, contracts, 

and grant agreements, noncompliance with which could have a material effect on the financial 

statements.

Because of its inherent limitations, internal control over financial reporting may not prevent, or 

detect and correct, misstatements due to fraud or error.

Material Weaknesses Resulted in Ineffective Internal Control over Financial Reporting 

The material weaknesses discussed in this audit report resulted in ineffective internal control 

over financial reporting. Consequently, the federal government’s internal control did not provide 

reasonable assurance that a material misstatement of the consolidated financial statements 

would be prevented, or detected and corrected, on a timely basis. 

In addition to the material weaknesses that contributed to our disclaimers of opinion on the 

accrual-based consolidated financial statements and the sustainability financial statements, 

which were discussed previously, we found the following three other material weaknesses in 

internal control. These other material weaknesses were the federal government’s inability to 

 25A significant deficiency is a deficiency, or a combination of deficiencies, in internal control over financial reporting 

that is less severe than a material weakness, yet important enough to merit attention by those charged with 

governance. 
 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 230 

• determine the full extent to which improper payments occur and reasonably assure that 

appropriate actions are taken to reduce them, 

• identify and resolve information security control deficiencies and manage information 

security risks on an ongoing basis, and

• effectively manage its tax collection activities.

These material weaknesses are discussed in more detail in appendix III, including the primary 

effects of the material weaknesses on the accompanying accrual-based consolidated financial 

statements and on the management of federal government operations.

We also found two significant deficiencies in the federal government’s internal control related to 

implementing effective internal controls at certain federal entities for the following areas:

• loans receivable and loan guarantee liabilities and

• federal grants management.

These significant deficiencies are discussed in more detail in appendix IV.

Further, individual federal entity financial statement audit reports identified additional control 

deficiencies that were reported by the entities’ auditors as either material weaknesses or 

significant deficiencies at the individual entity level. We do not consider these additional 

deficiencies to represent material weaknesses or significant deficiencies with respect to the U.S. 

government’s consolidated financial statements.

Intended Purpose of Report on Internal Control over Financial Reporting

The purpose of this report on internal control over financial reporting is solely to describe the 

scope of our consideration of internal control over financial reporting, and the results of our 

procedures, and not to provide an opinion on the effectiveness of internal control over financial 

reporting. This report on internal control over financial reporting is an integral part of an audit 

performed in accordance with U.S. generally accepted government auditing standards. 

Accordingly, this report on internal control over financial reporting is not suitable for any other 

purpose.

Report on Compliance with Laws, Regulations, Contracts, and Grant Agreements

Management’s Responsibility

Management of the federal government is responsible for the federal government’s compliance 

with laws, regulations, contracts, and grant agreements. 

Auditor’s Responsibility

An audit of federal financial statements includes testing compliance with selected provisions of 

applicable laws, regulations, contracts, and grant agreements that have a direct effect on the 

determination of material amounts and disclosures in the consolidated financial statements, and 

performing certain other limited procedures. Accordingly, we did not test the federal 
231 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 

government’s compliance with all laws, regulations, contracts, and grant agreements. Due to the 

limitations discussed below and the scope of our procedures, noncompliance may occur and not 

be detected by these tests. 

Our objective was not to provide an opinion on the federal government’s compliance with laws, 

regulations, contracts, and grant agreements. Accordingly, we do not express such an opinion. 

Our work was performed in accordance with U.S. generally accepted government auditing 

standards.

Results of Our Tests for Compliance with Laws, Regulations, Contracts, and Grant Agreements

Our work to test compliance with selected provisions of applicable laws, regulations, contracts, 

and grant agreements was limited by certain of the material weaknesses and other scope 

limitations discussed in this audit report. U.S. generally accepted government auditing 

standards and OMB guidance require auditors to report on entities’ compliance with selected 

provisions of applicable laws, regulations, contracts, and grant agreements. Certain component 

entity audit reports contain instances of noncompliance. None of these instances were deemed 

to be reportable noncompliance with regard to the accompanying U.S. government’s 

consolidated financial statements.

Intended Purpose of Report on Compliance with Laws, Regulations, Contracts, and Grant 

Agreements

The purpose of this report on compliance with laws, regulations, contracts, and grant 

agreements is solely to describe the scope of our testing of compliance with selected provisions 

of applicable laws, regulations, contracts, and grant agreements, and the results of that testing, 

and not to provide an opinion on compliance. This report on compliance with laws, regulations, 

contracts, and grant agreements is an integral part of an audit performed in accordance with 

U.S. generally accepted government auditing standards in considering compliance. Accordingly, 

this report on compliance with laws, regulations, contracts, and grant agreements is not suitable 

for any other purpose.

Agency Comments

We provided a draft of this audit report to Treasury and OMB officials, who provided technical 

comments that we have incorporated as appropriate. Treasury and OMB officials expressed 

their continuing commitment to addressing the problems this report outlines. 

Robert F. Dacey

Chief Accountant

U.S. Government Accountability Office

February 7, 2018
 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 232 

Appendix I

Objectives, Scope, and Methodology

Our objectives were to audit the consolidated financial statements consisting of the (1) accrualbased consolidated financial statements as of and for the fiscal years ended September 30, 

2017, and 2016, and (2) sustainability financial statements, which consist of the 2017 and 2016 

Statements of Long-Term Fiscal Projections; the 2017, 2016, 2015, 2014, and 2013 Statements 

of Social Insurance; and the 2017 and 2016 Statements of Changes in Social Insurance 

Amounts. Our objectives also included reporting on internal control over financial reporting and 

on compliance with selected provisions of applicable laws, regulations, contracts, and grant 

agreements. 

The Chief Financial Officers Act of 1990 (CFO Act), as expanded by the Government 

Management Reform Act of 1994 (GMRA), requires the inspectors general of the 24 CFO Act 

agencies to be responsible for annual audits of agency-wide financial statements prepared by 

these agencies.26 GMRA requires GAO to be responsible for the audit of the U.S. government’s 

consolidated financial statements,27 and the Accountability of Tax Dollars Act of 2002 (ATDA) 

requires most other executive branch entities to annually prepare financial statements and have 

them audited.28 The Office of Management and Budget and the Department of the Treasury 

(Treasury) have identified 39 federal entities that are significant to the U.S. government’s fiscal 

year 2017 consolidated financial statements, including the 24 CFO Act agencies.29 We consider 

these 39 entities to be significant component entities for purposes of our audit of the 

consolidated financial statements. Our work was performed in coordination and cooperation with 

the inspectors general and independent public accountants for these significant component 

entities to achieve our respective audit objectives. Our audit approach regarding the accrualbased consolidated financial statements primarily focused on determining the current status of 

the material weaknesses that contributed to our disclaimer of opinion on the accrual-based 

consolidated financial statements and the other material weaknesses affecting internal control 

that we reported in our report on the consolidated financial statements for fiscal year 2016.30 We 

also separately audited the financial statements of certain component entities, and parts of a 

significant component entity, including the following. 

• We audited and expressed an unmodified opinion on the Internal Revenue Service’s (IRS) 

financial statements as of and for the fiscal years ended September 30, 2017, and 2016.31 In 

fiscal years 2017 and 2016, IRS collected about $3.4 trillion and $3.3 trillion, respectively, in 

tax payments each year and paid about $437 billion and $426 billion, respectively, in 

refunds to taxpayers. For fiscal year 2017, we continued to report a material weakness in 

 2631 U.S.C. § 3521(e). GMRA authorized the Office of Management and Budget to designate agency components 

that also would receive financial statement audits. See 31 U.S.C. § 3515(c).

27GMRA, Pub. L. No. 103-356, § 405(c), 108 Stat. 3410, 3416-17 (Oct. 13, 1994), codified at 31 U.S.C. § 331(e)(2). 

28ATDA, Pub. L. No. 107-289, 116 Stat. 2049 (Nov. 7, 2002), codified at 31 U.S.C. § 3515.

29See Treasury Financial Manual, vol. I, pt. 2, ch. 4700, for a listing of the 39 entities.

30GAO, Financial Audit: Fiscal Years 2016 and 2015 Consolidated Financial Statements of the U.S. Government, 

GAO-17-283R (Washington, D.C.: Jan. 12, 2017). 

31GAO, Financial Audit: IRS’s Fiscal Years 2017 and 2016 Financial Statements, GAO-18-165 (Washington, D.C.: 

Nov. 9, 2017). 
233 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 

internal control over unpaid assessments that resulted in ineffective internal control over 

financial reporting. In addition, we continued to report a significant deficiency in IRS’s 

internal control over financial reporting systems. We also reported that we found no 

reportable noncompliance for fiscal year 2017 with provisions of applicable laws, 

regulations, contracts, and grant agreements we tested. 

• We audited and expressed an unmodified opinion on the Schedules of Federal Debt 

managed by Treasury’s Bureau of the Fiscal Service (Fiscal Service) for the fiscal years 

ended September 30, 2017, and 2016.32 For these 2 fiscal years, the schedules reported 

(1) approximately $14.7 trillion (2017) and $14.2 trillion (2016) of federal debt held by the 

public,33 (2) about $5.6 trillion (2017) and $5.4 trillion (2016) of intragovernmental debt 

holdings,34 and (3) about $296 billion (2017) and $273 billion (2016) of interest on federal 

debt held by the public. We also reported that although internal controls could be improved, 

Fiscal Service maintained, in all material respects, effective internal control over financial 

reporting relevant to the Schedule of Federal Debt as of September 30, 2017. In addition, 

we reported that we found no reportable noncompliance for fiscal year 2017 with provisions 

of applicable laws, regulations, contracts, and grant agreements we tested related to the 

Schedule of Federal Debt.

• We audited and expressed unmodified opinions on the U.S. Securities and Exchange 

Commission’s (SEC) and its Investor Protection Fund’s (IPF) financial statements as of and 

for the fiscal years ended September 30, 2017, and 2016.35 We also reported that SEC 

maintained, in all material respects, effective internal control over financial reporting for both 

the entity as a whole and IPF as of September 30, 2017. In addition, we reported that we 

found no reportable noncompliance for either SEC or IPF for fiscal year 2017 with provisions 

of applicable laws, regulations, contracts, and grant agreements we tested. 

• We audited and expressed an unmodified opinion on the Federal Housing Finance Agency’s 

(FHFA) financial statements as of and for the fiscal years ended September 30, 2017, and 

2016.36 We also reported that FHFA maintained, in all material respects, effective internal 

control over financial reporting as of September 30, 2017. In addition, we reported that we 

found no reportable noncompliance for fiscal year 2017 with provisions of applicable laws, 

regulations, contracts, and grant agreements we tested.

 32GAO, Financial Audit: Bureau of the Fiscal Service’s Fiscal Years 2017 and 2016 Schedules of Federal Debt, GAO18-134 (Washington, D.C.: Nov. 9, 2017). 

33Debt held by the public on the Schedules of Federal Debt represents federal debt issued by Treasury and held by 

investors outside of the federal government, including individuals, corporations, state or local governments, the 

Federal Reserve, and foreign governments.

34Intragovernmental debt holdings represent federal debt owed by Treasury to federal government accounts, primarily 

federal trust funds, such as Social Security and Medicare. 

35GAO, Financial Audit: Securities and Exchange Commission’s Fiscal Years 2017 and 2016 Financial Statements, 

GAO-18-186R (Washington, D.C.: Nov. 15, 2017).

36GAO, Financial Audit: Federal Housing Finance Agency’s Fiscal Years 2017 and 2016 Financial Statements, GAO18-166R (Washington, D.C.: Nov. 15, 2017). 
 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 234 

• We audited and expressed an unmodified opinion on the Office of Financial Stability’s (OFS) 

financial statements for the Troubled Asset Relief Program (TARP) as of and for the fiscal 

years ended September 30, 2017, and 2016.37 We also reported that OFS maintained, in all 

material respects, effective internal control over financial reporting for TARP as of 

September 30, 2017. In addition, we reported that we found no reportable noncompliance 

for fiscal year 2017 with provisions of applicable laws, regulations, contracts, and grant 

agreements we tested.

• We audited and expressed an unmodified opinion on the Bureau of Consumer Financial 

Protection’s (CFPB) financial statements as of and for the fiscal years ended September 30, 

2017, and 2016.38 We also reported that CFPB maintained, in all material respects, effective 

internal control over financial reporting as of September 30, 2017. In addition, we reported 

that we found no reportable noncompliance for fiscal year 2017 with provisions of applicable 

laws, regulations, contracts, and grant agreements we tested. 

In addition, we considered the CFO Act agencies’ and certain other federal entities’ fiscal years 

2017 and 2016 financial statements and the related auditors’ reports prepared by the inspectors 

general or contracted independent public accountants. Financial statements and audit reports 

for these entities provide information about the entities’ operations. Each entity audit report also 

contains details regarding any identified material weaknesses or significant deficiencies and 

related recommendations for the respective entity. We did not audit, and we do not express an 

opinion on, any of these individual federal entity financial statements. 

We considered the Department of Defense’s (DOD) assertion in the DOD Agency Financial 

Report for Fiscal Year 2017 regarding DOD’s ineffective internal controls over financial reporting 

and noncompliant financial management systems. In addition, in the DOD Inspector General’s 

fiscal year 2017 report on internal control over financial reporting, the Inspector General cited 

material weaknesses in several areas, including (1) property, plant, and equipment; 

(2) inventory and operating material and supplies; (3) environmental liabilities; 

(4) intragovernmental eliminations; and (5) material amounts of unsupported accounting entries 

needed to prepare DOD’s annual consolidated financial statements. 

Our audit approach for the 2017 and 2016 Statements of Long-Term Fiscal Projections focused 

primarily on assuring that the information relating to the Statements of Social Insurance is 

properly reflected therein and testing the methodology used as well as evaluating key 

assumptions. We also evaluated whether the internal control deficiencies concerning the 

accrual-based consolidated financial statements affected certain key inputs used in generating 

the projections.

Because of the significance of the amounts presented in the Statements of Social Insurance 

and Statements of Changes in Social Insurance Amounts related to the Social Security 

Administration (SSA) and the Department of Health and Human Services (HHS), our audit 

approach regarding these statements focused primarily on these two agencies. For each federal 

entity preparing a Statement of Social Insurance and Statement of Changes in Social Insurance 

 37GAO, Financial Audit: Office of Financial Stability (Troubled Asset Relief Program) Fiscal Years 2017 and 2016 

Financial Statements, GAO-18-170R (Washington, D.C.: Nov. 9, 2017).

38GAO, Financial Audit: Bureau of Consumer Financial Protection’s Fiscal Years 2017 and 2016 Financial 

Statements, GAO-18-185R (Washington, D.C.: Nov. 15, 2017).
235 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 

Amounts,39 we considered the entity’s 2017, 2016, 2015, 2014, and 2013 Statements of Social 

Insurance and the 2017 and 2016 Statements of Changes in Social Insurance Amounts, as well 

as the related auditor’s reports prepared by the inspectors general or contracted independent 

public accountants. 

We performed sufficient audit work to provide our reports on (1) the consolidated financial 

statements; (2) internal control over financial reporting; and (3) compliance with selected 

provisions of applicable laws, regulations, contracts, and grant agreements. We considered the 

limitations on the scope of our work regarding the accrual-based consolidated financial 

statements and the sustainability financial statements in forming our conclusions. Our work was 

performed in accordance with U.S. generally accepted government auditing standards. 

 39These entities are SSA, HHS, the Railroad Retirement Board, and the Department of Labor.
 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 236 

Appendix II

Material Weaknesses Contributing to Our Disclaimer of Opinion on the Accrual-Based 

Consolidated Financial Statements

The continuing material weaknesses discussed below contributed to our disclaimer of opinion 

on the federal government’s accrual-based consolidated financial statements.40 The federal 

government did not maintain adequate systems or have sufficient appropriate evidence to 

support information reported in the accompanying accrual-based consolidated financial 

statements, as described below. 

Property, Plant, and Equipment and Inventories and Related Property 

The federal government could not satisfactorily determine that property, plant, and equipment 

(PP&E) and inventories and related property were properly reported in the accrual-based 

consolidated financial statements. Most of the PP&E and inventories and related property are 

the responsibility of the Department of Defense (DOD). As in past years, DOD did not maintain 

adequate systems or have sufficient records to provide reliable information on these assets. 

Certain other entities’ auditors reported continued deficiencies in internal control procedures and 

processes related to PP&E. 

Deficiencies in internal control over such assets could affect the federal government’s ability to 

fully know the assets it owns, including their location and condition, and its ability to effectively 

(1) safeguard assets from physical deterioration, theft, or loss; (2) account for acquisitions and 

disposals of such assets and reliably report asset balances; (3) ensure that the assets are 

available for use when needed; (4) prevent unnecessary storage and maintenance costs or 

purchase of assets already on hand; and (5) determine the full costs of programs that use these 

assets. 

Liabilities and Commitments and Contingencies 

The federal government could not reasonably estimate or adequately support amounts reported 

for certain liabilities. For example, DOD was not able to estimate with assurance key 

components of its environmental and disposal liabilities. In addition, DOD could not support a 

significant amount of its estimated military postretirement health benefits liabilities included in 

federal employee and veteran benefits payable. These unsupported amounts related to the cost 

of direct health care provided by DOD-managed military treatment facilities. Further, the federal 

government could not determine whether commitments and contingencies, including any related 

to treaties and other international agreements entered into to further the federal government’s 

interests, were complete and properly reported. 

Problems in accounting for liabilities affect the determination of the full cost of the federal 

government’s current operations and the extent of its liabilities. Also, deficiencies in internal 

control supporting the process for estimating environmental and disposal liabilities could result 

in improperly stated liabilities, as well as adversely affect the federal government’s ability to 

determine priorities for cleanup and disposal activities and to appropriately consider future 

budgetary resources needed to carry out these activities. In addition, to the extent disclosures of 

 40The material weakness related to the Reconciliations of Budget Deficit to Net Operating Cost and Changes in Cash 

Balance also contributed to our disclaimer on the 2017 and 2016 Statements of Long-Term Fiscal Projections.
237 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT

commitments and contingencies are incomplete or incorrect, reliable information is not available 

about the extent of the federal government’s obligations.

Cost of Government Operations and Disbursement Activity 

Reported net costs were affected by the previously discussed material weaknesses in reporting 

assets and liabilities; material weaknesses in financial statement preparation, as discussed 

below; and the lack of adequate disbursement reconciliations at certain federal entities. As a 

result, the federal government was unable to support significant portions of the reported total net 

cost of operations, most notably those related to DOD. 

With respect to disbursements, auditors of DOD and certain other federal entities reported 

continued control deficiencies in reconciling disbursement activity. For fiscal years 2017 and 

2016, inadequate reconciliations of disbursement activity included (1) unreconciled differences 

between federal entities’ and the Department of the Treasury’s (Treasury) records of 

disbursements and (2) unsupported federal entity adjustments, which could also affect the

balance sheet.

Unreliable cost information affects the federal government’s ability to control and reduce costs, 

assess performance, evaluate programs, and set fees to recover costs where required or 

authorized. If disbursements are improperly recorded, this could result in misstatements in the 

financial statements and in certain data provided by federal entities for inclusion in The Budget 

of the United States Government (President’s Budget) concerning obligations and outlays. 

Accounting for and Reconciliation of Intragovernmental Activity and Balances 

Significant progress has been made over the past few years; however, the federal government 

continues to be unable to adequately account for and reconcile intragovernmental activity and 

balances between federal entities. Federal entities are responsible for properly accounting for 

and reporting their intragovernmental activity and balances in their entity financial statements. 

When preparing the consolidated financial statements, intragovernmental activity and balances 

between federal entities should be in agreement and must be subtracted out, or eliminated, from 

the financial statements. If the two federal entities engaged in an intragovernmental transaction 

do not both record the same intragovernmental transaction in the same year and for the same 

amount, the intragovernmental transactions will not be in agreement, resulting in errors (i.e., 

differences or unmatched amounts) in the consolidated financial statements. The Office of 

Management and Budget (OMB) and Treasury require the chief financial officers (CFO) of the 

significant component entities to reconcile, on a quarterly basis, selected intragovernmental 

activity and balances with their trading partners and resolve identified differences. In addition, 

these entities are required to report to Treasury, their respective inspectors general, and GAO 

on the extent and results of intragovernmental activity and balance reconciliation efforts as of 

the end of the fiscal year.

Treasury has continued to actively work with significant federal component entities to resolve 

intragovernmental differences through its quarterly scorecard process.41 This process highlights 

differences requiring the entities’ attention, identifies differences that need to be resolved

41For each quarter, Treasury produces a scorecard for each significant entity that reports various aspects of the 

entity’s intragovernmental differences with its trading partners, including the composition of the differences by trading 

partner and category. Entities are expected to resolve, with their respective trading partners, the differences identified 

in their scorecards.
 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 238 

through a formal dispute resolution process,42 and reinforces the entities’ responsibilities to 

resolve intragovernmental differences. 

In fiscal year 2017, Treasury created and distributed to its management executives quarterly 

summaries that reported (1) year-to-year progress in resolving intragovernmental differences 

and (2) known issues surrounding them, thereby improving its overall monitoring of 

intragovernmental differences. In addition, Treasury continued to improve its procedures for 

identifying and monitoring systemic root causes of intragovernmental differences and related 

corrective action plans to address the root causes. As a result of these and other actions, a 

significant number of intragovernmental differences were identified and resolved. While 

progress was made, we continued to note that amounts reported by federal entity trading 

partners to Treasury were not in agreement by material amounts. Reasons for the differences 

cited by several CFOs included differing accounting methodologies, accounting errors, and 

timing differences. In addition, in the DOD Inspector General’s fiscal year 2017 report on 

internal control over financial reporting, the Inspector General reported that DOD, which 

contributes significantly to the unresolved amounts, could not accurately identify its 

intragovernmental transactions by customer and was unable to reconcile most of its 

intragovernmental transactions, which resulted in adjustments that cannot be fully supported.

Further, a significant portion of intragovernmental differences are related to unresolved 

transactions between the General Fund of the U.S. Government (General Fund)43 and federal 

entity trading partners related to appropriations and other intragovernmental transactions, which 

amount to hundreds of billions of dollars. Treasury established more specific guidance regarding 

General Fund activity and balances and issued this guidance for federal entities to follow in 

reporting their financial data. Treasury also continues to develop and refine its policies and 

procedures over accounting for and reporting all significant General Fund activity and balances 

and reconciling the activity and balances between the General Fund and its trading partners. 

However, the ability to effectively reconcile General Fund transactions is hampered because 

General Fund activity and balances have not yet been audited. Treasury will prepare and GAO 

will audit the fiscal year 2018 Schedules of the General Fund.

As a result of the above-noted circumstances, the federal government’s ability to determine the 

impact of these unresolved differences on the amounts reported in the accrual-based 

consolidated financial statements is significantly impaired. Resolving the intragovernmental 

transactions problem remains a difficult challenge and will require a strong and sustained 

commitment by federal entities to timely resolve differences with their trading partners, as well 

as continued strong leadership by Treasury and OMB.

Preparation of Consolidated Financial Statements

Treasury, in coordination with OMB, has implemented several corrective actions during the past 

few years related to the preparation of the consolidated financial statements. Corrective actions 

included implementing new systems for compiling the consolidated financial statements, 

improving guidance for collecting data from component entities, and implementing new or 

42When an entity and its respective trading partner cannot resolve an intragovernmental difference, the entity must 

request Treasury to resolve the dispute. Treasury will review the dispute and issue a decision on how to resolve the 

difference, which the entities must follow.

43The General Fund is a component of Treasury’s central accounting function. It is a stand-alone reporting entity that 

comprises the activities fundamental to funding the federal government (e.g., issued budget authority, cash activity, 

and debt financing activities).
239 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT

enhanced procedures to address certain internal control deficiencies detailed in our previously 

issued management report.44 However, the federal government’s systems, controls, and 

procedures were not adequate to reasonably assure that the consolidated financial statements 

are consistent with the underlying audited entity financial statements, properly balanced, and in 

accordance with U.S. generally accepted accounting principles (U.S. GAAP). During our fiscal 

year 2017 audit, we found the following.

• For fiscal year 2017, auditors reported internal control deficiencies at several component

entities regarding entities’ financial reporting processes that could affect information in those

entities’ closing packages.45 To reasonably assure consistency of underlying entity

information and financial data with the U.S. government’s consolidated financial statements,

entity auditors are required to separately audit and report on the financial information that

the significant component entities send to Treasury through closing packages.46 As in past

years, Treasury had to record significant adjustments to correct errors found in federal

entities’ audited closing package information. As with the last several years, these errors

primarily related to intragovernmental activity and balances and totaled tens of billions of

dollars. In addition, Treasury does not have a sufficient process for working with federal

entities to reduce or resolve the need for such significant adjustments.

• While progress has been made, Treasury is unable to properly balance the accrual-based

consolidated financial statements due to its inability to fully eliminate intragovernmental

activity and balances. To make the fiscal years 2017 and 2016 consolidated financial

statements balance, Treasury recorded net decreases of $2.6 billion and $8.1 billion,47

respectively, to net operating cost on the Statements of Operations and Changes in Net

Position, which were identified as “Unmatched transactions and balances.”48 Treasury

recorded an additional net $2.0 billion and $0.5 billion of unmatched transactions in the

Statement of Net Cost for fiscal years 2017 and 2016, respectively. The material weakness

in the federal government’s ability to account for and reconcile intragovernmental activity

and balances, discussed above, significantly contributes to this issue.

44Most of the issues we identified in fiscal year 2017 existed in fiscal year 2016, and many have existed for a number 

of years. Most recently, in July 2017, we reported the issues we identified to Treasury and OMB and provided 

recommendations for corrective action. See GAO, Management Report: Improvements Needed in Controls over the 

Processes Used to Prepare the U.S. Consolidated Financial Statements, GAO-17-524 (Washington, D.C.: July 12, 

2017). 

45The closing package methodology links federal component entities’ audited consolidated department-level financial 

statements to certain line items, note disclosures, and other information on the U.S. government’s consolidated 

financial statements.

46There are 39 significant component entities, including the General Fund; however, the General Fund did not submit 

a closing package in fiscal year 2017.

47The amount of unmatched transactions and balances for fiscal year 2016 was previously reported as $11.7 billion in 

the Fiscal Year 2016 Financial Report of the United States Government. The fiscal year 2016 accrual-based 

consolidated financial statements were restated in fiscal year 2017. See Note 1.V. Restatements, in the Fiscal Year 

2017 Financial Report of the United States Government. 

48Although Treasury was unable to determine how much of the unmatched transactions and balances relates to net 

operating cost, it reported this amount as a component of net operating cost in the accompanying consolidated 

financial statements. 
 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 240 

• Over the past several years, Treasury has taken significant actions to assist in ensuring that

financial information is reported or disclosed in the consolidated financial statements in

accordance with U.S. GAAP. For example, Treasury has developed and implemented U.S.

GAAP compliance operating procedures and checklists. However, Treasury’s reporting of

certain financial information required by U.S. GAAP continues to be impaired. Due to certain

control deficiencies noted in this audit report—for example, commitments and contingencies

related to treaties and other international agreements—Treasury is precluded from

determining if additional disclosure in the consolidated financial statements is required by

U.S. GAAP, and we are precluded from determining whether the omitted information is

material. Further, Treasury’s ability to report information in accordance with U.S. GAAP will

also remain impaired until federal entities, such as DOD, can provide Treasury with

complete and reliable information required to be reported in the consolidated financial

statements.

• In fiscal year 2017, Treasury continued to make progress with corrective actions intended to

resolve internal control deficiencies in the processes used to prepare the consolidated

financial statements. For example, Treasury issued guidance in the Treasury Financial

Manual requiring component entities to report or disclose criminal debt information in

conformity with U.S. GAAP in their financial statements and have such information subjected

to audit. During its preparation of the consolidated financial statements, Treasury verified

that component entities followed such guidance. However, other internal control deficiencies

existed in the processes used to prepare the consolidated financial statements.

Until these internal control deficiencies have been fully addressed, the federal government’s 

ability to reasonably assure that the consolidated financial statements are consistent with the 

underlying audited federal component entities’ financial statements, properly balanced, and in 

accordance with U.S. GAAP will be impaired. In recent years, Treasury has continued to 

improve its systems and processes for preparing the consolidated financial statements. It is 

important that Treasury (1) continues to improve its systems and (2) remains committed to 

maintaining the progress that has been made in this area and building on that progress to make 

needed improvements to fully address the magnitude of the financial reporting challenges it 

faces. Resolving the remaining internal control deficiencies continues to be a difficult challenge 

and will require a strong and sustained commitment from Treasury, OMB, and federal entities.

Reconciliations of Budget Deficit to Net Operating Cost and Changes in Cash Balance 

Treasury has been consistently improving its process for preparing the (1) Reconciliation of Net 

Operating Cost and Budget Deficit and (2) Statement of Changes in Cash Balance from Budget 

and Other Activities (Reconciliation Statements). For example, during fiscal year 2017, Treasury 

continued to refine its process to help ensure that reconciling items reported on the 

Reconciliation Statements are consistent with entity financial information that is processed 

through Treasury’s records. However, the federal government has not established and 

implemented effective processes and procedures for (1) identifying and reporting all items 

needed to prepare the Reconciliation Statements and (2) reasonably assuring that the 

information in these statements was fully consistent with the underlying information in the 

significant component entities’ audited financial statements and other financial data. Until 

Treasury develops and fully implements an effective process for reasonably assuring 

completeness and consistency of the information in the statements and is able to fully reconcile 

this information, the effect on the U.S. government’s consolidated financial statements will 

continue to be unknown.
241 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT

The Reconciliation Statements report budget deficits for fiscal years 2017 and 2016 of about 

$666 billion and $587 billion, respectively.49 The budget deficit is calculated by subtracting 

actual budget outlays (outlays) from actual budget receipts (receipts). Also, such outlays and 

receipts are key inputs to the Statements of Long-Term Fiscal Projections. Treasury and OMB 

continue to lack an effective process for reasonably assuring the consistency of the information 

among (1) information that Treasury uses to compute the budget deficit reported in the 

consolidated financial statements, (2) Treasury’s records of cash transactions processed 

through its central accounting function, and (3) information reported in federal entity financial 

statements and underlying entity financial information and records. Over the past few years, 

Treasury has made progress by developing and implementing procedures to reconcile outlays 

and receipts between Treasury’s records used to compute the budget deficit reported in the 

consolidated financial statements and underlying federal entity financial information and 

records. For example, in fiscal year 2017, Treasury began developing procedures related to 

leveraging agency Budget and Accrual Reconciliations to be required by Statement of Federal 

Financial Accounting Standards (SFFAS) 7: Accounting for Revenue and Other Financing 

Sources and Concepts for Reconciling Budgetary and Financial Accounting, as amended.50

These reconciliations will assist Treasury in verifying that the amounts presented in the 

Reconciliations of Net Operating Cost and Budget Deficit Statement are consistent with 

underlying audited financial data. Also, as noted above, Treasury will prepare and GAO will 

audit the fiscal year 2018 Schedules of the General Fund, which include key elements reported 

in the Statement of Changes in Cash Balance from Budget and Other Activities.

In fiscal year 2017, we again noted that several entities’ auditors reported internal control 

deficiencies related to monitoring, accounting, and reporting of budgetary transactions. These 

control deficiencies could affect the reporting and calculation of the net outlay amounts in the 

entities’ Statements of Budgetary Resources. In addition, such deficiencies may also affect the 

entities’ ability to report reliable budgetary information to Treasury and OMB and may affect the 

budget deficit reported in the accrual-based consolidated financial statements. Treasury also 

reports the budget deficit in its Combined Statement of Receipts, Outlays, and Balances and in 

other federal government publications.51

49The budget deficit, receipts, and outlays amounts are reported in Treasury's Monthly Treasury Statement and the 

President’s Budget.

50SFFAS 7, as amended by SFFAS 53: Budget and Accrual Reconciliation, is effective for reporting periods beginning 

after Sept. 30, 2018, and early adoption is permitted.

51Treasury’s Combined Statement of Receipts, Outlays, and Balances presents budget results and cash-related 

assets and liabilities of the federal government with supporting details. According to Treasury, this report is the 

recognized official publication of receipts and outlays of the federal government based on entity reporting.
 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 242 

Appendix III

Other Material Weaknesses

Material weaknesses in internal control discussed in this audit report resulted in ineffective 

controls over financial reporting. In addition to the material weaknesses discussed in appendix II 

that contributed primarily to our disclaimer of opinion on the accrual-based consolidated 

financial statements, we found the following three other material weaknesses in internal control. 

Improper Payments 

The federal government is unable to determine the full extent to which improper payments occur 

and reasonably assure that appropriate actions are taken to reduce them. Reducing improper 

payments is critical to safeguarding federal funds.52 The Improper Payments Information Act of 

2002 (IPIA), as amended by the Improper Payments Elimination and Recovery Act of 2010 

(IPERA) and the Improper Payments Elimination and Recovery Improvement Act of 2012 

(IPERIA),53 requires federal executive branch entities to (1) review all programs and activities, 

(2) identify those that may be susceptible to significant improper payments, (3) estimate the

annual amount of improper payments for those programs and activities identified as risk

susceptible, (4) implement actions to reduce improper payments and set reduction targets with

respect to the risk-susceptible programs and activities, and (5) report on the results of

addressing the foregoing requirements.

Federal entity improper payment estimates totaled about $141 billion for fiscal year 2017, based 

on improper payment estimates reported by federal program or activity.54 The government-wide 

total of reported estimated improper payments, among programs and activities that reported 

estimates, decreased by over $3 billion from the prior year estimate of about $144 billion. 

Agencies reported decreases in estimated improper payments for several programs and 

activities, which contributed to the decrease in the government-wide total and helped to offset 

52Under the Improper Payments Information Act of 2002, as amended, an improper payment is statutorily defined as 

any payment that should not have been made or that was made in an incorrect amount (including overpayments and 

underpayments) under statutory, contractual, administrative, or other legally applicable requirements. It includes any 

payment to an ineligible recipient, any payment for an ineligible good or service, any duplicate payment, any payment 

for a good or service not received (except for such payments where authorized by law), and any payment that does 

not account for credit for applicable discounts. Office of Management and Budget guidance also provides that when 

an agency's review is unable to discern whether a payment was proper as a result of insufficient or lack of 

documentation, this payment must also be considered an improper payment.

53IPIA, Pub. L. No. 107-300, 116 Stat. 2350 (Nov. 26, 2002), as amended by IPERA, Pub. L. No. 111-204, 124 Stat. 

2224 (July 22, 2010), and IPERIA, Pub. L. No. 112-248, 126 Stat. 2390 (Jan. 10, 2013), and reprinted in 31 U.S.C. § 

3321 note. 

54The Fiscal Year 2017 Financial Report of the United States Government did not include a government-wide 

improper payment estimate or error rate. Since fiscal year 2003, a government-wide estimate and error rate had been 

reported in Financial Reports based on the programs and activities that reported estimates. 
243 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT

increases for certain other programs and activities.55 For example, the Department of Health 

and Human Services (HHS) reported a decrease in estimated improper payments for Medicare 

Fee-for-Service driven by a decrease in improper payments for home health and inpatient 

rehabilitation facility claims. It is important to note that pursuant to the Office of Management 

and Budget (OMB) implementing guidance, reported improper payment estimates include 

overpayments, underpayments, and payments for which adequate documentation was not 

found, and may also be based on payment data and sampling drawn from periods that do not 

coincide with the fiscal year for which the estimates are reported.

The specific programs and activities included in the government-wide total of reported improper 

payment estimates may change from year to year. Nine federal entities did not report fiscal year 

2017 estimated improper payment amounts for 27 risk-susceptible programs and activities, 

including the Department of Agriculture’s (USDA) Supplemental Nutrition Assistance Program 

(SNAP), HHS’s Temporary Assistance for Needy Families (TANF), and 14 programs and 

activities that received funding under the Disaster Relief Appropriations Act, 2013 (DRAA).56

Further, various inspectors general reported deficiencies related to compliance with the criteria 

listed in IPERA for fiscal year 2016 at their respective federal entities,57 including risksusceptible programs and activities that did not report improper payment estimates, estimation 

methodologies that may not produce reliable estimates, and risk assessments that may not 

55For fiscal year 2017, agencies reported decreases in total estimated improper payments in excess of $1 billion for 

four programs and increases in total estimated improper payments in excess of $1 billion for two programs. The four 

programs with decreases in excess of $1 billion were the Department of Health and Human Services’ (HHS) 

Medicare Fee-for-Service, HHS’s Medicare Advantage (Part C), HHS’s Medicare Prescription Drug (Part D), and the 

Social Security Administration’s Old-Age, Survivors, and Disability Insurance. The two programs with increases in 

excess of $1 billion were the Department of Veterans Affairs’ (VA) Community Care and VA’s Prosthetics. In addition, 

the Department of Housing and Urban Development (HUD) ceased reporting an estimate for certain of its Rental 

Housing Assistance Programs in fiscal year 2017, contributing to a decrease in excess of $1 billion to the 

government-wide total.

56Pub. L. No. 113-2, div. A, 127 Stat. 4 (Jan. 29, 2013). Section 904(b) of DRAA deemed all programs and activities 

receiving appropriations under the act as susceptible to significant improper payments, subjecting such programs and 

activities to improper payment estimation and reporting requirements under IPIA, as amended. The 27 programs and 

activities included 13 non-DRAA programs and activities and 14 DRAA programs and activities. The 13 non-DRAA 

programs and activities were (1) USDA’s SNAP, (2) USDA's Child and Adult Care Food Program, (3) HHS's TANF, 

(4) HHS's Advance Premium Tax Credit, (5) HHS's Cost-Sharing Reduction, (6) HUD’s Office of Housing Rental

Housing Assistance Programs, (7) HUD's HOME Investment Partnership, (8) HUD's Community Development Block

Grant, (9) HUD’s Single Family Claims, (10) HUD’s Ginnie Mae Contractor Payments, (11) Department of the

Treasury's (Treasury) Advance Child Tax Credit, (12) Treasury’s Additional Opportunity Tax Credit, and

(13) Treasury’s Premium Tax Credit.

57IPERA established a requirement for entity inspectors general to report annually on entities’ compliance with criteria 

listed in section 3 of IPERA. The six criteria are that the entity has (1) published an annual financial statement and 

accompanying materials in the form and content that OMB requires for the most recent fiscal year and posted that 

report on the entity website; (2) conducted a risk assessment for each specific program or activity that conforms with 

IPIA, as amended; (3) published estimates of improper payments for all programs and activities identified as 

susceptible to significant improper payments under the entity’s risk assessment; (4) published corrective action plans 

for programs and activities assessed to be at risk for significant improper payments; (5) published and met annual 

reduction targets for all programs and activities assessed to be at risk for significant improper payments; and 

(6) reported a gross improper payment rate of less than 10 percent for each program and activity for which an

improper payment estimate was obtained and published. The most recent inspector general reports on compliance

with the criteria listed in IPERA were issued in 2017 for fiscal year 2016. Pursuant to the OMB implementing

guidance in OMB Memorandum M-15-02, appendix C to OMB Circular No. A-123, Requirements for Effective

Estimation and Remediation of Improper Payments (Oct. 20, 2014), inspector general reports are due within 180

days of publication of the performance and accountability reports or agency financial reports. Therefore, inspector

general reports on fiscal year 2017 compliance with the criteria listed in IPERA are generally expected to be issued

by May 2018.
 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 244 

accurately assess the risk of improper payment. For example, the Department of Defense 

(DOD) Inspector General reported that DOD did not ensure that all required payments were 

included in certain programs’ improper payment estimates, and as a result, DOD published 

unreliable estimates of improper payments for fiscal year 2016.58

For fiscal year 2017, federal entities reported estimated improper payment rates of 10 percent 

or greater for 17 risk-susceptible programs and activities,59 accounting for about 50 percent of 

the government-wide total of reported estimated improper payments.60 Under IPERA, an entity 

that is determined by its inspector general to not be in compliance with the criteria listed in 

IPERA, such as reporting an improper payment rate of 10 percent or greater for any risksusceptible program or activity, must submit a plan to Congress describing the actions that the 

entity will take to come into compliance. 

Further, entity auditors continued to report internal control deficiencies over financial reporting in 

their fiscal year 2017 financial statement audit reports, such as financial system limitations and 

information system control weaknesses. Such deficiencies could significantly increase the risk 

that improper payments may occur and not be detected promptly. 

The President’s fiscal years 2017 and 2018 budgets included program integrity proposals at 

multiple agencies aimed at reducing improper payments. Also, efforts continue to implement 

requirements established by IPERIA, which was enacted in January 2013, to intensify efforts to 

identify, prevent, and recover payment error, waste, fraud, and abuse in federal spending. 

Among other things, IPERIA established a statutory Do Not Pay initiative, requiring entities to 

review prepayment and preaward procedures and ensure a thorough review of available 

databases to determine program or award eligibility before the release of any federal funds. 

IPERIA also directs OMB to annually identify a list of high-priority federal programs for greater 

levels of oversight and review and requires each entity responsible for administering one of 

these high-priority programs to annually submit a program report to its inspector general and 

make a report copy available to the public. 

Until the federal government has implemented effective processes to determine the full extent to 

which improper payments occur and has taken appropriate actions across entities and 

programs to effectively reduce improper payments, it will not have reasonable assurance that 

the use of federal funds is adequately safeguarded. 

 58Department of Defense, Office of Inspector General, The DoD Did Not Comply with the Improper Payment 

Elimination and Recovery Act in FY 2016, Report No. DODIG-2017-078 (Alexandria, Va.: May 8, 2017).

59The improper payment rate reflects the estimated improper payments as a percentage of total outlays.

60The 17 programs and activities that reported estimated improper payment rates of 10 percent or greater for fiscal 

year 2017 were (1) VA's Community Care; (2) VA's Purchased Long-Term Services and Supports; (3) VA’s 

Prosthetics; (4) VA’s Beneficiary Travel; (5) VA’s Communications, Utilities, and Other Rent; (6) VA’s Supplies and 

Materials; (7) VA’s Medical Care Contracts and Agreements; (8) Treasury’s Earned Income Tax Credit; (9) USDA’s 

School Breakfast; (10) USDA’s National School Lunch; (11) the Federal Communications Commission’s Universal 

Service Fund Lifeline; (12) the Corporation for National and Community Service’s (CNCS) Foster Grandparent; 

(13) CNCS’s Senior Companion; (14) CNCS’s AmeriCorps; (15) the Small Business Administration’s Disaster Loan 

Disbursements; (16) the Department of Labor’s Unemployment Insurance; and (17) HHS’s Medicaid programs.
245 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 

Information Security 

GAO has reported information security as a high-risk area across government since February 

1997. During our fiscal year 2017 audit, we found that serious and widespread information 

security control deficiencies continued to place federal assets at risk of inadvertent or deliberate 

misuse, financial information at risk of unauthorized modification or destruction, sensitive 

information at risk of inappropriate disclosure, and critical operations at risk of disruption.61

Specifically, control deficiencies were identified related to (1) security management; (2) access 

to computer resources (data, equipment, and facilities); (3) changes to and configuration of 

information system resources; (4) segregation of incompatible duties; and (5) contingency 

planning. 

Such information security control deficiencies unnecessarily increase the risk that data recorded 

in or transmitted by federal financial management systems are not reliable and available. A 

primary reason for these deficiencies is that federal entities generally have not yet fully 

institutionalized comprehensive security management programs, which are critical to identifying 

information security control deficiencies, resolving information security problems, and managing 

information security risks on an ongoing basis. 

Although significant challenges remain, the federal government has continued to take actions 

for improving information security. For example, in May 2017, the President issued an executive 

order on strengthening the cybersecurity of federal networks and critical infrastructure.62 Among 

other things, the order intends to hold executive agency heads accountable for managing 

agency-wide cybersecurity risk. In addition, it requires each executive agency to use the 

National Institute of Standards and Technology’s Cybersecurity Framework to manage 

cybersecurity risk.63 Nevertheless, GAO and other auditors continued to identify information 

security control deficiencies at federal entities. Until entities identify and resolve these 

deficiencies and effectively manage information security risks on an ongoing basis, federal data 

and systems, including financial information, will remain at risk. 

Tax Collection Activities

During fiscal year 2017, a material weakness continued to affect the federal government's ability 

to effectively manage its tax collection activities. While the Department of the Treasury’s Internal 

Revenue Service (IRS) made necessary and appropriate adjustments to its financial 

statements, IRS’s underlying records did not always reflect the correct amount of taxes owed by 

the public to the federal government due to financial system limitations and other control 

deficiencies that led to errors in taxpayers’ accounts. Such errors place undue burden on 

taxpayers who either have already paid taxes owed or owe significantly lower amounts than 

recorded. 

 61Eighteen of the 24 agencies covered by the Chief Financial Officers Act of 1990 reported information security as a 

significant deficiency or material weakness for fiscal year 2017.

62Executive Office of the President, Strengthening the Cybersecurity of Federal Networks and Critical Infrastructure, 

Exec. Order No. 13,800 of May 11, 2017, 82 Fed. Reg. 22,391 (Washington, D.C.: May 16, 2017).

63National Institute of Standards and Technology, Framework for Improving Critical Infrastructure Cybersecurity, Draft 

Version 1.1 (Gaithersburg, Md.: Jan. 10, 2017).
 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 246 

Collectively, these deficiencies indicate that internal controls were not effective in (1) ensuring 

that reported amounts of taxes receivable and other unpaid assessments were accurate on an 

ongoing basis and could be relied upon by management as a tool to aid in making and 

supporting resource allocation decisions and (2) supporting timely and reliable financial 

statements, accompanying notes, and required supplementary information and other 

information without extensive supplemental procedures and adjustments.
247 U.S. GOVERNMENT ACCOUNTABILITY OFFICE INDEPENDENT AUDITOR’S REPORT 

Appendix IV

Significant Deficiencies

In addition to the material weaknesses discussed in appendixes II and III, we found two 

significant deficiencies in the federal government’s internal control related to implementing 

effective internal controls at certain federal entities, as described below. 

Loans Receivable and Loan Guarantee Liabilities

Internal control deficiencies were identified at certain significant component entities accounting 

for the majority of the reported balances for loans receivable and loan guarantee liabilities.64

The deficiencies primarily involved credit subsidy estimation and internal control over such 

estimation. The issues and complexities associated with estimating the costs of lending and 

other loan-related financing activities significantly increase the risk that misstatements in agency 

and government-wide financial statements could occur and go undetected. Further, these 

control deficiencies can adversely affect the federal government’s ability to support annual 

budget requests for these programs, make future budgetary decisions, manage program costs, 

and measure the performance of lending activities.

Federal Grants Management

In fiscal year 2017, several federal entities’ auditors continued to identify internal control 

deficiencies related to grants management.65 Reported deficiencies primarily related to 

monitoring of grant activities, accounting for formula grants, and estimating grant accruals.66

These internal control deficiencies could adversely affect the federal government’s ability to 

provide reliable financial statements as well as reasonable assurance that grants are awarded 

properly, recipients are eligible, and federal grant funds are used as intended. 

 64Key significant component entities contributing to the significant deficiency for Loans Receivable and Loan 

Guarantee Liabilities include the Departments of Education, Transportation, Housing and Urban Development, and 

Veterans Affairs; the Export-Import Bank of the United States; and the Small Business Administration.

65Key significant component entities contributing to the significant deficiency for Federal Grants Management include 

the Departments of Homeland Security, Housing and Urban Development, and Health and Human Services.

66Formula grants are awarded to all eligible grantees based on a statutory allocation formula, which may be based on 

a number of variables, including population, poverty rate in a given area, or tax effort. The grants are typically 

awarded to states, which often pass funds through to eligible local government agencies and nonprofit organizations.